한국의 디지털 플랫폼 규제추진에 대한 비판과 대안
A study on criticisms of South Korea's push to regulate digital platforms and suggestions for alternatives
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초록
유럽, 중국, 미국 등 각 나라는 자국의 이익에 부합하게 규제정책을 추진 중이며, 상당 부분 납득할 만하다. 그러나 우리나라의 플랫폼 규제정책은 일관성과 합리성을 상실한 채 최근 10년간 갈피를 못 잡고 있는 듯 보인다. 5-6년 전 규제추진 법안을 보면 플랫폼 사업을 합리적 근거 없이 국가 기간산업처럼 또는 대규모유통사업자처럼 규제하려는 시도를 하다가 2022년에는 자율정책으로 선회하였는데 또 2023년 다시 유럽식 규제법안을 추진중이다. 그러나 유럽이 시행하고자 하는 디지털시장법(DMA)는 다음과 같은 점에서 부적절하다. 첫째, 규제대상인 게이트키퍼 지정의 경직성과 불명확성이다. 게이트키퍼는 시장에서 확고하고 지속적으로 지배적 지위를 누리거나 향후 누릴것이라는 것이 전제되어 있으나, 경험적 사례에 비추어 봤을때 3년간 일정 규모의 지위가 향후에도 시장에서 “확고하고 지속적인 지위”로 이어질지는 너무나 불명확하다. 더불어 데이터 결합 제한 의무, 상호운용성 의무 등은 소비자에게 제공되는 서비스의 품질과 혁신에 해로운 영향을 미칠 수도 있다. 둘째, 플랫폼 시장에 사전규제 의 부적절성이다. 디지털 경제는 특정 영역이 아니라 농업, 운송, 보건, 상거래, 커뮤니케이션 등 전 사회 영역에 걸쳐 부가가치를 높이는 역할을 하고 있으므로 사전규제의 속성인 “특정 영역”을 획정할 수 없다. 또한 규제의 일관성 관점에서 볼 때 DMA의 대상이 되는 게이트키퍼는 비즈니스 모델, 기술, 사용자, 제품/서비스 등이 서로 다르다. 따라서 DMA처럼 판매량과 같은 정량적 지표로 추정되는 모든 '게이트키퍼' 플랫폼에 사전에 획일화된 동일 규제를 적용하는 것은 타당하지 않다. 따라서 본 고에서는 한국의 시장상황에 부합하는 디지털 플랫폼 규제방향으로 1)혁신 위한 사전규제 지양, 2)글로벌 경쟁력 증진, 3) 협력적 정책추진 거버넌스의 설계, 4) 이용자(소비자) 후생 증진의고려, 5) 적극적 자율정책의 증진 등을 제안하였다.
Abstract
Countries like Europe, China, and the U.S. are pursuing regulatory policies that align with their national interests, which is understandable. However, Korea's platform regulatory policy seems to have lost its consistency and rationality and has been hatching in the political situation for the last 10 years. In the last 5-6 years, the regulatory promotion bills have attempted to regulate platform businesses like state-owned enterprises or large-scale retailers without any rational basis, and then turned to self-regulatory policies, and are now promoting European-style regulatory bills like DMA. However, the Digital Market Act (DMA) that Europe wants to implement is inappropriate in the following ways. First, the rigidity and lack of clarity in the designation of regulated gatekeepers. It is assumed that a gatekeeper enjoys or will enjoy a firm and continuing dominant position in the market, but empirical evidence suggests that it is too unclear whether a certain size of position over a three-year period will lead to a "firm and continuing position" in the market in the future. Furthermore, data aggregation restrictions, interoperability obligations, etc. may have a detrimental effect on the quality and innovation of services offered to consumers. Second, the inappropriateness of applying ex ante regulation to platform markets. The digital economy plays a value-added role across all sectors of society, including agriculture, transportation, health, commerce, and communications, rather than in a specific area, so there is no "specific area" for ex ante regulation. And from a regulatory consistency perspective. The most important point of the DMA is that the targeted gatekeepers have different business models, technologies, users, products/services, etc. Therefore, it is not reasonable to apply the same uniform regulation to all "gatekeeper" platforms that are estimated by quantitative indicators such as sales volume like the DMA. Therefore, this article proposes the following directions for regulating digital platforms that are suitable for Korean market conditions: 1) avoidance of pre-regulation for innovation, 2) promotion of global competitiveness, 3) design of cooperative policy promotion governance, 4) consideration of user (consumer) welfare, and 5) promotion of active autonomous policies.
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