국제기구를 통한 북한법제지원의 활성화방안 - 유엔개발계획(UNDP)을 중심으로 -

김대인 전북대학교 동북아법연구소 2020 동북아법연구 Vol.14 No.1

국제기구를 통한 북한법제지원에 대해서는 그동안 많은 방안이 모색되었지만 북한에 대한 국제사회의 지속적인 제재로 인해 이러한 방안을 실현하는 데 어려움을 겪고 있다. 이 글에서는 북한이 국제연합(United Nations: UN)의 회원국이고 UN안전보장이사회 제재의 예외를 인정받아 UN기구를 통한 다양한 인도주의 지원사업이 진행되었던 점 등을 고려할 때 유엔개발계획 (United Nations Development Programme: UNDP)을 통한 법제지원의 가능성이 상대적으로 높다 고 보아 이를 검토해보았다. UNDP는 1) 정치적 개입, 2) 기관설립, 3) 지역안전, 4) 인권, 5) 사법접근, 6) 이행기정의, 7) 젠더정의 등 7가지 분야에서 법제지원사업을 실시하고 있다. 이 중에서 북한의 체제에 직접적인 영향을 줄 수 있는 정치적 개입, 인권, 이행기정의 등의 법제지원사업보다는 기존에 UN기구를 통해 이미 진행된 바 있는 인도주의 지원사업과 연계할 수 있는 ‘지역안전’과 관련된 법제정비지 원사업이 보다 우선적으로 실시해볼 수 있는 법제지원사업분야라고 할 수 있다. 예를 들어 물⋅위생 관련법제분야를 들 수 있다. 북한은 환경보호법, 공중위생법, 대동강오염 방지법, 도시경영법, 상수도법, 하수도법, 수로법 등 다양한 물⋅위생 분야와 관련된 법제들을 갖추고 있다. 그러나 유엔환경계획(United Nations Environment Programme: UNEP)이나 UNDP의 보고서들에 의하면 북한의 수질오염의 수준은 심각한 상황이다. 즉 법규범과 법현실간의 괴리가 발생하고 있는 상황이다. 이러한 문제를 극복하기 위해서는 물⋅위생분야의 법집행 실효성을 높일 수 있는 법제정비지원이 절실하게 요청된다고 할 수 있다. UNDP를 통한 북한법제정비사업이 성공적으로 이루어지기 위해서는 무엇보다 북한당국이 수요를 갖고 있는 분야를 잘 찾고, 경제협력개발기구(Organization for Economic Cooperation and Development: OECD) 개발원조위원회(Development Assistance Committee: DAC)의 공적개발원조 사업 5대 평가지표(적절성, 효과성, 효율성, 영향력, 지속성)를 규범적으로 고려하여 사업을 기획 할 필요가 있으며, 남측도 UNDP 서울정책센터 등을 통해 참여할 수 있는 방안을 모색할 필요가 있다. Rule of law assistance projects in North Korea through international institutions were widely discussed until now. However, launching of these projects are hindered by economic sanctions by global community. This paper sees rule of law assistance projects through UNDP (United Nations Development Program), because North Korea is a member of UN and humanitarian assistance projects have been implemented despite the sanction of the UN Security Council. UNDP rule of law assistance project’s targeting areas are as follows: 1) political engagement, 2) institution building, 3) community security, 4) human right, 5) access to justice, 6) transitional justice, and 7) gender justice. In these areas, political engagement, human right or transitional justice are sensitive ones in which North Korea will be reluctant to cooperate. Therefore, community security related rule of law assistance, which can be connected with already implemented humanitarian assistance projects, will be priority area. In this context, water/sanitation related law can be a good targeting area. North Korea already implemented various water and sanitation related law as follows: ‘Environment Protection Act’, ‘Public Sanitation Act’, ‘Act on Protection from Deterioration of Dae-dong River’, ‘City Management Act’, ‘Waterworks Act’, ‘Sewer Act’ and ‘Waterway Act’. However, according to UNEP (United Nations Environment Programme) or UNDP report, the deterioration of water in North Korea is serious. This shows the gap between legal norm and legal reality is large. Therefore, it is necessary to assist North Korea to enhance effectiveness of enforcement of water/sanitation related law. For the successful implementation of this rule of law project in North Korea through UNDP, it is critical to take careful needs assessment and OECD (Organization for Economic Cooperation and Development)/DAC (Development Assistance Committee)’s ODA (Official Development Assistance) evaluation criteria (relevance, effectiveness, efficiency, impact, sustainability) should be duly considered, and South Korea should make effort to participate this project through UNDP Seoul Policy Center.

