아세안 국가의 인도차이나 난민 정책에 대한 연구(1975-1996)
Refugee Policies of ASEAN States During the Indochinese Refugee Crisis (1975-1996)
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이 연구의 목적은 인도차이나 난민의 1차적인 목적지였던 역내의 1차 비호 국가 중 아세안 5개국의 난민 정책과 그 특징 및 형성 요인에 대한 고찰이다. 이 연구에서는 세 가지에 초점을 맞추어 아세안 국가의 인도차이나 난민 정책에 접근하고자 한다. 첫째, 냉전적 맥락이 각국의 정책에 끼친 영향이다. 아세안 국가들은 친서방·반공 노선을 견지하고 있었지만 이들의 난민 정책은 같은 반공 국가인 미국과는 상당히 달랐다. 미국은 공산 국가 출신의 귀순자를 우대하던 ‘적대에 기초한 환대’를 인도차이나 난민들에게도 적용해야 한다고 주장했지만, 아세안 국가들은 이에 동의하지 않았다. 둘째, 아세안 국가가 인도차이나 난민에 대한 정책을 정당화하기 위해 이용한, 난민의 행위자성과 관련된 주장이다. 1970년대 보트피플 위기 당시 아세안 국가들은 난민에 대해 ‘베트남 정부가 고의적으로 유출시킨 인구’라고 하며 행위자성을 부정하거나, 아니면 어떤 이유로 나왔는지는 불문에 부친 채 ‘불법이민자’라고 하며 그들이 비호 제공 대상자인 난민이 아니라는 점을 강조하려고 했다. 이주의 원인보다는 이주의 방식에만 주목하려고 했던 아세안 국가들의 시각은 오늘날 역내의 난민 대응에도 반영되어 있다. 셋째, 인도차이나 난민 문제에 대한 아세안 국가들의 주체적 대응이다. 이는 아세안이 과거에 인도차이나 난민에 대한 국제적 합의를 추동했듯이 오늘날에도 난민 문제와 관련하여 주도적으로 사태 해결의 실마리를 찾을 수 있는 역량을 갖고 있음을 보여 주는 증거이기도 하다.
Abstract
The aim of this study is to investigate the policies of first-asylum countries, the immediate destinations of refugees who had escaped Indochinese countries, with looking into the nature of these policies and the way they were constructed. Specifically, this study will focus on three aspects of refugee policies of five ASEAN countries. The first aspect is the impacts of the Cold War context on refugee policies. Although ASEAN countries shared a pro-West and anti-Communist position, their refugee policies were significantly different from policies of the anti-Communist United States. The United States wanted to put Indochinese refugees in the framework of ‘hospitality-based-on-hostility’ - which means better treatment for escapees from Communist states; the ASEAN countries disagreed. The second aspect is the argument on the agency of refugees put forward by ASEAN governments to justify their policies. During the boat people crisis of the 1970s, ASEAN governments used to deny the agency of refugees, labeling them ‘the population intentionally flown out by the Vietnamese government’, or call them ‘illegal immigrants’, regardless of their motivations of migration. These labels were used to highlight that the boat people were different from genuine refugees who deserved asylum. ASEAN’s focus on the mode of migration, rather than the backgrounds to migration, still frames the responses to refugee flows in the region. The third aspect is that the ASEAN governments drove international agreements on Indochinese refugees, which shows that ASEAN is capable of taking a leading role in finding solutions to regional refugee crises.
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