미국 행정절차법상 행정입법절차와그 사법상 통제 * ** 행정입법에 대한 실질적 분류와 절차적 통제 논의를 중심으로

김재선(Kim, Jae Sun) 한국행정법학회 2019 행정법학 Vol.17 No.1

미국 연방헌법은 우리 헌법과 달리 국회의 입법전속권을 규정할 뿐, 행정입법권한에 대하 여는 별도로 규정하지 않았다. 이에 따라 비교적 광범위한 행정입법권이 연방행정부에 부여 되었는데 이에 대한 비판과 규율화는 1946년 연방 행정절차법에 의해 이루어졌다. 연방행정 절차법에 따르면 행정입법(“rule making”)은 “행정부가 법 또는 정책 집행, 해석, 설명 또는 조직, 절차를 위하여 발령하는 모든 일반 또는 특별 성명(statement)”으로 제정절차의 엄격성 정도에 따라 입법적 규칙(legislative rule)과 비입법적 규칙(non-legislative rule)으로 구분된다. 입법적 규칙의 경우, 제정 절차에서 정식 또는 약식의 행정입법절차로 공고 및 의견제출 절차를 거쳐야 하며, 행정입법 소송에서 절차를 미준수한 입법적 규칙에 대해서 당사 자가 효력부인을 주장하는 경우 면제사유(비입법적 규칙, good cause)에 해당하지 않는 한, 효력이 부인된다. 연방행정절차법 도입 이후 행정입법에 대한 절차적 통제는 강화되었으나, 연방정부의 행정입법은 지속적으로 증가하여 1995년부터 2015년까지 약 50%의 행정입법에서 절차가 생략되었다. 이에 대하여 미국 행정법학계에서는 입법적 규칙과 비입법적 규칙 구분기준을 실질과 절차를 함께 평가하여 절차적 통제를 강화하여야 한다는 견해, 실질보다는 형식을 기준 으로 절차적 통제를 강화하여야 한다는 견해, 개별 규정에 따라 이익형량 하여야 한다는 견해 등이 나타나고 있다. 미국 학설과 판례를 분석한 결과, (1) 미국 법원은 절차상 주된 논의의 대상이 되는 정책설명의 경우 대체로 제정절차 뿐만 아니라 그 실질(국민의 권리의무에 미치는 영향, 제정절차, 재량의 정도(법문, 내용을 통한 평가), 예측가능성 정도 등)을 엄격하게 평가한다는 점, (2) 공고 및 의견청취가 행정절차법상 중요한 절차로 규정되었으므로 절차를 기준으로 평가하여야 한다는 견해가 증가하고 있는 것으로 이해된다. 이와 같은 논의는 우리나라에서의 행정입법 형식성 논의와도 유사하게 전개되고 있는데, 미국에서의 논의 중 실질적 판단요소로서 재량의 세분화 방안, 행정입법 제정절차에서 의견 청취절차를 강화하는 방안, 정책설명에 대한 실질심사를 강화하는 방안에 관하여는 일정 부분 참조할 수 있을 것으로 생각된다. The U.S. Constitution, unlike the Constitution of South Korea, does not provide for the administrative legislative power. Under the Constitution, a relatively broad range of administrative legislative power has been granted to the federal administration, which had led to the enactment of the Federal Administrative Procedure Act of 1946. Under the FAPA, rule making is “agency process for formulating, amending, or repealing a rule”, and the rule is “agency statement of general or particular applicability and future effect designed to implement, interpret, or prescribe law or policy or describing the organization, procedure, or practice requirements of an agency”. The rule is categorized as the legislative and non-legislative rules according to the strictness of the APA procedure. After APA’s enactment, although the procedural requirement has been strengthened, the federal administrative legislation has been dramatically increased with almost 50% of the legislative rule process being abridged during 1995-2015. After analyzing the US theories and cases, in case of “general statements of policy”, the US court focus on not only on the legislative process but also on the substance(effect on the rights of the people, discretionary power(text, context), predictability)). This research result would apply to the Korean s situation, which review the administrative legislation under the procedural formality in advance, and then put more emphasis on the substantiality from the right of relief of the people.

