FTA를 통한 노동권 보호: 미국 FTA의 노동규정을 중심으로
Protection of Labor Rights through FTAs: The Practice of Labor Provisions in U.S. FTAs
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무역과 노동의 연계를 통한 노동기준의 개선에 관한 논의는 오래전부터 있어 왔고, 노동규정은 다양한 방식을 통해 무역체제로 편입되었다. 최근에는 미국, EU 등의 FTA에 노동규정을 포함하여 노동권 보호를 꾀하려는 경향이 증가하고 있으며, 이러한 추세는 계속될 것으로 보인다. 본 논고에서는 FTA 노동규정에 대해 가장 적극적인 접근방식을 채택하고 있는 국가 중 하나인 미국을 중심으로 FTA 노동규정을 통한 노동기준의 해석과 적용을 검토하였다. 미국은 NAFTA에서 노동 문제를 다룬 이래로 협정 당사국의 국내 노동기준을 비롯한 국제 노동기준의 준수 의무를 규정하고, 협정의 비준 전과 후에 이러한 의무의 실효적인 집행을 위해 다양한 노력을 하고 있다. 그러나 미국의 FTA 노동규정에 기초한 노동기준의 인정 범위와 그 이행수단의 집행이 해당 국가의 정치･경제적 요소에 따라 자의적이고 불분명하게 해석･적용됨으로써 실효적인 노동기준의 집행이 어렵다는 비판이 있어 왔다. 그리고 현재 미국이 관련된 노동 분쟁의 이행 과정을 고려할 때, 분쟁 상대국의 노동법･정책과 노동환경에 실제적으로 미치는 영향이 제한적이라는 평가도 있다. 물론 FTA 노동규정의 수적 증가가 그 실효적인 집행을 의미하지는 않는다. 그러나 노동과 무역의 연계에 관한 이러한 기존의 연구는 대체적으로 강제적 제재를 통한 집행을 FTA 노동규정의 실효성을 판단하는 잣대로 삼아 분석을 하고 있다. FTA 노동규정은 그 의무의 내용도 분쟁해결절차를 통해 집행가능한 것과 그렇지 못한 것이 공존하며, 노동규정의 집행 메커니즘도 제재를 통한 분쟁해결절차뿐 아니라 당사국이 아닌 사인이 제기할 수 있는 공중의견제출제도 및 협력 절차로 다양하게 구성되어 있다. 그렇기 때문에 강제 제재 차원에서만 FTA 노동규정의 실효성을 판단하는 것은 제한적이다. 미국의 경우에도 노동규정 위반에 대해 제재가 가능한 분쟁해결절차가 마련되어 있으나, 중재패널을 통한 분쟁의 해결보다는 당사국간의 협의 및 합의를 통한 분쟁해결 방법에 중심을 두고 있다는 점을 볼 수 있다. 따라서 무역과 노동의 연계 논의를 실효적으로 이어나가기 위해서는 노동권 보호라는 달성하고자 하는 목적의 실현을 위해 어떠한 규범과 제도적 장치를 택할 것인지를 고민하는 것이 필요하다. 노동권 보호의 목적, 노동 사안의 국내적 민감성, 노동규정 의무의 성격, 노동규정 집행을 위한 메커니즘 등의 요소를 종합적으로 검토하여 FTA 노동규정 논의에 접근하여야 할 것이다.
Abstract
The discussion on the linkage of international trade and labor rights has been around for some time, and labor issues have continued to unfold through different channels. Recent empirical researches have found that bilateral and regional free trade agreements(FTAs) are increasingly including labor provisions in substantial proportion, and this trend expects to be expanding. The U.S. is one of the countries taking active role in incorporating labor issues in the context of trade. The agreements reiterate the commitments included in the 1998 ILO Declaration on Fundamental Principles and Rights at Work and its Follow-Up, especially the freedom of association, the rights to collective bargaining, the elimination of forced labor, the abolition of child labor and the elimination of discrimination in employment. Since the inclusion of labor provisions in NAFTA, the U.S. has regulated the obligation to enforce its national labor laws as well as international labor standards, and to subject these obligations to consultations, public communications, and dispute settlement which can lead to monetary assessments and trade sanctions. There are, however, examinations, showing that these labor provisions in FTAs have weaknesses in terms of enticing strong enforcement process. Furthermore, in light of the current practices of the U.S. with respect to labor disputes, the impact on labor reforms in partner countries has been insignificant. Indeed, mere quantitative increase of labor provisions in FTAs does not guarantee their effective implementation. Nonetheless, it should be noted that these observations employ sanction-based standards as a benchmark for assessing the effectiveness of labor provisions. These provisions consist of both conditional and promotional provisions which may or may not be enforced through hard enforcement procedures, and also the enforcement mechanism is diversly composed of cooperation arrangements, public communications as well as dispute settlement procedures. It is, therefore, restrictive to conclude on their effectiveness on the basis of sanction-based enforcement. The practice of the U.S. also shows that signatories prefer resolving their labor disputes through consultation and cooperation, rather than arbitration panels provided in the dispute settlement procedures. In order to continue the discussion of the linkage between international trade and labor, it is important to acknowledge the appropriate choice of norms and institutional arrangements for promoting the overall objective of protecting labor rights.
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