EU 디지털 시장법(Digital Markets Act)에 대한 분석과 독점규제법 및 개인정보보호와의 관계에 관한 고찰
A Critical Analysis of the EU Digital Markets Act: The Interplay Between Competition Law and Data Privacy
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디지털 경제로의 전환이 가속화되면서 소수의 빅테크 기업들의 시장 독과점 현상이 심화되고 있다. 특히 해당 기업들의 사회적, 정치적 영향력이 전세계적으로 확대되면서 온라인 플랫폼 규제의 필요성에 대한 인식이 높아졌고, 세계 주요국은 각종 정책과 입법안을 발표하고 있다. 그 중 최근 합의에 이르러 2023년 전면시행 예정인 유럽연합의 디지털 시장법(Digital Markets Act, 이하 DMA)은 GDPR 이후 디지털 산업에 가장 큰 영향을 미칠 규제로 평가되고 있는 만큼, 본 연구는 2022년 5월 발표된 최종 법안을 바탕으로 DMA의 특징과 주요 개념을 분석하고 이를 통해 독점규제법 및 개인정보보호와의 관계를 평가하였다. DMA는 기존 독점규제법과는 달리 특정 온라인 플랫폼 기업을 ‘게이트키퍼(gatekeeper)’로 지정하여 이들에게 사전적 ‘의무(obligations)’를 부과하는 혁신적인 형식을 취하고 있으며, 이를 통해 유럽연합 디지털 시장의 경합성과 공정성을 강화하는 것을 목적으로 한다. 게이트키퍼의 지정부터 의무 준수 모니터링 및 위반 시 처벌까지 모든 집행에 대한 권한은 유럽연합 집행위원회(European Commission)가 갖는다. 이러한 중앙집권적 집행 형태는 기존의 유럽연합 법과 비교되며, 효과적인 집행을 위해서는 디지털 시장 내 ‘법집행의 생태계’를 형성해야할 것으로 보인다. DMA는 기존 독점규제법과는 상호보완적이지만 다른 목적을 지향한다고 명시하고 있는데, 실제 사안에서 DMA와 유럽연합 독점규제법의 동시 위반 시 일사부재리 원칙의 적용이 문제될 수 있고 개별 회원국 내 독점규제기관과의 긴밀한 협조도 이루어져야 한다. 독과점규제와 개인정보보호와의 관계에 관해 고전적 견해는 양자간 직접적인 관계가 없다고 보았지만, 디지털 시장에서 개인정보의 중요성이 커지면서 개인정보보호와 독과점규제는 밀접한 관련이 있으며 독과점규제 시 개인정보보호의 정도도 판단대상에 포함되어야 한다는 견해가 각광받고 있다. DMA도 이러한 입장을 취하면서 게이트키퍼 기업에게 명시적인 동의 없는 개인정보 처리 금지와 데이터 이동권 보장 의무 등을 부과하고 GDPR과의 조화 및 협력을 명시함으로써 디지털 시장 내 공정한 경쟁 보장을 위해 개인정보보호가 필수라는 점을 강조하였다. DMA의 시행으로 인해 유럽연합의 규제가 세계 표준이 되는 ‘브뤼셀 효과’는 더욱 강화될 것으로 보이며, 이로 인한 전세계 디지털 산업의 변화와 가장 많은 빅테크 기업을 보유한 미국의 디지털 산업 규제 움직임을 모니터링하는 것이 향후 중요한 과제이다.
Abstract
As the detrimental effects of the digital economy being dominated by a small number of big tech companies have become apparent, there is a growing consensus that regulating these dominant platforms is no longer a choice but a necessity. Among the myriad of policy and regulatory proposals, the European Union (EU) has been the leading voice, culminating in its recent agreement on the Digital Markets Act (DMA) which is scheduled to enter into full effect in 2023. With the DMA being poised to become the most influential piece of legislation from the EU since the GDPR, this study provides a critical analysis of the final text of DMA and also investigates its relationship with competition law and data privacy. DMA is revolutionary because it introduces ex ante “obligations” for “gatekeepers” in the digital market and thereby aims to ensure contestability and fairness of the market. Since the European Commission has full regulatory power to enforce the DMA, in order to ensure effective enforcement, the Commission should form a “regulatory ecosystem” including other stakeholders in the digital market. The DMA states that its objective is complementary to but different from that of competition law. However, it is possible that parallel actions between the DMA and TFEU Article 102 might infringe the ne bis in idem principle. Also, regulatory conflict with a national competition authority should be avoided, and cooperation must be ensured. While some in the antitrust field considered data privacy as a non-economic objective, emerging views argue that degraded data privacy creates consumer detriment and undermines market competition. Thus, data privacy should be an important consideration in competition law. The EU and DMA appear to adopt this view, and DMA includes aspects of data privacy in its obligations for gatekeepers and emphasizes cooperation with GDPR. As DMA is expected to further strengthen the “Brussels Effect,” it remains critical to monitor its influence on digital markets and the regulatory practices of key jurisdictions around the world.
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