민주노동당의 변화와 정당모델로서의 적절성 1

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박사학위논문

 

민주노동당의 변화와 정당모델의 적실성

지도교수임성필
경희대학교대학원 정치학과 채진원
2009년 2월

 
감사의 글

우선 강철 검을 만들기 위해 쇠를 두드리는 사람의 노고도 인정해 줘야겠지만, 자꾸
두들겨 맞는 쇠의 심정도 한번쯤은 이해해 줬으면 합니다. 두들겨 맞을 때마다 쇠는 얼
마나 아팠겠습니까. 맷집이 약한 쇠를 보신 적이 있습니까? 몇 대 맞지도 않았는데도
쇠는 녹다운입니다. 여러 사람들의 날카로운 비판과 코멘트를 오래 듣기엔 너무 체력이
약해, 금방 쓰러지고 말았습니다.

도스또예프스키와 바흐찐의 다성악(多聲樂)을 소개해 주신 김홍우 교수님이 생각납니
다. 이분은 다성악의 핵심을 여러 사람들의 다양한 목소리가 어느 하나의 목소리에 주
눅이 들지 않도록, 다양성이 유지되도록 신경을 쓰는 것이라고 하십니다. 그 다양성이
지켜지기 위해서는 자신의 의견을 진리로 만들려는 태도를 즉각 포기하라고 하십니다.
그냥 자신의 생각을 여러 사람들의 다양한 의견 중에 하나 정도로 머물도록 최종적인
결론도 내리지 말고, 항상 잠정적인 수준에서 멈춰야 된다고 하십니다. 논문을 쓰면서
이 다성악의 원칙을 실천해보려고 했습니다. 논문 속에 다양한 사람들의 말과 의견이
가급적 드러나도록 하는 것과 제 의견을 이야기 하는 것이 자주 충돌해서 힘이 들었습
니다. 맷집과 체력이 약해서 두드리는 사람들의 많은 의견과 생각을 담지 못했습니다.

논문을 쓰면서 도움을 주신 많은 분들이 계십니다. 이 모든 분들이 도움을 주셨기 때문
에 가능했던 일입니다. 서면으로나마 진심으로 감사하다는 말씀 전하고 싶습니다. 저의 지
도교수이신 임성호 교수님입니다. 이분은 목마르고 배고픈 저에게 물과 먹을 것을 만들어
주셨고, 학문하는 자세를 가르쳐 주셨습니다. 논문속에서 길을 잃었을 때 방향을 일러주신
분은 김의영 교수님, 유현석 교수님, 윤성이 교수님입니다. 그리고 저에게 용기와 격려를
주셨던 분은 명지대 정진민 교수님, 그리고 김 현 교수님, 송석원 교수님, 민준기 교수님,
신정현 교수님, 백승현 교수님, 정종필 교수님, 이동수 교수님, 이화용 교수님입니다.

그리고 심사과정 중에 몇 번이고 울고 싶었는데, 울 수가 없었다고 해서 동변상련의
정이 든 이병진 박사입니다. 그리고 외로운 저를 항상 술자리에서 여러모로 위로해주신
이석호 실장님과 강민재 선생입니다. 그리고 제 논문에 대해 말동무와 예리한 코멘트로
저의 머리가 되어준 박대응 선생입니다. 그리고 집에 못 들어가서 미안하다는 말 밖에
하지 못해도 따뜻한 웃음으로 위로해주었던 내 몸과 마음의 반쪽 김미경씨입니다. 아울
러 지면부족으로 이름을 밝히지 못하는 여러 사람들이 있습니다. 이 모든 분들께 감사
의 말씀을 전합니다. 더 열심히 살겠다는 말씀 올립니다.

2009년 2월 채진원 드림.

국 문 초 록

본 논문에서는 대중정당모델로 출발한 민주노동당이 지난 10여 년간 변화하는
모습을 관찰한다. 즉, 대중정당모델로 출발한 민주노동당이 원내정당화가 되고 있다
는 사실을 구체적인 데이터를 통해 살펴봄으로써, 그것이 가지는 함의를 고찰한다.