개별 행정영역의 행정조사에 있어 영장주의 적용여부에 관한 공법적 고찰 - 행정영장과 closely regulated industry 논의를 중심으로 -

김재선(Kim, Jae Sun) 한국공법학회 2020 공법연구 Vol.48 No.4

과거 행정청의 권력적 행정작용과 유사하게 활용되어 왔던 행정조사는 오늘날 행정행위가 다변화되면서 그 영역과 대상, 내용도 다양해지고 있다. 예컨대 주택법 소방법 등에 근거한 단순 실태조사와 일반적인 법령준수여부에 대한 행정조사, 사회보장 영역에서 사회보장급여 지급여부 결정을 위한 확인 성격의 행정조사, 조세 금융 공정거래 등 공공성이 중요한 영역에서의 법령준수여부에 관한 행정조사 등이 이루어지고 있으며, 조사방법도 현장방문, 문서제출요구, 금융정보 제공요구 등 다양하게 이루어지고 있다. 이에 따라 행정조사 과정에서 피조사자의 권리보호를 위한 절차적 수단으로 헌법상 적법절차의 원칙이 논의되며 이 중 형사수사절차에서의 권리보호절차인 영장주의의 도입여부가 논의된다. 본고에서는 대표적인 비교법적 사례로 미국의 영장주의 논의를 검토하여 보았다. 미국의 경우, 행정조사에 대하여 형사절차적 성격과 행정절차적 성격을 동시에 고려하여 행정영장제도의 도입 및 행정조사에 대한 절차적 통제 강화방안을 논의하고 있으며, 사법심사에 관하여는 개별 산업영역의 특수성을 반영하여 긴밀하게 규제되는 산업영역에 관하여 별도로 규율하고 있다. 우선, 미국의 행정영장 개념은 행정청은 원칙적으로 영장을 발령받기 위하여 당해 행위의 위법성을 합리성 범위 내에서 입증해야 하나, 행정영장주의에서는 개별 산업영역의 특성을 반영하도록 운영하여 원칙적으로 영장주의를 광범위하게 적용하되, 예외로 특정 산업에 대해서는 영장주의를 배제하는 구조를 취하고 있다. 또한, 행정영장 논의는 영장신청 절차와도 관련되는데, 미국 연방법의 경우, 일반적으로 행정청이 법원에 직접 영장을 신청하는 구조를 취하고 있다. 미국의 논의에서 긴밀하게 규제되는 산업 논의는 행정조사의 양태가 다양해지고 기본권 침해 가능성, 공익과의 관련성, 조사의 방법(횟수, 확실성, 정규성), 조사의 실질적 이익 범위가 광범위하므로 일반론으로 정의하기 어려운 현실을 고려하여 특정 산업에 대하여 영장주의를 배제하는 논의이므로, 조사방법과 범위 등이 구체적으로 확정될 수 있음을 전제한다면 우리나라에서도 논의할 수 있을 것으로 생각된다. 예컨대 현행 우리 법체계를 본 논의에 적용한다면 영장주의를 법령(관세법, 도로교통법)에서 규정하고 있는 경우 영장주의 적용대상으로 보고, 법령에서 긴밀하게 규제되고 있으며 이익형량을 통하여 별도로 논의되는 특정 산업(공정거래, 조세, 금융감독)의 경우 긴밀하게 규제되는 산업영역으로 판단하여 영장주의를 배제하되 영장주의에 상당하는 절차(조사의 목적 방법 절차를 자세하게 규정)를 규정하는 것으로 해석할 수 있다. 다만, 본 논의는 역사적으로 미국의 판례를 통하여 형성된 논의로서 그 필요성에 관하여 입법론으로 접근한다면 그 방안에 관하여는 별도의 논의가 필요할 것으로 생각된다. 특히 우리나라의 경우 행정조사에 관한 일반법으로 행정조사기본법에서 영장주의에 관하여 규정하지 않고 있으며, 긴밀하게 규제되는 산업 영역으로 논의가능한 주요 영역(조세, 금융감독, 공정거래<독점규제, 표시 광고, 하도급거래, 방문판매, 전자상거래, 약관규제>등)에 대하여 행정조사기본법의 적용을 제외(행정조사기본법 제3조)하고 있으므로, 영장주의 논의를 명시적으로 제외하기 위해서는 개별법으로 규정하고 영장주의를 제외함에 상당하는 절차적 보완이 규율되어야 할 것이며, 긴밀하게 규제되고 있음을 확인할 만한 객관적 기준이 논의되어야 할 것이다. 미국 판례에서의 논의와 같이 (1) 긴밀하게 규제되는 정도(산업전반에 대한 규제연혁 및 필요성 등)에 관한 기준을 설정하고, (2) 법령에 명시적으로 조사의무 규정을 두고, (3) 법령에 조사방법에 대하여도 명시적인 규정(조사의 정규성, 확실성, 대상과 범위)을 확립한 경우에 한하여 영장주의 배제를 논의할 수 있을 것으로 생각된다. Administrative investigations has been recognized as the public regulatory action which does not require substantive or procedural strictness, while the situation is rapidly changing as the administrative actions becomes broader and diverse. For instance, simple and routine administrative searches under the Hosing Act or Fire Service Act are recognized as less invasive approaches, while administrative searches under the taxation, finance and fair trade regulations are considered as more invasive administrative actions, which needs strict substantive or procedural control. This paper tried to review the administrative search system whether the warrant before or after the investigation is required, and if needed, the burden of proof to issue the warrant would be the same as the criminal procedures in comparison of the United States’ administrative search system. Administrative search system in the United States is considered not only as the criminal procedure but also as the administrative procedure, while most states or federal court adopts administrative search warrant system and review cases under the “closely regulated industry” decisions. Under the administrative search warrant system, the government bears less burden of proof than that of the criminal procedures, and it could be waived when the investigators are involved in the specific industry including closely regulated industry. The areas of the closely regulated industry has been recognized by the court’s decisions including “liquor, gun, mining, scrap car” industry. The court review the industry whether the public interest stronger, the regulated whether the private interest is less invasive, the regulations whether the search methods and contents are clearly regulated, and the regulated could be anticipated or expected that the industry they are engaged in are closely regulated industry. In Korea, the framework act on administrative investigation has been introduced in 1996, and it specified the procedural control methods such as the time and numbers of investigation, voucher presentation etc.. The administrative warrant system and the discussions on the closely regulated industry could be considered in balancing between the public interests of investigation and private interests of each industry and the people.

