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UNSCR 1540호와 전략물자 중개 통제의 요건

UN Security Council Resolution 1540 and Elements of Brokering Control on Strategic Items

윤덕찬
법무부 (Ministry of Justice)|2007.02|국제법무연구 (Journal of International Legal Affairs)|제73호|pp. 168-210

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참고문헌

키워드

대량살상무기중개WMD수출통제전략물자Strategic Items비확산체제Export ControlNon-ProliferationUNSCR 1540무기 중개이중용도물품Yakou CaseBrokeringArms BrokeringDual-Use Items
주제분류법학

초록

지금까지 전략물자의 수출통제는 WA 등 4개 다자간 수출통제체제를 중심으로 발전돼 왔지만, 전략물자의 중개 통제는 연혁상 ‘무기거래 방지’에서 확대된 ‘재래식무기’의 중개 통제를중심으로 발전해 왔다. 상대적으로 통제의 필요성을 느끼지 못했던 이중용도 물품 거래의중개 통제는 WA, AG, MTCR 등에서 ‘중개인’과 그들의 위장회사에 의해 발생하는 불법수출이 갖는 문제점을 인식하면서부터라 할 수 있다. 여기에 9․11사태를 계기로 촉발된WMD 비확산체제 강화로 지난 2004년 UN 안전보장이사회는 'UNSCR 1540호'를 통해 모든 회원국으로 하여금 중개통제에 대한 국내법규의 완비를 요구하게 됐다. 이에 따라 중개통제에 대한 국제 논의 동향과 무기중개통제제도를 두고 있는 주요 국가의법제를 검토해 보았다. 검토결과 주요 국가들이 운영하는 중개통제제도에는 다소 차이는 있지만, 몇가지 공통 핵심요소와 문제점이 발견됐다. 먼저 공통핵심요소로 효과적 중개통제를위해 ▲통제대상인 중개행위에 대한 명확한 정의 ▲중개인의 등록제도 또는 중개인을 사전조사할 수 있는 제도 ▲개별중개행위에 대한 허가제도와 허가의 명확한 기준 ▲중개인 및중개행위의 모니터링 제도 ▲규정 위반에 대한 처벌 등이 필수적임을 알 수 있었다. 반면 노출된 문제점으로는 자국민 또는 거주자가 해외에서 한 중개행위에 대해 역외 통제규정의 불비로 발생하는 탈법 문제를 들 수 있다. 이를 위해 ‘역외 통제’의 필요성이 대두된다. ‘UNSCR 1540호’에서 중개 통제를 명문으로 요구한 근본 목적이나, 과거 무기 중개에서 악덕중개상들이 행위지를 선택해 불법거래를 함으로써 발생하는 안보에 대한 위협과 무고한희생들을 고려한다면, 자국민의 해외 중개행위에 대해 적절한 역외 통제가 바람직하다고 본다.

Abstract

During the last years, while export control on strategic items including dual-use items and weapons of mass destruction(WMD) has been developed around multilateral export control regimes such as Wassenaar Arrangement(WA), Nuclear Suppliers Group(NSG), Australia Group(AG), Missile Technology Control Regime(MTCR) and Proliferation Security Initiative(PSI), historically brokering control of strategic items has been developed around brokering control of conventional arms that is expanded in control on the international arms deals. For the first time, it has been dealt with brokering issue of dual-use items by the members of multilateral export control regimes, since it was recognized the growing risks posed by illicit trade facilitated by brokers and their's front companies. According as WMD non-proliferation regime is strengthened after 9/11, United Nations Security Council Resolution 1540(UNSCR 1540), adopted in April 2004, requires states to establish domestic control on brokering. Therefore we analyzed discussions on brokering controls in the international organization, inter alia, UN, EU, OSCE and multilateral export control regimes, and compared legislations on arms brokering in certain states. As a result of analyzing, there is some difference with brokering control system between states, but we recognized common key elements and challenge on brokering control. For effective national control systems on brokering, we recognized key elements would include: a clear legal definition on the terms of brokering activities and broker subject to national controls; a registration system on brokers or a screening license applicants; a licensing system on brokering activities and a explicit and comprehensive licensing criteria; monitoring systems, including, inter alia, mandatory record-keeping and reporting on the part of brokering activities; enforcement of penalties for violations of national brokering regulations; international co-operation, including information exchanges between countries. Also we recognized a challenge on brokering control that is the absence of national jurisdiction beyond a state's territory on its citizens' and/or residents' brokering activities conducted abroad. To clear loophole that unscrupulous brokers, wishing to circumvent regulation on brokering taking place within home state, might simply conduct the activity in foreign countries without violating brokering control regulation of the home state, national systems require licenses for extraterritorial brokering activities. If we are understood the objective of UNSCR 1540 regulating illicit brokering, and consider security threats and innocent victims that was resulted in by illegal arms deals through extraterritorial brokering activities in past, it is a necessity for a adequate extraterritorial control on brokering activities conducted abroad by their citizens and permanent residents.

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