본 논문의 문제의식은 ‘대중정당모델’과 ‘원내정당모델’에 대한 이론적 논의를 검
토하는 가운데, 이것을 민주노동당의 경험사례와 비교함으로써, 정당모델의 적실성
과 관련한 이론적인 시사점을 찾고자 한다. 즉, 원외 대중정당으로 출발한 민주노동
당은 1997년 15대 대선 때 권영길 후보의 선거운동조직이었던 ‘국민승리21’로부터
출발하여 2000년에 창당을 하여 마침내 2004년에 원내진출을 하였다. 그러나
2005년 10월 26일 울산북구 재선거와 2007년 17대 대선에서 ‘당 지지층이탈에 따
른 선거패배’를 경험하였다. 이 같은 일련의 선거패배와 당의 총체적 위기상황은 대
중정당모델의 핵심적 속성인 ‘조직으로서의 정당’기능의 약화와 더불어 이것의 반작
용으로 ‘원내정당화’가 촉진되었다. 이 같은 원내정당화는 대중정당모델에 입각하여
당 운영을 표방해온 민주노동당에서 수용될 수 없는 것임에도 불구하고, 수용되고
있다는 점에서 매우 흥미로운 측면이다. 특히, 이러한 민주노동당의 성격변화사례
를 정당모델의 적실성과 관련한 이론적 논의와 연결시켜 볼 때, 더더욱 그러한 측
면이 있다.

이러한 맥락에서 본 논문의 연구목적은 첫째, 민주노동당의 변화가 어떠한 형태
로 진행되었는지를 정당모델의 성격변화관점에서 ‘대중정당모델’과 ‘원내정당모델’에
입각하여 분석하고자 한다. 둘째, 이 같은 민주노동당의 성격변화가 진행된 배경이
‘일시적’이고 ‘상황적’인 배경과 연동되어 있는지 아니면 후기산업화와 지구화와 같
은 ‘구조적’인 시대변동과 연동되어 있는지를 제한적인 수준에서 탐색하고자 한다.
특히, 본 논문에서는 민주노동당의 원내정당화가 두 중요선거(2005년 10월 26일
울산북구 재선거와 2007년 17대 대선)에서의 패배 등 심각한 지지층 이탈에 대한
반작용으로 촉진 된 바가 크다는 점을 주목한다. 이런 점에서 두 중요선거에서 드
러난 ‘민주노동당 지지이탈층의 민주노동당에 대한 의식’을, 표적집단심층인터뷰(F.
G.I)내용을 통해 살펴보고, 그와 같은 민주노동당에 대한 유권자의식이 나오게 되는
사회구조적 배경과 원내정당화를 연관시켜 탐색할 것이다. 아울러 둘째의 귀결로서
민주노동당 원내정당화의 성격을 탐색한 근거를 정당모델의 적실성과 관련한 논의
와 연결시켜서 이론적인 시사점을 찾고자 한다. 다시 말해서, 민주노동당은 원내정
당모델과 관련하여 창당의 배경과 정체성 등을 고려해 볼 때, ‘least-likely case’
(가설에 가장 잘 들어맞을 가능성이 없는 사례)에 해당한다. 따라서 대중정당모델에
가까운 민주노동당에서조차 원내정당화가 촉진되고 있고, 이 같은 성격변화가 민주
노동당에 대한 유권자 의식을 볼 때, 시대불가역적으로 진행되고 있는 후기산업화
와 지구화와 같은 시대전환적인 구조적인 변동과 연동되어 있다는 것을 탐색적인
차원에서도 확인할 필요가 있다. 그리고 만약 그것을 발견할 수 있다면, 민주노동당
변화사례는 한국적 시대상황에 부합하는 정당모델에 대한 이론적 논의와 관련하여
중요한 시사점을 줄 수 있을 것이다.