공직선거에서의 전자투표제도 도입을 위한 단계적 접근

김재선(Jae Sun Kim) 중앙법학회 2011 中央法學 Vol.13 No.2

This thesis has tried to study about electronic voting system from a public law perspective based on the situation that electronic means are utilized even in elections that require acquiring credibility and securing safety to the people and in voting, which is the method to participate in elections by the development of IT technology. Furthermore it has been implemented in 35 nations around the world along with technical and systemetical improvements. However, securing fairness carries weight as electronic voting system has many problems to be solved by public law following each area or methods of voting. For Public Office Elections such as for Presidential Voting, Assembly Election, Local Government Voting, and Voting for superintendent of education, there were technical and institutional efforts to implement electronic voting since early 2000s, however, due to stability and credibility issues, even now in 2011, it hasn`t been implemented yet. In the case of 1st stage electronic voting utilizing optical scan or touch-screens on the polling station, the cost of election administration is reduced and the time spent on counting the votes is shortened while also increasing the participation of foreigners and the disabled. As we move further on to the 3rd stage electronic voting which utilizes internet the improvement rate of voter turnout and enhancement rate of voting convenience increases. However, in order to implement electronic voting to Public Office Elections, the most important task to deal with is to secure the public credibility while not harming the principles of elections. To countermeasure the possibilities of system crashes in the 1st stage PSEV electronic voting system, we can make additional installment of electronic voting equipment compulsory, implement preliminary verification, prepare controlled program facilities, and employ system maintenance crew. For safe transfer of the election results, we utilize the current level of police force for security procedures and have observers from each political party to keep a close eye on. Moreover, we can have the election results saved in and out of the voting equipment or have it printed out just in case. On the other hand, when there happens to be intentional losses or swaps of election results, we may arrange a severe penalty rule. For the verification procedure of the election results, we can keep the ballots printed out separately or utilize an Election Audit Trail as a technical verification method to aid accuracy in the tallying and recounting process. Although there may be some people who will not be used to the voting equipment because of the touch-screen, however, this can be overcome by manufacturing touch-screens specifically made for the old and the infirm, the disabled, and foreigners, or through education and advertisement. For those who are still blockaded from voting, we can carry out the pre-existing paper ballots along with electronic voting or we can consider utilizing proxy votes by having vote assistants like Japan. The initial installation costs are quite large, however, as the maintenance costs reduce significantly, as long as there are at least 30 or more polls, it is cost-effective and we can even aim for profits by exporting the electronic vote technology to abroad. If we only make use of the united electoral register, we would have to protect personal information through Private Information Protection Procedures and Encryption Protocols and also strengthen punishment rules in provision for exposure of the electoral register. For the 2nd stage KIOSK method, utilizing passwords, cookies, electronic signatures, introducing new electronic identification systems, and physical-recognition such as fingerprints have been discussed about to secure credibility of the identification process, however, as electronic IDs or physical-recognition methods have concerns of privacy violation, technologically cookies or electronic signatures are the most valid m

