유럽연합의 플랫폼 규제 동향 - “Digital Services Act”와 “New Competition Tool” -
The EU’s Regulatory Approach towards Digital Platform Economies - New Competition Tool and Digital Services Act -
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초록
2020년 6월 2일, 유럽연합 집행위원회(European Commission)는 디지털 서비스법(Digital Services Act, “DSA”) 패키지와 새로운 경쟁법 툴(New Competition Tool, “NCT”)의 도입을 목표로 구체적인로드맵을 담은 규제개시영향평가서(Inception Impact Assessment, “IIA”)와 공개 의견 수렴 절차(public consultation) 개시를 발표하였다. 이들은 기존에 플랫폼 산업에 적용되던 규제 수단들보다 더빠르고 강력한 개입을 목표로 하고 있으며, 유럽의 폭넓은 공감대와 지지를 바탕으로 실제 입법으로이어질 가능성이 높다는 점에서 중요하다. 더욱이 우리나라에서도 최근 비슷한 규제 체계 개편 움직임이 시작된 상황임을 고려할 때 우리가 주로 참고하게 될 유럽연합의 정책 방향과 구체적인 내용을 파악하는 것은 꼭 필요한 작업이라고 볼 수 있다. 이러한 배경에서 이 글은 우리의 플랫폼 규제 체계 개편 논의에 기여하기 위한 목표를 갖고, 디지털 서비스법(DSA)과 새로운 경쟁법 툴(NCT)의 도입 추진 배경, 규제개시영향평가서(IIA)를 통해서밝혀지고 있는 제안의 주요 내용 및 이에 대한 각계의 반응들을 살펴보고 있다. 그리고 이들이 우리의플랫폼 규제 체계 개선에 주는 시사점은 무엇인지에 대해 분석하고 있다. 결론부에서는 다음과 같이 네 가지 시사점들을 정리해보았다. 첫째, 디지털 플랫폼 산업을 중심으로 경쟁 규제 차원에서 수직적 남용(vertical abuse)의 문제가 재조명 받고 있다는 점, 둘째, (유럽연합과 달리) 우리나라의 경우는 플랫폼 규제를 위해서 불공정거래행위 금지 등 기존 제도의 활용 가능성이 크다는 점, 셋째, 새로운 규제 수단의 도입 필요성이 검토되는 경우 헌법 합치성에 대한 면밀한 검토가 필요하다는 점, 넷째, 유럽연합의 플랫폼 규제 움직임을 참고할 때는, 유럽과 달리 우리나라 플랫 폼 시장의 경우 국내 사업자들이 효과적으로 경쟁하고 있으며 시장의 역동성도 충분히 크다는 사실을고려해야 한다는 점 등이다.
Abstract
On 2nd June 2020, the European Commission announced two inception impact assessments as well as the launch of open public consultations inviting comments on a need for a New Competition Tool (“NCT”) and Digital Services Act (“DSA”). These two initiatives are considered to be seminal and consequential in that they are aiming at far earlier and broader intervention, inter alia, in digital markets. Both initiatives are highly likely to be adopted, given Europe’s broad consensus that large online platforms and digital markets should be regulated in a timely and more effective manner. The expected regulations being applied in the European Union (“EU”) is important for not only the block but also South Korea. Korea’s competition authority has recently expressed its intention to introduce new legislation targeting online platforms (tentatively named “Law on Promoting Fairness in Online Trading Platforms”) and set up a task force to develop guidelines on competition law enforcement against unilateral conduct by online platforms. Having regard to this situation, it is fair to say that the EU’s legislative initiatives would be an essential reference for Korea. Against this backdrop, with an aim of contributing to the current debate on the regulatory reform in Korea, this paper overviews the background of the EU’s initiatives and examines details of the policy options being weighed by the Commission. Then, it explores implications of the EU’s movement for Korea’s competition law and policy in the digital economy. In its final conclusion, this paper suggests the meaning and implications of the NCT/DSA discourse for Korea as follows: First, in the digital economy, one of the main concerns revolves around vertical abuse that has long been disregarded in the mainstream discourse in the competition law discipline and this should be taken into account when developing enforcement guidelines on unilateral conduct by online platforms. Second, contrary to the EU, Korea still has the option of utilizing existing measures, e.g. abuse of superior bargaining power provision, without significant regulatory reform. So, before considering any new regulations, the authority should explore ways to use existing rules to cope with new challenges raised from the digital economy. Third, new regulatory measures, such as imposing structural remedies without finding any breach of competition rules, can be considered but it should meet the well-established constitutional legitimacy standard. Forth, it must be carefully regarded that in Korea, as opposed to the EU, several local companies are very active in the digital platform markets, competing with global tech platform operators. In this respect, it could be difficult for regulators to justify the need for additional measures to regulate the digital platform industry in Korea.
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