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미국의 일방 표적 제재에 대한국제법적 평가와 구제수단

A Legal Analysis of the US Unilateral Targeted Sanctions under International Law

박효민
대한변호사협회 (Korean Bar Associtaion)|2020|인권과 정의 (Human Right and Justice)|제494호|pp. 113-147|DOI 10.22999/hraj..494.202012.006

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참고문헌

키워드

국가책임경제제재미국제재일방제재표적제재금융제재2차제재대응조치국가책임법 초안countermeasureseconomic sanctionsState responsibilitytargeted sanctionsfinancial sanctionsUS sanctionsunilateral sanctionssecondary sanctionsARSIWA
주제분류법학

초록

오늘날에는 국제사회의 다양한 주체들이 적극적으로 경제제재를 부과하고 있다. 경제제재는 원래 전쟁을 효과적으로 수행하기 위하여 전쟁과 함께 발전한 수단이었으나, 각 국의 대외정책으로 무력사용이 불법화된 이후 현재까지 경제제재만이 각 국의 합법적인 대외정책 수단으로 남아있다. 제2차 대전 이후에는 유엔 안전보장이사회가 경제제재를 집단적으로, 주도적으로 부과하였으며, 이 과정에서 경제제재 부과 양상은 많은 변화를 겪었다. 우선 제재대상국 내의 무고한 민간인에 대한 제재의 악영향을 완화하기 위하여 국가전체에 대해 부과하는 ‘포괄제재’로부터 제재대상행위에 책임있는자에 대해 부과하는 ‘표적제재’로 변화하였다. 또한 경제제재는 전통적 방식인 ‘무역에 대한 제재’로부터 ‘금융에 대한 제재’로, 유엔이 부과하는 ‘다자제재’로부터 각 국이 부과하는 ‘일방제재’로 그 중심이 바뀌었다. 더욱이 구소련 붕괴와 미국의 9·11 테러 이후 미국의 과도한 일방제재 부과 관행을 보면 현재 국제사회에서 각 국의 일방제재는 그 어떤 제한 없이 자유롭게 부과할 수 있는 것처럼 보인다. 본 연구는 현재 국제사회에서 빈번하게 부과되는 미국의 ‘일방제재’를 다룬다. 국제법상 제재에 대한 연구는 거의 이루어지지 않았으며, 특히 각 국의 합법적인 외교정책 수단으로 이용 가능한 것으로 알려진 일방제재는 국제법적 분석이 더욱 이루어지지 않은 바, 국제법의 틀을 통해 국내법에 의해 행해지는 일방제재의 합법성을 검토하여, 국제사회에서의 법의 지배 문제를 논의하고자 한다. 구체적으로, 본 연구는 우선 국제법상 명확히 정의되지 않은 ‘제재’란 용어의 의미를 검토하고, 미국 국내법상 제재부과권한을 살펴본 이후, 미국의 일방 표적 제재의 합법성을 ‘국제법상 국가책임’의 관점에서 검토한다. 특히 ‘금융제재’ 및 역외적 효과를 미치는 ‘2차제재’로부터 발생하는 국제법적 문제를 분석하고, 마지막으로 ‘일방 표적 제재’에 대한 개인의 권리구제수단을 검토한다. 본 연구는 각국의 자유에 맡겨진 국내법적 현상으로 보일 수 있는 미국의 일방제재를 미국 국내법적 측면과 국제법적 측면 모두에서 본격적으로 분석한다. 이를 통해 한 국가의 국내법에 근거한 일방제재가 정치·경제적 또는 국내법적 문제만으로 그치는 것이 아니라 국제법적 문제이기도 하다는 점을 지적한다. 또한 각 국의 일방행위가 역외적 영향을 미치며 국제법적 함의를 가지는 경우에는, 그 일방행위를 정확하게 규율하는 국제법이 현재 없더라도, 이를 그 국가의 주권행위라는 이유로 손쉽게 합법성을 인정할 것이 아니라, 국제법상 일반적으로 인정된 원칙으로부터 이에 적용가능한 원칙을 추출해나가고, 이러한 국제법상 원칙을 준수하는 것이 무엇보다 중요하며, 이와 동시에 국제사회에서 국제법상 규율의 공백이 발생한 부분에 대한 관련 원칙을 정립해나가기 위한 노력을 기울이는 것이 중요하며, 바로 이것이야말로 국제사회에서 법의 지배를 형성하는 기초가 된다는 점을 강조하고자 한다.

Abstract

Economic sanctions have been widely used tools for the UN and each State. Although these tools were initially developed to assist the efficient conduct of wars, these have remained as the sole foreign policy tool after the UN Charter prohibited threat or use of force. Economic sanctions have been shifted from comprehensive sanctions to targeted ones to alleviate significant adverse impacts of sanctions on innocent populations in targeted states. Meanwhile, recent trends have shown the rise of unilateral sanctions, financial sanctions, and secondary sanctions. This paper focuses on ‘unilateral targeted sanctions’ imposed by the US and legality of these tools is explored through the framework of international law. This paper first defines the term ‘sanctions’, since the ‘sanctions’ is not a legal term under international law. Then, the legal characteristic of ‘sanctions’ is reviewed. States may impose unilateral sanctions without mandate from the international organization. These measures may be unfriendly but lawful, which are called ‘retorsion’. In contrast, the unlawful sanctions are considered to be ‘countermeasures’ and thus their wrongfulness is precluded provided that they comply with rules for countermeasures. This paper analyzes both the legal framework of the US unilateral sanctions and the legal conditions for countermeasures in ARSIWA and their applicabilities to unilateral sanctions. In specific, legal issues arising from secondary sanctions with extraterritorial effects and financial sanctions are explored in a detailed manner. Essentially, by making these measures applicable to economic operators of third states in their dealings with the targeted state, the sanctioning state is universalizing its sanctions regime and thereby reducing the foreign policy space of third states towards the target state. In the end, secondary sanctions and financial sanctions cannot meet the conditions for countermeasures in ARSIWA. Finally, the paper deals with the potential legal remedies for the targeted persons, which includes invocations via US legal remedies, diplomatic protection, international human rights. The purpose of this paper is to address unilateral sanctions prevalent in the international community have raised not only economic and political issues, but also legal issues under international law. It emphasizes that unilateral actions with extraterritorial impacts should comply with the international law in order to establish the principle of rule of law governing the international community.

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