조약 해석에서 문맥과 함께 참작되어야 하는 추후합의와 추후관행의 의미: ILC의 작업 내용을 예시적으로 WTO협정의 해석에 적용
The meaning of subsequent agreement and subsequent practice to be taken into account together with the context: The International Law Commission's work and the interpretation of WTO Agreements
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1969년 조약법에 관한 비엔나협약(Vienna Convention on the Law of Treaties of 1969) 제31조는 조약의 해석에 관한 일반규칙을 규정하고 있다. 동 조 제1항부터 제3항은 ‘하나의 통합된 해석과정’을 구성한다. 동 조 제3항은 문맥과 함께 참작되어야 할 세 가지 요소를 언급하고 있는데 이 논문은 그 중 (a)호의 추후합의와 (b)호의 추후관행에 관한 것이다. 조약이 체결된 후 시간이 흐름에 따라 조약당사국의 필요, 조약을 둘러싼 상황 및 국제법 그 자체까지도 변화를 겪게 된다. 조약을 통하여 수립된 당사국 간 합의가 유의미하게 유지되기 위해서는 조약이 추후발전사항에 적응할 수 있어야 한다. 제3항의 추후합의와 추후관행은 조약 체결 이후의 추후발전사항이 조약해석과정에서 참작되도록 한다는 데에 의미를 갖는다. UN 국제법위원회(ILC)는 최근 “조약 해석에 관한 추후합의와 추후관행(Subsequent agreements and subsequent practice in relation to the interpretation of treaties)”이라는 주제로 5개의 잠정적인 결론과 이에 대한 주석을 채택하였다. 이 작업은 조약 해석의 일반규칙 및 수단(결론초안 1), 진정한 해석수단으로서의 추후합의와 추후관행(결론초안 2), 시간에 따라 발전할 수 있는 조약 용어의 해석(결론초안 3), 추후합의와 추후관행의 정의(결론초안 4) 및 추후관행의 귀속(결론초안 5)과 관련하여 법의 내용을 보다 명확하게 제시하고 있다. 이 논문이 다루고자 하는 문제는 ILC의 최근 작업의 잠정적인 결과가 WTO 협정의 해석에 있어서 어떠한 의미를 갖는지를 분석하는 것이다. 이를 위하여 추후합의와 추후관행에 관한 ILC 최근 작업을 분석하고[II.] 이를 바탕으로 WTO 협정의 해석에 참작되어야 할 추후합의와 추후관행 및 이에 인접한 다른 해석요소들을 살펴본다[III.]. II.에서는 (i) 추후합의와 추후관행이 진정한 해석수단이라는 점과 이때에 진정함이란 당사국의 공동의 의사를 반영함을 의미한다는 점, (ii) 추후합의의 정의와 요건, (iii) 추후관행의 정의와 요건, 특히 추후관행이 국가에 귀속되는 행위에 의해 구성된다는 점, 그리고 (iv) 국가에 귀속되는 행위가 아닌 다른 국제행위자, 즉 국제기구나 비정구기구의 행위로서 조약 체결 후에 발전되었으며 조약 해석에 관련성을 갖는 행위가 추후관행과 어떠한 관계를 갖는지에 초점을 맞추어 분석한다. 이를 토대로 III.에서는 (i) WTO 협정 제IX:3조에 따라 각료회의 또는 일반이사회가 채택하는 유권적 해석, (ii) WTO 회원국에 귀속되는 추후관행, (iii) WTO 기관의 결정, 권고 및 기타 문서가 각각 ILC 결론초안에서 정하고 있는 바에 따른 당사국의 추후합의 또는 추후관행에 해당하는지, 아니면 이와 인접한 다른 해석요소로서 의미를 갖는지를 분석한다.
Abstract
The Vienna Convention on the Law of Treaties of 1969 provides for the general rule of interpretation in Article 31. Paragraphs 1 through 3 of the article make up 'a single combined operation' of interpretation. Among them, paragraph 3 refers to the three interpretative elements or means of interpretation to be taken into account together with the context. Among the three interpretative elements, this article looks into subsequent agreement under sub-paragraph (a) and subsequent practice under sub-paragraph (b). The two interpretative elements suggests that "subsequent developments" made after the conclusion of a treaty have bearings on its interpretation. As time goes by, circumstances surrounding the treaty and the international law itself undergo changes while the text of the treaty stay fixed. In order for the agreement of the State parties as established by the treaty remain meaningful amid such changes, the treaty should be able to adapt to such subsequent developments. The International Law Commission of the United Nations has recently adopted provisionally five(5) draft conclusions and their commentaries on the topic of "Subsequent agreements and subsequent practice in relation to the interpretation of treaties". This work suggests clearer guidelines on issues including the general rule and means of treaty interpretation(Conclusion 1), subsequent agreements and subsequent practice as authentic means of interpretation(Conclusion 2), interpretation of treaty terms as capable of evolving over time(Conclusion 3), definition of subsequent agreement and subsequent practice(Conclusion 4) and attribution of subsequent practice(Conclusion 5). The purpose of this article is to analyse the significance of the tentative conclusions from ILC's recent work on the interpretation of the WTO Agreements. With this purpose, the article reviews and analyses the provisional conclusions of the ILC's recent work(Part II) and then examines subsequent agreement and subsequent practice to be taken into account for interpreting the WTO Agreement as well as other related interpretative elements(Part III). In Part II, analysis focuses on (i) the finding that subsequent agreement and subsequent practice are authentic means of interpretation, and that the word "authentic" refers to the common intention of the parties, (ii) the definition and requirement of subsequent agreement, (iii) the definition and requirement of subsequent practice, especially that subsequent practice consists of conducts attributable to states, and (iv) the relationship between the subsequent practice attributable to states and the practice of international actors other than states such as international organizations and non-governmental organizations that have been developed after the conclusion of the treaty being interpreted and that are relevant for the interpretation of that treaty. Based on this analysis, Part III deals with (i) the authoritative interpretation adopted by the Ministerial Conference or the General Council under Article IX:3 of the WTO Agreement, (ii) the subsequent practice attributable to the WTO member states, (iii) the decisions, recommendations and other instruments adopted or made by the organs of the WTO.
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