백신사업 사례를 통해 본 글로벌 거버넌스의 행위자 상호관계 연구: 국가, 국제기구, 비국가 행위자 관계를 중심으로
Interactions between Actors in the Global Vaccine Governance: States, IGOs, and Non-state Actors
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이 논문은 글로벌 거버넌스 내 행위자 사이의 정치적 상호작용을 백신 사업을 중심으로 살펴본다. 글로벌 거버넌스 행위자에 대한 설명은 크게 3가지 모델로 구분된다. (1) 주인-대리인 모델은 국가와 국제기구 및 비국가 행위자 관계를 위계적 관계로 설명하며 행위자 사이의 긴장관계에 주목한다. (2) 오케스트레이션 모델은 국제기구는 비록 국가에 의해 목적이 제한되지만 자율성을 가지고 매개체를 선정하며 매개체가 거버넌스 서비스를 수행하는데 영향력을 행사한다. (3) 다중 이해당사자 파트너십 모델은 국가, 국제기구, 비국가 행위자 사이의 수평적 네트워크 관계에 주목한다. 글로벌 보건 거버넌스에서 국가, 국제기구, 비국가 행위자 상호관계는 상대적으로 수평적이며, 非보건 분야의 행위자들과 자선재단을 포함한 비국가 행위자의 영향력이 높게 나타나고 있다. 전염병 대응과 같은 전통적인 보건 거버넌스에서는 전문기구인 WHO의 집중성이 강하기 때문에 오케스트레이션 모델이 설명력이 높다. 하지만 백신사업 분야에서는 개발협력 행위자와 GAVI, 게이츠 재단 등 비국가 행위자가 이해당사자로서 관여하고 큰 영향력을 발휘한다는 점에서 다중 이해당사자 파트너십 모델이 보다 설득력이 높다. 또한 대북 백신보급사업 사례에서 확인되다시피 위기상황에서는 안보와 같은 주권문제가 정치적 이슈와 주권문제가 행위자간 수평적 파트너십을 압도하는 경우가 발생할 수도 있다는 점에 유의해야 한다.
Abstract
With regard to the interaction between global governance actors, three different models are considered: the principal-agent(PA) model assumes that the relationship between states, IOs and non-state actors is hierarchical, and focuses on the tension between them; The orchestration model pays attention to IOs’ autonomy and focality appearing in the relations with intermediaries; And the multi-stakeholder partnership model emphasizes horizontal network relations among governance actors. In the global health governance, particularly in the response to infectious diseases, the focality and the specialty of the WHO make states to welcome its orchestrator role. In the global vaccine programs, however, various non-health-related IOs (eg. the UNDP and the World Bank) and some influential non-state actors (eg. the GAVI alliance the Gates Foundation) are as influential as the WHO and/or states. The interaction between states, IOs and non-state actors in vaccine programs is much more horizontal compared to that in other fields of global health governance, because those actors engage in vaccine programs not simply as agents or intermediaries but as stake holders. But as evidenced by the cases of vaccine program in North Korea, such horizontal partnerships between actors could be overwhelmed so easily by security- and sovereignty issues in a state of crisis.
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