자동차보험 진료비심사 일원화 이후 의료기관 진료행태 변화

김재선 ( Jae Sun Kim ),서원식 ( Won Sik Suh ) 한국보건행정학회 2017 보건행정학회지 Vol.27 No.1

Background: This study aims to analyze the behavioral changes of healthcare providers and influencing factors after the reviewer unification of auto insurance medical benefit claims by an independent review agency. Methods: The comparison data were collected from the second half of 2013 and the same period of 2014. The key indicators are the number of admission days, the number of outpatient visits, inpatient ratio, inpatient medical expenses, and outpatient medical expenses. Results: Four indicators (number of admission days, number of outpatient visits, inpatient ratio, and outpatient medical expenses) showed statistically significant drops, while one indicator (inpatient medical expenses) showed no significant change. Conclusion: The reviewer unification of auto insurance medical benefit claims by an independent review agency showed significant reduction in cost and patient days.

내장형 시스템을 위한 적응형 소프트웨어 개발 기술

김재선(Jaesun Kim),박수용(Sooyong Park) 한국정보과학회 2004 정보과학회지 Vol.22 No.6

절연고분자 polystyrene 혼합에 의한 TIPS-pentacene OTFT의 성능 개선

김재선(Jae Seon Kim),송정근(Chung Kun Song) 대한전자공학회 2013 전자공학회논문지 Vol.50 No.7

본 논문에서는 절연 고분자 polystyrene(PS)을 TIPS-pentacene 용액에 혼합하여 OTFT를 제작하였고, PS의 분자량과 함량이 소자 성능에 미치는 영향을 분석하였다. 분자량 9,580의 PS가 분자량이 큰 것 보다 우수한 성능을 나타내었다. 그리고 함량은 0.3 wt%일 때 전계이동도는 1.0 ± 0.19 ㎠/V?sec, 부문턱전압기울기는 0.22 ± 0.05 V/dec, 문턱전압은 ?1.19 ± 1.21 V, 그리고 전류점멸비는 7.12 ± 2.09 × 106 이었으며, PS를 혼합하지 않은 OTFT에 비하여 약 5배의 성능 개선이 있었다. 또한 잉크젯 공정에서 기판온도는 커피링을 제거하는 중요한 요소이며 PS를 혼합한 TIPS-pentacene의 적합한 온도는 46 ℃로 확인되었다. In this paper we analyzed the effects of polystyrene(PS) blended in TIPS-pentacene on the performance of OTFTs. With the various molecular weight and the content of PS the performance of TIPS-pentacene OTFTs was examined and the proper molecular weight and the content were extracted for the best results. With the molecular weight of 9,580 and 0.3 wt% of PS OTFTs produced the mobility of 1.0 ± 0.19 ㎠/V?sec, the subthreshold slope 0.22 ± 0.05 V/dec, the threshold voltage ?1.19 ± 1.21 V, the current on/of ratio 7.12 ± 2.09 × 10?. Additionally the suitable substrate temperature for ink jet printing of the blended TIPS-pentacene OTFTs was also extracted and it was 46 ℃.

