TPP 협상과 수산보조금 문제의 재등장 - “포괄적 금지조항”을 통한 보조금 협정 확대 적용 -
TPP Negotiation and Fisheries Subsidies - Loopholes in the Suggested“Catch All”Provision and Alternatives for Improvement
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현재 진행 중인 TPP 협정 논의에서 검토되고 있는 수산보조금 포괄적 금지조항은 법리적으로 중요한 의의를 내포하고 있으며, 다양한 측면에서의 함의를 제시하고 있다. 따라서 이 조항의 도입에 앞서 이러한 여러 측면에 대한 신중한 검토가 선행되어야 한다. 그러나 현재 제시된 TPP 협정안에 포함된 포괄적 금지조항은 핵심개념의 광범위성과 모호성으로 인하여 여러 정부 지원조치를 잠재적 금지보조금으로 규율할 수 있는 불합리성과 비현실성을 내포하고 있다. 이러한 상황은 결국 여러 회원국들을 TPP 협정의 잠재적 위반 국가로 전락시켜 국가 간 분쟁을 초래할 가능성이 농후하다. 이러한 비현실적인 조항은 또한 한편으로 각국이 보이지 않는 방법으로 불법적인 지원조치를 유지하도록 하는 유인으로 작용하여 결국 현재의 어족자원 고갈 상태는 더욱 심화될 것이다. 이러한 점을 염두에 두고 향후 TPP 협상에서 포괄적 금지조항을 보다 구체적으로 논의하게 되면 이 조항이 법리적･과학적 측면에서 운용 가능할 수 있도록 정치하고 체계적으로 도입되도록 보장하여야 한다. 특히 이 문제는 그 동안 우리나라가 WTO DDA 수산보조금 협상 과정에서 지속적으로 제기하여 온 주장 내지 논거와 밀접히 맞닿아 있는 바, 그러한 부분이 TPP 맥락에서도 최대한 반영될 수 있도록 다양한 방안이 강구되어야 한다. 현재 TPP 협정안에 포함된 것은 DDA 수산보조금 협상과정에서 우리나라와 다른 입장을 견지하여 온 미국, 호주 등의 입장이 상당 부분 반영되어 있는 상황이기 때문이다. 나아가 현재 검토되는 TPP 협정의 수산보조금 규정 특히 포괄적 금지조항은 그 기본틀을 이루는 WTO 보조금 협정의 기본 법리와 원칙에 최대한 부합하는 방향으로 도입되어야 한다. 특히 TPP 협정에서 이러한 금지보조금 규정이 새로이 도입되면 그간 이 문제가 논의되어 온 FAO나 여타 국제수산기구와는 달리 강력한 법적 규범력을 보유하고 있는 분쟁해결절차에 회부되는 길이 열리게 된다는 점에 유념하여야 한다.
Abstract
The recently released draft text of the TPP includes a “catch all” provision in the fisheries subsidies part. This provision basically prohibits TPP countries' subsidy programs that support fishing activities targeting fish stocks in an overfished condition. This is in fact the resurrection of a similar provision being discussed in the context of the WTO DDA fisheries subsidies negotiations as can be found in the 2007 Proposed Text of the Rules Negotiation Chair. As the suggested “catch all” provision included in the TPP draft text apparently contains ambiguous terms and indeterminate conditions that have been criticized in the DDA fisheries subsidies negotiations, it is imperative that this provision be further clarified and fine-tuned during the final stage of the TPP negotiations in 2014. As the provision currently stands, depending upon the fish stocks and governments at issue, it can apply to a wide range of governmental programs and designate them as prohibited subsidies. Considering the extremely broad nature of the provision, sufficient attention and discussions should be ensured so as to guarantee that this provision can properly operate in practice, both legally and scientifically. From the perspective of legal issues, the present “catch all” provision in the TPP arguably constitutes a significant departure from the basic principles and architecture of the SCM Agreement such that it is not entirely clear whether and how it can operate in actual disputes and dispute settlement proceedings. With this in mind, the terms and conditions of the provision should be formulated in a way that are compatible with and verifiable by the current methodology of marine science. Only a properly designed fisheries subsidies norms and a catch all provision will be able to deter the deteriorating conditions of the global fish stocks. This paper aims to provide new ideas and suggestions to fill the loopholes in the suggested catch all provision in the TPP text and, ultimately, to attain the crucial goal of protecting depleting global fish stocks.
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