earticle

영어

This study aims to analyze the policy decision process of the stalking law in Korea. In this study, Kingdon's multiple stream model is used as a vehicle to explore how various institutional and actor factors influence institutional formation through complex interactions. An analysis of the policy decision process that led to the adoption of the Stalking Act in 2021 was used to accomplish this. Four sub-themes are explored in this analysis: problem, policy, and political streams, along with the window of opportunity created by combining these three streams. The analysis results show characteristics of the decision-making process of the Stalking Act. First, there were two criminal cases that had a significant impact on the formation of the problem stream, namely the 'Nth Room' incident that occurred in 2020 and the Nowon-Gu murder case that occurred in early 2022. It was small organizations such as 'Tracker Team Flame' and 'Project Reset' that were the leading policy entrepreneurs in the problem stream. As a second point, the policy stream was established long before the problem stream was conceived. Korean Women's Hotline was the first organization to raise the issue of stalking damage and set the standard for the search for policy alternatives through activities such as collecting stalking statistics and arranging seminars. Among the other important elements of the policy stream is the proposal of a stalking law in the National Assembly. From 1999 to 2021, a total of 24 stalking legislation were proposed. Women's and Children's Human Rights Forum members, like In-soon Nam and Chun-sook Chung, contributed substantially to the search for policy alternatives by proposing stalking bills repeatedly. During debating stalking laws, criminal constitution requirements, behavior categories, and an article about crime not prosecuted against victims' objections were discussed. Third, in the political stream, the #MeToo movement increased public interest in gender violence, political parties revitalized legislative activity related to gender violence, the change of regime resulting from the presidential elections in 2017 and the general elections in 2020 created a favorable climate for enacting the Stalking Act. Key policy entrepreneurs in the political stream include President Moon Jae-in and members of the National Assembly. A consensus was formed between the political parties to enact the stalking law starting with the general election in April 2020, since all political parties pledged to legislate the stalking law. By combining these three streams, a window of opportunity was created that enabled stalking legislation to be enacted. In the final stage of the legislative process, a sudden institutional transformation took place in the legislation and judiciary committee in which the original draft of the Stalking Act was changed into a two-stage approach. The Stalking Act's process of decision-making demonstrates the utility of Kingdon's methodology, which explains the contingency and limited rationality of policy-making by analyzing complex and dynamic interactions between actors.

한국어

본 연구는 2021년 전격 제정된 스토킹처벌법의 정책결정과정을 Kingdon의 다중흐름모형에 근거 하여 분석함으로써 어떻게 다양한 제도적 요소와 행위자요소가 복합적인 상호작용을 통하여 제도형 성에 영향을 미쳤는지 고찰하고자 하였다. 분석은 문제, 정책, 정치흐름의 세 가지 영역, 그리고 이 세 가지 흐름이 결합하면서 열린 기회의 창이라는 네 가지 소주제로 진행되었다. 분석결과는 스토킹 처벌법 제정과정의 몇 가지 특징을 보여준다. 첫 번째, 문제흐름의 본격적 형성에는 2020년 N번방 사건과 2022년 초 발생한 노원구 스토킹살인사건의 두 가지 범죄사건이 큰 영향을 미쳤으며 ‘추적단 불꽃’과 같은 조직이 핵심적인 의제설정 행위자로 등장하였다. 두 번째, 문제흐름 형성 훨씬 이전 시 점에 정책흐름이 형성되었으며 한국여성의전화 등 여성단체와 여성정책연구원 전문가집단, 그리고 남인순, 정춘숙의원 등 국회의 여성·아동인권포럼 소속 국회의원들이 핵심적인 정책사업가로서 정책 대안모색을 주도하였다. 세 번째, 정치흐름에서는 미투운동으로 촉발된 여성폭력범죄에 대한 대중적 관심 외에도 정당들의 여성폭력범죄 관련 의정활동 활성화, 그리고 2017년 문재인대통령의 당선과 2020년 총선에서의 더불어민주당으로의 입법부 다수당의 정권교체 등이 스토킹처벌법 입법의 유리 한 환경을 창출하였다. 이 세 가지 흐름이 결합되면서 궁극적으로 2020년 총선부터 2021년 초까지 기회의 창이 열렸으며 스토킹처벌법 제정이 가능하게 되었다고 할 수 있다. 또한 입법과정의 최종단 계인 법제사법위원회 토론과정에서는 스토킹처벌법의 정부 원안이 스토킹행위와 스토킹범죄로 2원 화되는 전격적인 제도변형이 이루어졌다. 스토킹처벌법 정책결정과정은 행위자 간 복합적이고 역동 적인 상호작용의 분석을 통하여 정책결정의 우연성과 제한적 합리성을 설명하는 Kingdon 방법론의 유용성을 다시 한 번 검증해 준다.