신라 ‘1官職 2官人制’의 성립 배경과 전개

Silla’s System to Appoint Two People into Each Public Post: Its Background and Development

신라의 官府·官職 운영에서 다수 관부의 장관을 2인으로 한 것(장관 복수제)은 한 사람이 여러 관부의 장관을 겸직한 것(장관 겸직제)과 더불어 신라 관제의 특징적인 면으로 일찍부터 주목받았다. 이러한 장관 복수제의 발생원인 및 운영목적에 대해 대다수 선행연구들은 권력의 상호견제 및 합의제적 정치운영과 밀접한 관련이 있을 것으로 추정했다. 이 글에서는 5~6세기 금석문에 보이는, ‘1개 관직에 탁부·사탁부 각 1인 임명 양상’과 ‘장관 복수제를 비롯한 1관직 2관인제’의 관련성을 검토하고, 나아가 中代·下代의 전개과정과 고려로의 계승문제를 살펴보았다. 1관직 2관인제는 部體制 시기 각 직임에 탁부와 사탁부 소속의 동일한 官等소지자 각 1인을 임명하던 방식이 후대의 관부·관직 설치 시에도 계승되어 성립한 것으로 여겨진다. 이후 중대 관제 개편 시 執事部 등에 원래 장관 역할을 하던 卿(차관) 2인 위에 令(장관) 1인을 추가로 설치하였고 새로이 생겨난 관서에도 1인 장관제를 취하기도 하였으나, 결국 다수의 관부는 신라 멸망 시까지 장관 복수제가 유지되었고, 나아가 고려 건국 후에도 재등장하여 경종代까지 이어진 것을 확인할 수 있다.

In Silla, two people were appointed to head the same department in its management of public departments and posts(multiple ministers system). Many of its public departments had two ministers. This system started to attract attention as a characteristic aspect of Silla's administration early on along with the concurrent offices system for ministers, which means that a minister was allowed to head more than one department. A majority of previous studies estimated that the cause and purpose of the multiple ministers system were closely related to mutual check of power and collegiate political operation. This study set out to review relations between the “pattern of appointing one Takbu and one Satakbu for a single public post” and the “systems of two government officials for a single public post including the multiple ministers system” on epigraphs from the fifth and sixth century. It further aimed to examine the developmental process during the Jung and Ha periods and the issue of succession into Goryeo. The system of two government officials for a single public post” inherited the practice of appointing one from Takbu and the other from Satakbu in the same official rank to each post during the years of the Bu system when later generations of public departments and posts were installed. The reorganization of Silla's administration during the Jung period saw the addition of one Ryeong(minister) to two Gyeongs(vice-ministers) that used to play the roles of a minister in Jipsabu and other departments. The single minister system was applied to new government offices, but many of Silla's public departments kept the multiple ministers system till the fall of Silla. The system reappeared after the foundation of Goryeo and continued into the reign of King Gyeongjong.