소수자보호를 위한 보편조약으로서의 인종차별철폐협약
The International Convention on the Elimination of All Forms of Racial Discrimination (ICERD) as a Substantive Universal Treaty for the Protection of Ethnic, Religious or Linguistic Minorities in International Law
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인종, 언어 및 종교상의 소수자 (이하 소수자)를 보호하기 위한 국제적 노력은 역사적으로 계속되어왔지만 실정국제법의 차원에서 이들에 대한 실효적인 보호를 위한 법적, 제도적 장치는 매우 미약한 상태에 여전히 머물고 있다. 지역적 한계를 넘어선 보편조약으로서의 소수자보호조약이 부재한 상태라는점이 이 점을 명확히 말해준다. 시민적.정치적 권리에 관한 국제인권규약(B규약)의 제27조가 이들의 보호를 위한 규정으로 존재하고 있지만 B규약은 일반적인 인권조약으로서 특별히 소수자를 보호하기 위한 조약은 아니다. 물론 소수민족보호를 위한 골격협약 (FCNM)은 소수자보호 문제만을 전적으로 다루고있는 조약이라는 점에서 현존 가장 구체적인 소수자보호 조약으로 작동하고있지만 이 역시 유럽 지역만을 관할하고 있다는 지리적 한계를 안고 있다. 실제 소수자보호 문제가 매우 심각한 상태로 남아있는 유럽 이외의 지역을 고려해본다면 이런 현실은 국제법상의 소수자보호가 얼마나 취약한 상태인가를 여실히 보여준다. 본 논문은 이런 점에 착안하여 보편적인 인권조약으로서 작동해오고 있는모든 형태의 인종차별철폐협약 (ICERD, 이하 ICERD)이 인종, 언어 및 종교상의 소수자보호를 위한 ‘실질적이고’도 ‘사실적인’ 보편조약이 될 수 있다는 점에 주목한다. 이는 ICERD의 이행 감독기관이라고 할 수 있는 인종차별철폐위(CERD, 이하 CERD)의 ICERD에 대한 확장적 해석관행의 전개를 통해 확인할수 있다. 즉 CERD가 ICERD의 당사국보고서 검토를 통해 밝혀온 입장을 검토해보면 ICERD가 실질적인 소수자보호 조약으로서의 보편성을 확보해 나가고있음이 명확해진다. 기본적으로 CERD의 해석관행은 CERD가 ‘인종차별’의 의미를 매우 넓고 다차원적으로 이해하고 있음을 보여주고 있으며 ICERD가 추구하는 ‘인종차별의 철폐’는 형식적인 인종적 기반만을 바탕으로 한 것이 아닌 ‘실질적인 차별’에 대한 철폐까지를 포함한다고 할 수 있다. 특히 언어적소수자 및 종교적 소수자도 ICERD의 보호 대상이 될 수 있다고 파악하고 있는 CERD의 해석관행에 주목할 필요가 있다. 이런 CERD의 해석관행의 전개는 인종, 언어 및 종교상의 소수자보호를 위한 조약으로서 ICERD가 기능함으로서 소수자보호를 위한 국제기준의 공고화에 기여하고 실질적인 소수자보호에도 긍정적인 영향을 크게 미칠 수 있다.
Abstract
From a historical perspective, international efforts in pursuit of the protection ofethnic, religious or linguistic minorities have been made continuously. Nevertheless,the status of the protection of minorities with regard to relevant positive internationallegal standards and enforcement mechanisms remains very weak and insufficient interms of effective protection. The fact that there is no existing universal treatycovering all countries in the world for the protection of minorities gives cleartestament to this negative reality. Article 27 of the International Covenant on Civiland Political Rights (ICCPR) deals with this issue, yet the nature of the ICCPR ismore closely related to the protection of civil and political rights in a general sense,not the treaty for the protection of minorities specifically. Of course, the significanceof the Framework Convention for the Protection of National Minorities (FCNM)within the Council of Europe as a sort of specialized treaty for dealing with theissue of the protection of minorities exclusively with its internal enforcementmechanisms should not be undervalued, yet the FCNM is inherently limited in thesense of the European geographical scope of its application. The fact that manyregions in the world outside of Europe, such as Asia, have provided seriousexamples of the fragile status of minorities indicates that the protection of minorities under international law remains deficient. Despite the urgency for effective minorityprotection at the universal level, the possibility of making a ‘universal treaty’ for theprotection of minorities covering of all countries in the world without geographicallimitation is very unlikely as of today. Bearing this in mind, this article argues that the ICERD could be rather asubstantive as well as de facto universal treaty for the protection of ethnic, religiousor linguistic minorities. This may be supported and confirmed through the analysis ofthe development of interpretative practices of the Committee on the Elimination ofRacial Discrimination (CERD), which is a supervisory and monitoring body for theobservance (or compliance) of treaty obligations of the ICERD by the contractingparties. In other words, it is observable that the CERD has been trying to expandthe scope of application of the ICERD by pursuing an expansive interpretation of themeaning of racial discrimination within the ICERD. In particular, it must be notedthat the CERD has been also developing expansive interpretative practices byembracing the larger grounds for the recognition of the existence of racialdiscrimination, beyond simply ‘race grounds’ in the ICERD, thereby securing effectiveminority protection. The development of these expansive interpretative practices bythe CERD about the meaning of racial discrimination within the ICERD shows thatnot only ethnic but also linguistic or religious minorities may be protected under theICERD. This is quite significant with regard to effective international minorityprotection, as the ICERD has become a de facto universal treaty for the substantiveprotection of minorities in international law.
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