규제기구의 기능확장을 통한 유럽연합 경찰사법협력의 초국가화: 동인, 과정 및 의미
Transnationalization of EU Police and Judicial Cooperation through Functional Expansion of Regulatory Agencies: Drivers, Processes and Meanings
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초록
유럽연합에서 범죄에 관한 경찰사법협력(PJCCM)은 필연적으로 국가의 주권제약을 야기하므로 민주주의, 법치 그리고 유럽적 가치에 있어 회원국과 유럽연합간 합의가 선행되어야 한다. 또한 유럽연합 차원의 경찰사법협력의 실행에서는 국내정책과 사법시스템에 지대한 영향을 미치므로, 회원국 사법기관간 수평적 협력이 요구된다. 이러한 이유로 회원국은 경찰사법 분야는 독립된 형태와 권한을 갖는 정부간 기구를 통한 정책실행을 의도하여 유럽경찰국(Europol) 유럽연합사법기구(Eurojust) 및 유럽검찰청(EPPO) 등 여러 경찰사법기구를 잇따라 출범하였다. 그러나 시간이 경과하면서 이들 기구들은 점증하는 기능적 요구와 외부의 돌발상황 등으로 독립적 권한을 행사하는 규제기구(regulatory agencies)로 발전하였다. 반면에 유럽검찰청(EPPO)은 회원국이 반드시 요구되는 사안으로 피할 수 없는 현실적 요구에 직면하여, 주권영역의 일부를 새로운 초국가 기구에 위임한 사례이다. 따라서 유럽검찰청은 정부간 기구 형태로 시작된 유럽경찰국 및 유럽연합사법기구와 태생과 경로의존적 발전과정을 달리한다. 이와 같이 유럽검찰청은 태동부터 유럽적 기구로 출범하였다는 점에서 경찰사법협력의 유럽화가 기 진척되었다는 사실을 반증한다. 이러한 사실에서 유럽연합의 경찰사법협력은 정부간 기구로 출범한 규제기구의 기능 확장 그러고 또 다른 축에서는 태생적으로 초국가적 성격을 갖는 규제기구의 출범에 의해 정책의 초국가화가 진척되었다고 할 수 있다.
Abstract
In the European Union, police and judicial cooperation requires an agreement between member states and the European Union on democracy, the rule of law and European values, along with restrictions on national sovereignty. Cooperation through an intergovernmental agencies is ideal because it has a large impact on domestic policies and the judicial system and requires functional cooperation among domestic judicial institutions. For this reason, a series of police judicial agencies such as the Europol and Eurojust were launched. However, over time, due to functional demands and external emergencies, these agencies developed into independent regulatory agencies. Meanwhile, regulatory agencies in the field of police and judical field were launched as intergovernmental bodies, but their independence was strengthened through functional expansion. On the other hand, the launch of the EPPO is a case in which member states have delegated part of their sovereignty to a new supranational organization in the face of unavoidable realistic demands. Thus, the launch of the EPPO is a huge step forward in the Europeanization of police and judicial cooperation. As such, the European Union's police and judicial cooperation has progressed toward Europeanization through the establishment of a European regulatory body and the expansion of its functions.
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