하지만 본 논문은 방법론적으로 많은 한계가 있다. 먼저 연구범위가 시간적으로
10여 년간의 민주노동당의 변화만을 다루고 있기 때문에, 민주노동당의 원내정당화
의 모습을 큰 골격만을 보여줄 뿐 그 완성태를 보여주지 못하고 있다. 아마도 이것
은 민주노동당에서 국회의원이 상당 수준 생겨야 민주노동당 원내정당화는 더욱 분
명하고 명료해질 것이다.

주제어: 민주노동당, 정당, 대중정당모델, 원내정당모델, 토의민주주의, 생활정치

 

목 차

국문초록 ··································································································································· ⅰ
제 1 장 서 론 ············································································································ 1
제 1 절 문제제기 ··············································································································· 1
제 2 절 연구의 목적 ········································································································· 8
제 3 절 연구의 방법 및 한계와 의의 ········································································· 10
제 2 장 이론적 논의 검토와 분석틀 ································································· 14
제 1 절 기존 연구와 이론적 논의 검토 ····································································· 14
제 2 절 분석틀 ················································································································· 30
1. 정당모델에 대한 개념정의 ···················································································· 30
2. 분석을 위한 추론 ···································································································· 39
3. 민주노동당의 성격변화 설명지표 ········································································ 43
제 3 장 대중정당모델로서 민주노동당 ····························································· 48
제 1 절 민주노동당 약사(1997년~2008년) ····························································· 48
1. 태동기(1997~2002) ······························································································ 48
2. 성장기(2003~2004) ······························································································ 51
3. 쇠퇴기(2005~2008) ······························································································ 52
4. 제1절 요약 ··············································································································· 57
제 2 절 민주노동당의 조직 정체성: 노동자계급정당 ············································· 58
1. 창당과정과 조직기반 ······························································································ 58
2. 조직 운영제도 ·········································································································· 61
3. 조직기반에 대한 경험적 관찰 ·············································································· 72
4. 제2절 요약 ··············································································································· 79
제 3 절 민주노동당의 이념 . 정파 정체성: 사회주의적 정당 ····································· 80
1. 이념기반 ···················································································································· 80
2. 정파기반 ···················································································································· 82
3. 제3절 요약 ··············································································································· 88
제 4 장 민주노동당의 성격변화: 원내정당화 ····················································· 89
제 1 절 ‘조직으로서의 정당’약화 ················································································ 89
1. 조직기반의 약화 ······································································································ 89
2. 이념.정파기반의 약화 ·························································································· 116
3. 제1절 요약 ············································································································· 123
제 2 절 원내정당화 촉진 ···························································································· 125
1. 원내정당화를 억제한 관련제도의 폐지 ··························································· 125
2. 의원 및 의원단총회의 영향력 확대 사례 ······················································· 129
3. 유권자에 대한 반응성 촉진 사례 ····································································· 140
4. 제2절 요약 ············································································································· 156
제 5 장 민주노동당의 성격변화에 대한 보론 ··············································· 158
제 1 절 표적집단인터뷰(F.G.I)내용 탐색 배경 ······················································ 159
제 2 절 2005년 10월 26일 울산북구 재선거 F.G.I 내용 ·································· 160
제 3 절 2007년 17대 대선 F.G.I 내용 ··································································· 177
제 4 절 민주노동당의 원내정당화 성격 추론 ························································ 187
제 6 장 결론: 이론적 함의와 제언 ·································································· 195
제 1 절 이론적 함의 ···································································································· 196
제 2 절 제언 ·················································································································· 202
제 3 절 전체요약 ·········································································································· 215
참고문헌 ································································································································ 220
Abstract ································································································································ 230

