북-남 지역경제통합과 노동·환경 격차 해소를 위한 개발협력: NAFTA 사례를 중심으로
North-South regional economic integration and Development Cooperation for solving the development gaps in the field of labor and environment: Focused on NAFTA case
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본 논문은 자유무역협정에 기반한 NAFTA 지역경제통합의 비시장적 요소, 즉 노동과 환경의 개발격차 해소를 위한 지역적 차원의 협력을 다룬다. 지역적 차원의 초국가적 제도 형성보다는 경제적· 사회적 영역에 대한 세세한 규칙에 기반한 NAFTA에서 노동·환경 협력은 북미노동협력협정, 북미환경협정에 의해 규정되었다. 노조, 환경단체, 시민단체 등 비정부행위자들은 시민청원제도를 통해 ‘규칙’ 준수에 대한 요청과 아울러 ‘규칙’의 정당성에 대해 문제제기를 함으로써 지역적 차원의 협력과 연대를 추진하였다. 규칙을 둘러싼 협력과 쟁투에 있어 노동협력이 민족적 제도의 한계에 부딪힌 반면, 환경협력은 준-지역적 협력체계의 구축과 비정부행위자의 권한 강화의 가능성을 보여주었다. 양자간의 차이에도 불구하고 회원국간 노동·환경 격차를 줄이기 위한 ‘규칙의 정치화’는 일종의 ‘사회정의’를 요구하는 사회운동의 형태로 전개된 점에 있어 유사하다. 이러한 지역적 협력의 양상은 인프라개발, 인적자원 개발 등 노동·환경에 대한 통상의 ‘국제개발협력’과는 차별적이다. 그러나 지역개발협력대상이 비시장적 요소인 노동과 환경에 집중된다고 할 때 우리는 NAFTA에서의 규칙을 둘러싼 민간주도의 쟁투와 지역협력으로서의 사회운동을 광의의 ‘개발협력’으로 포착할 수 있다. 요컨대 NAFTA는 노동·환경 격차와 무역연계에서 출발한 ‘규칙’들이 민간중심의 ‘아래로부터의’ 개발협력의 장을 제공하며 그 가능성과 한계를 보여준 사례이다.
Abstract
This paper deals with regional cooperation to narrow the development gap of non -market factors(labor and environment) in NAFTA. Labor and environmental cooperation in NAFTA, which is characterized by detailed rules for economic and social areas rather than formation of transnational institutions, was based on the NAALC and NAAEC. Non-governmental actors, mainly unions, environmental groups, and civic groups, promoted cooperation and solidarity at the regional level by raising the issue of compliance and legitimacy of 'rules' through the citizen petition mechanism. While environmental cooperation showed the possibility of establishing regional cooperation system, labor cooperation faced institutional limitations. Nonetheless, the 'politicizing of the rules' to reduce the development gap in the field of labor and environment has developed in the form of social movements. This aspect of NAFTA's regional cooperation is different from ordinary 'international development cooperation' on labor and environment such as infrastructure development and human resource development. However, as the main target of development cooperation concentrates on the labor(human resource) and environment(physical connectivity), we consider these civil-led dispute over the rules in NAFTA and regional cooperation as broad development cooperation. In short, NAFTA has shown the possibilities and limitations of the 'rules' that originated from the trade linkage of the labor and environmental gap, providing social-economic spaces for private-centered 'development cooperation' from below.
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