북한이탈주민의 사회통합을 위한 법정책적 방향

정용상(Chung, Yong-Sang) 동아대학교 법학연구소 2013 東亞法學 Vol.- No.61

남북한 사회통합은 성공적 통일을 위한 전제이므로, 통일이전부터 남북한 사회 각 분야의 제도와 관습을 통합가능한 분야별로 통일화하여 통합을 할 수 있는 여건을 조성해야 한다. 남한이 남북통일 후 사회통합을 선도하려면 남한이 북한출신 주민들을 포용할 수 있는 역량이 있어야 한다. 남남통합의 일환으로 북한이탈주민에게 교육, 취업, 사회보장 등 외적인 사회통합과, 상호문화의 이해를 증진하며 사회적 상호작용과 문화적응을 용이하게 하는 내적 통합이 병행되어야 한다. 북한이탈주민의 안정된 정착을 위한 정책의 우선과제는 취업과 교육이다. 그 정책의 방향은, ① 지원은 인도주의와 통일준비차원에서 이루어져야 한다. ② 지원의 효율성을 확보하기 위해서는 중앙정부와 지자체, 그리고 민간단체를 연계한 정착지원시스템을 구축·운영해야 하고, 그들의 능력과 소질에 맞는 체계적인 적응훈련을 할 수 있도록 해야 한다. ③ 북한이탈청소년의 균등한 교육기회보장을 위해 특성화학교, 대안학교 등을 늘려야 한다. ⑤ 생활안전망을 대폭 확충하고, 맞춤형지원의 확대, 생활밀착형 보호시설을 확대해야 한다. 북한이탈주민이 남한사회에 잘 적응하면, 남남통합에 기여하게 될 것이고, 나아가 남북통합 및 발전적으로는 남북통일을 앞당기는데 기여할 수 있을 것이다. 이러한 방향으로의 입법적, 정책적 뒷받침이 필요하다. Social integration of South an North Korea is a precondition For a sucessful reunification of the two nations. South Korea needs to provide conditions for social integration by unifying possible social areas not only in legal systems but also conventions of each social area of both countries. For South Korea to take an initiative on them after the upcoming reunification, South Koreaan should be able to embrace those residents who escaped from the North and settled down in South Korea. Another precondition for a successful reunification is South-South integration, which includes social integration policies. Offering education, jobs, and social security for North Korean defectors in the South is a good example for the external integration while enhancing mutual understandings on different cultures from each other and facilitating their social interaction and enculturation should be provided on the level of internal integration. The legal polcies for both external and internal integrations should be implemented in line with each other for successful and smooth transition. Priorities for a stable resettlement of North Kroean defectors in South Korea are employment and education. Policy directions should be established from the perspectives of humanitarianism and preparation for unification. In order to secure efficiency in support, the resettlement support system should be built and operated linking the central government, local governments and non-governmental organizations, and systemic adjustment training appropriate to defectors’ abilities and aptitudes should be provided; the number of specialized schools and alternative schools should be increased to equalize educational opportunities for teenagers who defected from the North; additionally, social safety networks, customized support programs and welfare facilities should be sharply expanded. The sucessful adjustment and adaptation of North Korean defectors to South Korean society will conteribute to integration within South Korea as well as the overall integration of South and North Korea; this will also advance inter-Korean unification. Legislation and policy support will be needed in such a direction.

북한 법제정비지원의 법적 성격과 기능적 수용주체

안동인 행정법이론실무학회 2020 행정법연구 Vol.- No.60

In terms of its contents, the support for improving the North Korean legal system is divided into two types: the support for improving the legal system as an ODA, which has the characteristics of aid to transitional countries, and the support for improving the legal system as part of the integration (preparation work) of law and legal system in the unification process. The South Korea's intended support for improving the North Korean legal system ensures that the current inter-Korean legal system gap no longer deepens. It also means preparatory work to reduce in advance the confusion and conflicts that may arise when the inter-Korean exchanges expand and settle in the process of unification. And this will ultimately be oriented toward the integration of law and legal system between the two Koreas. In addition, since the support for improving the North Korean legal system is inherently aimed at the establishment of the rule of law, this will gradually lead North Korea to a normal country. In order to ensure the successful settlement of such support for improving the legal system, research and review of the recipients, namely counterparts in the recipient country of North Korea is required. At the level of organizational law, the persons who are directly responsible for these projects will be state agencies organized to carry out the functions of the state, but the practical role will be played by lawyers. Therefore, the functional recipients of the support for improving the legal system should be identified as lawyers, and as a general category of such lawyers, we need to look at North Korean attorneys. The 《Attorney-at-Law Act》 of North Korea stipulates that attorneys guarantee human rights and advocate the national legal system through their defense activities and legal aid. However, the nature of the North Korean attorney system under North Korea's regime, which is dominated by socialism and collectivism, is expressed in its characteristic of the people. And this part reveals the essential differences from our attorney system. Therefore, it is required to approach with such intrinsic differences in mind in attempting and proceeding exchanges with North Korean lawyers in the process of the support for improving the legal system in the future.