【표 차례】
[표2-1] 발전단계별 정당모델과 특징 ············································································· 15
[표2-2] 새천년민주당 당발전과 쇄신을 위한 특대위 최종 합의사항 ························ 23
[표2-3] 정당개혁 관련 논의 학계참여 사례 ································································· 24
[표2-4] 정당모델에 따른 구체적 개혁방안 비교 ························································· 27
[표2-5] 대중정당모델과 원내정당모델의 주요 특징 비교 ········································· 33
[표2-6] 정당모델별 부각되는 정당기능 및 행위자 비교 ··········································· 36
[표2-7] 민주노동당 성격변화 설명지표 ········································································· 44
[표3-1] 민주노동당 창당과정 및 추진일지 ··································································· 49
[표3-2] 민주노동당 16대 4.13 총선 결과 ····································································· 49
[표3-3] 2002년 지방선거에서 민주노동당 출마자 및 당선자 현황 ························ 50
[표3-4] 민주노동당 17대와 18대 총선 득표율 비교 ·················································· 54
[표3-5] 1997~2008 권영길과 민주노동당 정당 득표율 추이(%) ··························· 56
[표3-6] 민주노동당 창당과 관련한 민주노총의 주요 결정사항 ······························· 58
[표3-7] 민주노총 연도별 민주노동당 당원현황(1998~2004년 2월 현재) ············ 60
[표3-8] 2004년 1월~2월 민주노총 당원 현황 ···························································· 60
[표3-9] 당원의 직업별 분포추이(2004.2~5)/단위(명, %) ········································· 61
[표3-10] 민주노동당 연도별 당원 수 증가(2007.5.3 현재) ····································· 63
[표3-11] 정당별 당비납부 당원의 수(2004년/단위: 명) ············································ 64
[표3-12] 정당별 중앙당 수입대비 당비점유 비율(2000년/단위: 원, %) ··············· 64
[표3-13] 민주노동당 중앙위원, 대의원 부문할당 비율 변화 ···································· 66
[표3-14] 민주노동당 지도부 중 노동부문 할당 변화 ················································· 67
[표3-15] 공직-당직 분리제에 대한 당원들의 여론조사 결과 ·································· 71
[표3-16] 민주노동당(준)관련 민주노총 대의원 설문조사 결과(1999.9.30) ·········· 72
[표3-17] 2004년 1월~4월 정당별 지지율 비교 추이(%) ········································· 75
[표3-18] 사회배경변수별 투표정당 - 세대, 학력, 계급적 지위, 소득수준 ··········· 76
[표3-19] 정당별 비례대표 투표 및 2순위 정당(%) (2004.4.15 조사) ·················· 77
[표3-20] 직업별 비례대표 민주노동당 투표(%) (2004.4.15 조사) ························ 78
[표3-21] 민주노동당 창당선언문과 강령 일부 ····························································· 80
[표3-22] 민주노총 3대 정파 ····························································································· 83
[표3-23] 17대 총선이후 민주노동당 원내외 지도부의 정파별 분류 ······················ 84
[표3-24] 17대 총선시 비례대표후보 당내경선 결과 ·················································· 86
[표4-1] 연도별 민주노동당 당원 수 ··············································································· 90
[표4-2] 연도별 인구수 대비 민주노동당 당원 비율 ··················································· 91
[표4-3] 당비납부 의무이행 진성당원 비율 ··································································· 91
[표4-4] 중앙당 총수입 중 당비점유 비율 ····································································· 92
[표4-5] 연도별 민주노동당 당원 증가추이: 2000년~2007년 ·································· 93
[표4-6] 연도별 총당원대비 민주노총 구성비율 및 증가율 ······································· 95
[표4-7] 지역단위수준(관악구위원회)의 공직선거 투표율 변화(단위: %) ·············· 97
[표4-8] 지역단위수준(관악구위원회) 당직선거 투표율 변화(단위:%) ···················· 97
[표4-9] 중앙단위 수준 당직선거 투표율 변화(%) ······················································· 98
[표4-10] 중앙단위 수준 공직후보(대통령, 총선비례후보) 투표율 변화(%) ·········· 98
[표4-11] 2004년~2007년 민주노동당 당원 탈당율 증가 추이 ······························· 99
[표4-12] 2008년 2월 민주노동당 탈당자 현황 ························································· 101
[표4-13] 지구당폐지에 따른 민주노동당 대응 방안 ················································· 102
