조선초기의 備邊對策의 수립과 시행 - 재상급 국방전문가의 활약을 중심으로 - (A Study on the Border Defense Policy and the Minister-level National Defense Experts in early Choson Dynasty)

서지정보

· 발행기관 : 조선시대사학회
· 수록지 정보 : 조선시대사학보 / 45호 / 53 ~ 104페이지
· 저자명 : 김순남

초록

조선은 남북방의 이민족들과 밀접한 지리적인 상황 때문에 備邊對策을 강구해야만 했다. 조선의 위정자들은 이 문제가 백성의 안위와 직결된다고 여겨 그것을 국가 중대사로 간주했다. 건국초창기부터 추진된 비변대책의 구체적 내용은 한편으로는 외교적 노력을 통해 회유하고, 또 한편으로는 해당 지역을 조선의 행정구역화하며, 다음으로는 자체 방비를 강화하기 위해 남북방 변경과 연안에 성곽을 축조하는 것이었다. 군사력을 동원하는 물리적인 방법은 가장 바람직하지 않았고, 가능하면 이를 피하고자 했다. 태조대 이후부터 국가 중대사로서의 비변대책은 국가의 최고위 관료들이 담당하고 주도했다. 그런데 재상들을 중심으로 비변대책을 추진하던 구체적인 양상은 각 시기마다 달랐다. 세종대에는 해당 지역에서의 실무경험을 축적한 이른바 고위의 국방 전문가들이 중심이 되었다. 세조대에는 유력 공신들이 적극 활약했다. 성종대에는 북방의 직임을 역임한 전현직 관료들이 지변사재상으로 일컬어지면서 최고위 관료들과 더불어 수립과 추진과정에 참여했다. 이처럼 재상들의 주도로 이루어진 초기의 비변 대책 추진의 역사적 과정은 이후 국방대책기관으로서의 비변사의 설치로 이어질 수 있었다.

영어초록

Choson was geographically surrounded by other ethnic groups. These circumstances led to the establishment of regular interactions with the ethnic groups who resided along its southern and northern borders. In this regard, the Choson government took various steps to avoid military conflict with its neighbors. Nevertheless, invasions on the part of the latter became a regular occurrence. As such conflicts were directly related to the safety and security of the general population, the politicians of Choson regarded the establishment of measures to prevent such incursions, or so-called pibyontach΄aek (備邊對策, border defense measures), as one of the most important national affairs, and as a task which was directly connected to the very existence of the state. All in all, various efforts were made to implement measures related to border defense.
More specifically, the major border defense measures implemented during the initial period following the foundation of Choson included the initiation of a diplomatic engagement policy, incorporation of these areas into the administrative districts of Choson, and the construction of fortresses along the southern and northern borders, as well as in coastal areas, in order to strengthen self-defense functions. To this end, the actual mobilization of military power was regarded as undesirable, and only employed as a final resort.
While the foundation for Choson’s border defense policy was established during the reign of King T΄aejo, in-depth discussions related to this issue began to be carried out during the reign of King T΄aejong. Regarded as a vital national task, the formulation and implementation of border defense measures became the responsibility of high-ranking government officials. Nevertheless, the characteristics of border defense policy and the ministries who implemented them varied during each period. For instance, border defense measures during the mid and late-reign of King Sejong were the responsibility of national defense specialists who had amassed a wide array of experience relating to the border areas. Most of these individuals had either overseen military affairs in their capacity as the tojoljesa(都節制使, provincial governor) of P΄yongando or Hamgildo, or carried out supervisory activities in their function as minister-level pongmyongsasin, suchasthe toch΄ech΄alsa (都體察使, provincial supervisor). As such, specialists in the issue of national defense who possessed a vast body of experience were at the forefront of the border defense policy during the reign of King Sejong. As a result, the measures established during this period were both concrete and effective ones.
Border defense policy was regarded as a national task during the reign of King Sejo. However, the issue of what to do with the northern area was heavily influenced by domestic considerations during the early stages of his reign. The extreme violence that surrounded King Sejo’s seizing of power necessitated that a close eye be kept on local areas. In this regard, the northern area proved to be no exception to this rule. The absence of any political turmoil eventually resulted in additional attention being paid to border defense policy, and especially measures to prepare against a Jurchen invasion from the north, from the middle of the reign of King Sejo onwards. The establishment and implementation of border defense policy during the reign of King Sejo was the domain of powerful meritorious retainers such as Han Myonghoe and Sin Sukchu. King Sejo possessed a style of governance that focused on his management of the majority of national affairs in conjunction with his meritorious retainers. Therefore, it was natural for him to entrust the mission in the northern area, which was considered to be of great importance from both a political and national defense standpoint, to these individuals. These meritorious retainers implemented a strong border defense policy that involved the seizing of complete control over local areas. Therefore, border defense policy during the reign of King Sejo was an issue related to the military and national defense, but a political one as well.
Border defense policy during the early period of the reign of King Songjong was implemented in much the same manner as during the reign of King Sejo. The Wonsangje(院相制, Cabinet System) revolving around meritorious retainers that had been put in place during the reign of King Sejo was also introduced during the regency of the queen mother. Things however began to change from the 6th year of King Songjong onwards. For instance, discussions on border defense policy began to include those who had served as kwanch΄alsa(provincial governor), choldosa(commander), orsuryong(magistrates) in the relevant provinces. Further more, the additional expansion of the scope of the participants to include those who had served as prime minister in the past from the 13th year of King Songjong onwards, resulted in many formergovernment officials who had held functions higher than those of Yongdonnyong(領敦寧, First Minister of the Royal Clan Administration) or who had previous experience as provincial governors, military commanders, or magistrates, participating in the discussions to establish border defense policy. This group was collectively referred to as chibyonsachaesang. Thus, from the middle of the reign of King Songjong onwards, border defense policy was no longer led by a few meritorious subjects, but rather publicly discussed amongst high-ranking officials. In addition, the training of individuals who would some day in the future be responsible for border defense policy was also attempted during this period.
As such, Choson made active efforts to implement border defense policies from its foundation onwards. These efforts for the most part revolved around minister-level government officials. These ministers who played the key role in the implementation of the border defense policies regarded as being so crucial to the security of the state, were either able to draw from a great personal wealth of administrative or military experience in the relevant area, or were directly dispatched to the actual sites in order to effectively implement the measures. The experience they accumulated during such dispatches became an important component of the national policy which was established. The practice of endowing ministers with the task of implementing border defense policies prevalent during early Choson eventually began to fade with the establishment of a national defense agency known as the Pibyonsa(備邊司, Border Defense Council) during the middle period of Choson. The development of this Pibyonsa into a top cabinet position within the government structure during late Choson can be perceived as reminiscent of the characteristics of national governance during early Choson, when border defense policy was regarded as an important national task and special attention was paid to related measures.

참고자료

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