EU의 공동이민망명정책의 외재화와 그 문제점
Externalization of EU's Common Immigration and Asylum Policy and its problem
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본 논문은 최근 EU의 공동이민망명정책의 특징 중 하나를 외재화(Externalization) 경향으로 보고, 이러한 경향이 불법이민통제 정책을 효과적으로 수행하기 위해 착안되었음을살펴보았다. 제 3국과 제 3자와의 협력을 통한 외재화 정책은 EU가 짊어져야할 책임을 EU 밖으로 전가하고 책임을 회피하려는 경향이 있음을 재입국협정(Readmission Agreement),운송규제(Carrier Sanction) 그리고 보호입국절차(Protected Entry Procedure)와 같은 외재화 사례를 통해 고찰하였다. 1990년 이후에는 유럽개별국가차원 뿐 아니라 EU차원에서공히 이민망명자 유입의 위협적인 측면을 부각시키며 이민통제정책에 주력하지만 본 논문에서는 대량으로 유입되는 이민망명자로 인한 위협 요소보다는 난민에 대한 보호가 제대로 이뤄지지 않아 발생하는 난민에 대한 보호 위기가 더 큰 문제라고 봤다. 유럽이 보호위기를 겪고 있다고 하는 것은 1951년 제네바 난민 협약을 비준한 국가들이 난민 협약의핵심 조항인 송환금지(Non-Refoulement) 조항을 어기는 등 EU가 지금까지 내세웠던 인권존중 보호를 위한 EU 차원의 노력과 역행하는 길을 가고 있기 때문이다. 더욱이 EU가1999년의 템페레 프로그램(Tampere Programme) 발표 이후 추진한 이민통제정책은 불법이민과 난민의 구분을 점점 더 무의미하게 한다. 보호받아야할 대상인 난민은 이민자와동일하게 취급된다. 이는 운송 규제원칙의 이행, 보호입국 절차와 재입국조항을 근거로 이뤄지는 강제 회항 속에서 살펴 볼 수 있다. 또한 이탈리아와 리비아와의 재입국 조항 협력 사례는 EU의 이민망명정책이 공동체화의 경향을 띄고 있지만 여전히 개별회원국 정책에 크게 의존한다는 것을 고찰할 수 있었다.
Abstract
This paper seeks to explore the recent development of externalization trends of the EU's Common Immigration and Asylum Policy which is essentially designed to cope effectively with the flow of illegal migration. Through observation of main instruments of externalization such as Readmission Agreement, Carrier sanction and Protected Entry Procedures, it criticizes the current EU externalization practices. It argues that the Common EU policy with tools mentioned above, aims to keep migrants and asylum seekers out of and far away from the EU, devolving its responsibilities to the third country or to a third person. This paper also argues that despite the development of a EU common response to immigration and asylum-seekers, immigration and asylum policy continue to be marked by reservations, privileging bilateral relations as has been observed in the Italy-Libya cooperation. Thus Sandra Lavenex expressed this as “Communitarization with Hesitation”. The externalization of the EU's common immigration and Asylum policy also risks impacting negatively on the rights of asylum-seekers. Statistics show a continuos decrease of asylum applications in most EU Member States and these same countries are exposed to withdraw from their international commitments regarding refugee protection. Contrary to the general view, this paper argues that EU Member States are not going through a ‘migrant flow crisis’ but rather through a ‘protection crisis’. Frequent violation of non-refoulement principle prescribed in 1951 Geneva Convention on Refugees by intercepting boats heading to Italy and then expel to Libya, a country that has no asylum system and has not signed the Geneva Convention on Refugees is questioning the credibility of the global EU human rights policy as well as immigration and asylum policy.
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