[표4-14] 민주노동당 최고위원회 숫자 변화 ······························································· 103
[표4-15] 민주노동당 중앙당 상근자 숫자 변화 ························································· 103
[표4-16] 심상정 비대위의 중앙당과 지역조직 및 재정 혁신안 ····························· 106
[표4-17] 연도별 정당 지지도 추이(2004년~2007) ················································· 107
[표4-18] 2002년도 민주노동당에 대한 민주노총의 배타적 지지에 대한 의견 ···· 111
[표4-19] 2006년 민주노동당에 대한 민주노총의 배타적 지지에 대한 의견 ····· 111
[표4-20] 2008년도 민주노동당에 대한 민주노총의 배타적 지지에 대한 의견 ···· 112
[표4-21] 민주노동당 의정활동의 문제점에 대한 여론조사결과(%) ······················ 113
[표4-22] 민주노동당과 민주노총 관계에 대한 여론조사 결과(%) ························ 115
[표4-23] 민주노동당 주요 정파와 이념성향 현황 ····················································· 117
[표4-24] 심상정 비상대책위원회의 개혁방향과 주요 내용 ····································· 118
[표4-25] 민주노동당 정파들의 대선후보선출에 대한 투표방침 비교 ··················· 122
[표4-26] 민주노동당내 주요 정파 현황(2007년 12월 24일 현재) ······················ 122
[표4-27] 정파인식에 대한 민주노동당 당원 여론조사 결과 ··································· 123
[표4-28] 민주노동당 공직-당직 겸직의 금지제도 변천과정 ·································· 127
[표4-29] 민주노동당 보좌관 임면권한 변천과정 ······················································· 129
[표4-30] 법률안 작성 권한의 변화 ··············································································· 131
[표4-31] 민주노동당 의정지원단의 소속 변화 ··························································· 133
[표4-32] 국회의원단 운영과 지원에 관한 당규 변화 ··············································· 133
[표4-33] 민주노동당 최고위원회와 의원단 총회에 관한 당헌 규정 ····················· 135
[표4-34] 민주노동당 최고위원회-의원단총회 연석회의 의사결정 횟수 ·············· 136
[표4-35] 최고위원회-의원단총회 공통 안건 현황(2004.6.~2006.4.21) ············· 136
[표4-36] 민주노동당 당대표직의 성격 변화 ······························································· 138
[표4-37] 당대표 결선투표 결과 ····················································································· 140
[표4-38] 민주노동당 대선후보 개방형 경선제 도입 및 재논의 경과 일지 ········· 144
[표4-39] 민주노동당 대선후보 선출방식에 관한 논의 변천과정 ··························· 145
[표4-40] 17대~18대 총선시 민주노동당 비례대표후보자 공천방식의 변화 ······ 151
[표4-41] 민주노동당 18대 총선 비례대표 후보자 전략명부 명단(1번~6번) ····· 151
[표4-42] 17대 대선후보자의 지지자 그룹 현황 ························································ 155
[표5-1] 2005년 10월 26일 울산북구 재선거 민주노동당 득표현황 ···················· 161
[표5-2] 17대 4월 15일 총선과 10월 26일 울산북구 재선거 동별 득표율 현황비교 ·· 161
[표5-3] 10월 26일 울산북구 재선거 유권자 투표행태 ··········································· 163
[표5-4] 정규직 비정규직의 인원과 비중의 변화 (단위: 천명,%) ·························· 165
[표5-5] 정규직과 비정규직 노조 조직률 ····································································· 166
[표5-6] 10월 26일 울산북구 재선거에서 민주노동당-한나라당 지지율 비교(%) ··· 166
[표5-7] 10월 26일 울산북구 재선거에서 민주노동당의 지지율하락 원인 ········· 173
[표5-8] 민주노동당 발전에 대한 제언 ········································································· 175
[표5-9] 17대 대선 민주노동당 권영길후보 득표율(득표수) 현황 ························· 178
[표5-10] 17대 대선시 각당 지지층의 투표율 현황 ·················································· 178
[표5-11] 17대 대선시 지지정당별 각 후보 지지도 여론조사 결과(%) ··············· 179
[표5-12] 17대 대선에서 권영길 후보 투표하지 않은 이유 여론조사결과(%) ··· 181
[표5-13] 17대 대선이후 민주노동당 혁신과제 우선순위도 여론조사 결과(%) ···· 181
[표5-14] 민주노동당을 지지했던 이유 ········································································· 184
[표5-15] 민주노동당의 지지철회 이유 ········································································· 185
[표5-16] 민주노동당 발전에 대한 제언 ······································································· 186
[표6-1] 한국의 산업별 고용구조 변화(1965~2000/단위:1,000명) ······················ 197
[표6-2] 한국 계급구조의 변동: 1960~2004 ····························································· 198
[표6-3] 각국의 노조조직률 비교 ··················································································· 200

