UN지구협약의 특징과 가능성: soft law vs. hard law
The features and potentials of United Nations Global Compact: soft law vs. hard law
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기업의 사회적 책임(CSR)의 구현을 도모하는 UN지구협약(UNGC)이 출범한지 10년이 되었다. 본고는 그간 UNGC의 출범과 이후 활동에 대한 논란을 배경으로 하면서, UNGC의 특징과 가능성을 살펴보려 한다. UNGC의 가장 현저한 특징은 그것이 자율주의에 입각하고 있다는 것이다. 물론 UNGC에 가입하는 기업은 UNGC의 원칙을 선언해야 하고 매년 그 원칙의 이행실적을 보고해야 하지만, 가입 자체가 의무적인 것도 아니고 보고서의 내용도 UNGC에 의해서 검토되거나 비평되지 않는다는 점에서 자율주의에 입각하고 있다는 것은 명백하다. 문제는 그러한 자율주의적 방법으로 접근하는 것이 타당한지이다. 일부 의견은 그러한 자율주의는 다국적 기업(TNC)을 “청색세탁”(blue wash)해주는 기능 이상을 할 수 없다고 비판한다. 다른 사람들은 UNGC가 자율주의적 한계가 있긴 하지만, 그것은 hard law로 가는 도정으로서의 의미를 부각함으로써 UNGC의 가치를 인정하고자 한다. 이 두 입장은 공히 hard law야 말로 필요하다는 데 의견의 일치가 있다. 말하자면 자율주의적 접근법은 잘못된 방식이거나 임시적인 방식에 불과하다는 것이다. 본고는 이 두 견해와는 달리 soft law란 개념을 이용하여, 다른 관점에서 UNGC를 평가해보았다. 본고에서 soft law는 “공적인 입법권능이 없는 주체들 간의 자발적 합의에 의해서 형성되는 규범”으로 정의했다. soft law는 오늘날 급격히 증가하고 있는 규범현상으로서 hard law와 다른 독특한 특성과 장점이 있다는 것이다. 그것은 hard law보다 구체적이고 역동적이며, 제대로 설계한다면 hard law보다 실효적일 수도 있다. soft law의 이러한 특성을 고려할 때 UNGC가 자율주의를 택했다는 것은 그 자체로서 비판받을 것은 아니다. 오히려 문제는 UNGC가 soft law로서 제대로 기능을 하고 있는지라는 관점에서 평가하는 것이 필요이다. 이러한 관점에서 UNGC의 그간의 접근법을 비평해 본다면, 몇 가지 문제점이 드러난다. 무엇보다 UNGC는 실효성을 담보하는 장치를 결여하고 있다. 본고는 UNGC가 CSR실천을 위한 실효성을 제고하기 위해서는 세상의 모든 기업을 규제하겠다는 포부를 포기하고, TNC만이라도 규제하겠다는 보다 겸손한 접근이 필요하다고 본다. 아울러 CSR을 경쟁적으로 추구할 수 있도록 하는 사회적 환경을 만드는 것이 중요하다고 본다.
Abstract
10 years have passed since the United Nations Global Compact(UNGC) was launched. With the disputes concerning the effectiveness of UNGC in mind, this article tries to show the main features and the potentials of UNGC. The most conspicuous feature of UNGC is that it is based on the principle of voluntarism. While the participants are required to openly announce their support of the 10 principles of UNGC and to communicate annual report on their progresses in respect of corporate social responsibility(CSR) activities, we still can safely say that UNGC is a voluntary initiative because the participation is not mandatory and the report is not substantially reviewed or controlled by UNGC office. Widely discussed is whether such a voluntarism is appropriate for UN to adapt to promote CSR activities in the globalized world. Some are underestimating UNGC, saying that it is only to "blue wash" transnational corporations that are suffering from crisis regarding their reputation. Others, while admitting that valuntarism is not enough, are supportive to UNGC, saying that it is useful because it paves the way to "hard laws" which will enforce TNCs to abide by social responsibilities. Both the approaches are common in that they believe only in hard law. This article looks into UNGC in a different perspective, using the notion of "soft law", which is defined in this article as "norm made through voluntary agreements among the subjects without official legislative authority". Recently, the understanding of soft law in this way is growing rapidly, especially in the field of CSR, for it has its own characteristics and potentials which can not be found in hard law. Soft law can be context-specific and flexible and, if well-designed, be more effective than hard law. If these characteristics of soft law are recognized, it is not proper to criticize the approach of UNGC only for the reason that it adopted voluntarism. Instead it is necessary to evaluate the achievements and potentials of UNGC from the perspective of soft law. One of the proposals submitted in the article is that UNGC needs to stop trying to promote the CSR activities of "all" the entities, which means that it would be better to focus its resources on the CSR of TNCs. In addition it is important to form a social environment to encourage TNCs to move toward CSR activities voluntarily and competitively, using, for example, hard laws such as international treaties or national laws.
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