동창성 (凍瘡性) 홍반성 루푸스

김재선(Jae Sun Kim),홍덕표(Duck Pyo Hong),김종민(Jong Min Kim),이종주(Chong Ju Lee) 대한피부과학회 1985 대한피부과학회지 Vol.23 No.3

Chilblain lupus erythematosus(CLE) is a chronic unremitting from of LE seen predomin antly in women, The chilblain lesion occurs commonly on the digits, calves and heels. Chronic facial discoid LE usually appears before the chilblain form. A 23-year-old female had relatively well defined, erythematous discoid plaques on her both cheeks and scattered erythema multiforme-like ring lesions on her right hand and right wrist. There were also chilblain lesions showing multiple, purple colored macules on her knees, lower legs and periungual areas of fingers and toes. The skin lesions developed at November, 1982 and then the skin lesions remitted during the next summer. The skin lesions recurred at December, 1983,

담관내압 측정검사로 진단한 Oddi 괄약근 협착

김재선(Jae Seon Kim),조은래(Eun Rae Jo),권소영(So Young Kwon),변관수(Kwan Soo byun),박영태(Young Tae Bak),김진호(Jin Ho Kim),김종극(Jong Guk Kim),이창홍(Chang Hong Lee) 대한소화기학회 1994 대한소화기학회지 Vol.26 No.1

Unexplained chronic and recurrent biliary type abdominal pain, with or without prior histo- ry of cholecystectomy, in the absence of structural changes in pancreatobiliary anatomy is often attributed to an abnormal pressure profile of the sphincter of Oddi. This symptom com- plex is often attributed to the syndrome of sphincter of Oddi dysfunction. The diagnosis of this disorder has been suggested by the symptom compex, exclusion of anatomic biliary tract disease, dilatation of common bile ducts or delayed drainage of contrast media from the bile ducts during the endoscopic retrograde cholangiography. But, more recently developed tech- nique, endoscopic manometry of the sphincter of Oddi, appears to be most sensitive for detect- ing increases in biliary sphincter pressures, even in the presence of nondilated bile ducts. This syndrome may be further subdivided into sphincter of Oddi stenosis that indicates a structual narrowing of the sphincter of Oddi and sphincter of Oddi dyskinesia that is defined as abnormal sphincter of Oddi motor activity. The basal pressure, which is elevated in both stenosis and dyskinesia of the sphincter of Oddi, is the most widely agreedupon abnormality. Administration of smooth muscle relaxants may help to distinguish between the two enti- ties; these agents do not have any effect on a fixed stenosis but may inhibit the elevated sphincter tone in dyskinesia. 3Ve report a case of the sphincter of Oddi stenosis diagnosed by biliary manometry. (Korean J Gastroenterol 1994; 26: 200 205)

폐에서 발생한 원발성 악성 혈관주위세포종

김재선 ( Jae Seon Kim ),진윤태 ( Yun Tae Jin ),인광호 ( Kwang Ho In ),강경호 ( Kyung Ho Kang ),김준석 ( Jun Suk Kim ),유세화 ( Se Hwa Yoo ) 대한결핵 및 호흡기학회 1991 Tuberculosis and Respiratory Diseases Vol.38 No.2

양성 (良性) 태선양 (苔癬樣) 각화증 2예

김재선(Jae Sun Kim),김종민(Jong Min Kim),이종주(Chong Ju Lee),신창식(Chang Sik Sin),이일수(Eil Soo Lee) 대한피부과학회 1984 대한피부과학회지 Vol.22 No.4

Benign lichenoid keratosis is an asyrnptomatic, isolated, plaque-like lesion frequently mistaken for basal cell carcinoma, Bowens disease, and actinic or seborrheic keratosis because of its variable clinical appearance. We present two cases of benign lichenoid keratosis. The first case was a 44-year-old female who had mild pruritic, ll x15rnrn sized, single, slightly elevated brownish plaque with fine scaling on the right zygornatic area of 5 years' duration. The second case was a 35-year-old female who had mild prutitic, single, pea- sized erythernatous patch on the left ala nasi of one month's duration. On histologic examination, these two cases showed same histologic findings, such as focal parakeratosis, moderate hyperkeratosis, irregular acanthosis and liquefaction degeneration of basal cells in the epidermis and band-like mononuclear infiltration and colloid bodies in the dermis