【그림 차례】
[그림2-1] 정당기능의 세 수준 모델 ··············································································· 31
[그림2-2] 대중정당모델 ····································································································· 31
[그림2-3] 원내정당모델 ····································································································· 31
[그림2-4] 민주노동당 성격변화 전개도 ········································································· 43
[그림3-1] 민주노동당 2004년 원내진출 이전 조직도 ················································ 65
[그림3-2] 2004년 원내진출 이후 민주노동당 조직도 ················································ 65
[그림3-3] 2004년 1월~4월 민주노동당 지지율 추이(%) 그래프 ···························· 75
[그림4-1] 연도별 민주노동당 당원 수 그래프(명) ······················································ 90
[그림4-2] 당비납부 의무이행 진성당원 비율(%) 그래프 ··········································· 92
[그림4-3] 중앙당 총수입 중 당비점유 비율 그래프(%) ············································· 93
[그림4-4] 연도별 4/4분기 민주노동당 당원 증가율 그래프(%) ······························· 94
[그림4-5] 연도별 당원대비 민주노총 구성비율 및 증가율 그래프(%) ··················· 95
[그림4-6] 2004년~2007년 민주노동당 당원 탈당율 증가 추이 그래프(%) ······ 101
[그림4-7] 연도별 평균 민주노동당 정당 지지도 추이(%) ······································ 109
[그림4-8] 민주노동당의 문제점에 대한 여론조사 결과(%) ···································· 113
[그림4-9] 민주노동당 국회의원들의 의정활동에 대한 문제점 여론조사결과(%) 그래프···· 114
[그림4-10] 민주노동당과 민주노총 관계에 대한 여론조사 결과(%) 그래프 ······ 115
[그림4-11] 민주노동당의 발전방향: 이념성 vs 다양성 ··········································· 118
[그림4-12] 민주노동당 당원 2007년 대선후보선출방식 선호도(%) ····················· 141
[그림4-13] 2007년 대선후보선출시 당원의 고려사항(%) ······································· 141
[그림4-14] 민주노동당 대선후보선출방법에 대한 대국민 선호도(%) ·················· 141
[그림5-1] 민주노동당 균열축에 따른 지지율 순위 ··················································· 164
[그림5-2] 연도별 비정규직의 규모와 추세선 ····························································· 165
[그림5-3] 17대 대선시 각당 지지층의 투표율 그래프(%) ······································ 179
[그림5-4] 17대 대선시 각 지지층별 정당후보에 대한 충성도(%) 그래프 ·········· 180
[그림5-5] 민주노동당 지지층의 대선후보자별 투표현황 여론조사결과(%) 그래프 ··· 180
[그림5-6] 17대 대선이후 민주노동당 혁신과제 우선순위도 여론조사결과 그래프(%) ···· 185
[그림6-1] 노동조합 조직률 및 조합원수 추이 ··························································· 198
[그림6-2] 민주노총 조합원수 연도별 현황(명) ·························································· 199