소수자보호를 위한 보편조약으로서의 인종차별철폐협약 = The International Convention on the Elimination of All Forms of Racial Discrimination (ICERD) as a Substantive Universal Treaty for the Protection of Ethnic, Religious or Linguistic Minorities in International Law

국문 초록 (Abstract)

인종, 언어 및 종교상의 소수자 (이하 소수자)를 보호하기 위한 국제적 노력은 역사적으로 계속되어왔지만 실정국제법의 차원에서 이들에 대한 실효적인 보호를 위한 법적, 제도적 장치는 매우 미약한 상태에 여전히 머물고 있다.
지역적 한계를 넘어선 보편조약으로서의 소수자보호조약이 부재한 상태라는점이 이 점을 명확히 말해준다. 시민적.정치적 권리에 관한 국제인권규약(B규약)의 제27조가 이들의 보호를 위한 규정으로 존재하고 있지만 B규약은 일반적인 인권조약으로서 특별히 소수자를 보호하기 위한 조약은 아니다. 물론 소수민족보호를 위한 골격협약 (FCNM)은 소수자보호 문제만을 전적으로 다루고있는 조약이라는 점에서 현존 가장 구체적인 소수자보호 조약으로 작동하고있지만 이 역시 유럽 지역만을 관할하고 있다는 지리적 한계를 안고 있다. 실제 소수자보호 문제가 매우 심각한 상태로 남아있는 유럽 이외의 지역을 고려해본다면 이런 현실은 국제법상의 소수자보호가 얼마나 취약한 상태인가를 여실히 보여준다.
본 논문은 이런 점에 착안하여 보편적인 인권조약으로서 작동해오고 있는모든 형태의 인종차별철폐협약 (ICERD, 이하 ICERD)이 인종, 언어 및 종교상의 소수자보호를 위한 ‘실질적이고’도 ‘사실적인’ 보편조약이 될 수 있다는 점에 주목한다. 이는 ICERD의 이행 감독기관이라고 할 수 있는 인종차별철폐위(CERD, 이하 CERD)의 ICERD에 대한 확장적 해석관행의 전개를 통해 확인할수 있다. 즉 CERD가 ICERD의 당사국보고서 검토를 통해 밝혀온 입장을 검토해보면 ICERD가 실질적인 소수자보호 조약으로서의 보편성을 확보해 나가고있음이 명확해진다. 기본적으로 CERD의 해석관행은 CERD가 ‘인종차별’의 의미를 매우 넓고 다차원적으로 이해하고 있음을 보여주고 있으며 ICERD가 추구하는 ‘인종차별의 철폐’는 형식적인 인종적 기반만을 바탕으로 한 것이 아닌 ‘실질적인 차별’에 대한 철폐까지를 포함한다고 할 수 있다. 특히 언어적소수자 및 종교적 소수자도 ICERD의 보호 대상이 될 수 있다고 파악하고 있는 CERD의 해석관행에 주목할 필요가 있다. 이런 CERD의 해석관행의 전개는 인종, 언어 및 종교상의 소수자보호를 위한 조약으로서 ICERD가 기능함으로서 소수자보호를 위한 국제기준의 공고화에 기여하고 실질적인 소수자보호에도 긍정적인 영향을 크게 미칠 수 있다.

다국어 초록 (Multilingual Abstract)

From a historical perspective, international efforts in pursuit of the protection ofethnic, religious or linguistic minorities have been made continuously. Nevertheless,the status of the protection of minorities with regard to relevant positive internationallegal standards and enforcement mechanisms remains very weak and insufficient interms of effective protection. The fact that there is no existing universal treatycovering all countries in the world for the protection of minorities gives cleartestament to this negative reality. Article 27 of the International Covenant on Civiland Political Rights (ICCPR) deals with this issue, yet the nature of the ICCPR ismore closely related to the protection of civil and political rights in a general sense,not the treaty for the protection of minorities specifically. Of course, the significanceof the Framework Convention for the Protection of National Minorities (FCNM)within the Council of Europe as a sort of specialized treaty for dealing with theissue of the protection of minorities exclusively with its internal enforcementmechanisms should not be undervalued, yet the FCNM is inherently limited in thesense of the European geographical scope of its application. The fact that manyregions in the world outside of Europe, such as Asia, have provided seriousexamples of the fragile status of minorities indicates that the protection of minorities under international law remains deficient. Despite the urgency for effective minorityprotection at the universal level, the possibility of making a ‘universal treaty’ for theprotection of minorities covering of all countries in the world without geographicallimitation is very unlikely as of today.
Bearing this in mind, this article argues that the ICERD could be rather asubstantive as well as de facto universal treaty for the protection of ethnic, religiousor linguistic minorities. This may be supported and confirmed through the analysis ofthe development of interpretative practices of the Committee on the Elimination ofRacial Discrimination (CERD), which is a supervisory and monitoring body for theobservance (or compliance) of treaty obligations of the ICERD by the contractingparties. In other words, it is observable that the CERD has been trying to expandthe scope of application of the ICERD by pursuing an expansive interpretation of themeaning of racial discrimination within the ICERD. In particular, it must be notedthat the CERD has been also developing expansive interpretative practices byembracing the larger grounds for the recognition of the existence of racialdiscrimination, beyond simply ‘race grounds’ in the ICERD, thereby securing effectiveminority protection. The development of these expansive interpretative practices bythe CERD about the meaning of racial discrimination within the ICERD shows thatnot only ethnic but also linguistic or religious minorities may be protected under theICERD. This is quite significant with regard to effective international minorityprotection, as the ICERD has become a de facto universal treaty for the substantiveprotection of minorities in international law.

참고문헌 (Reference)

• 1 정인섭, "조약법강의" 박영사 2016
• 2 박정원, "소수자보호를 위한 국제법 기반의 공고화:국제법의 유기적 해석을 중심으로" 법학연구소 (77) : 125-158, 2017
• 3 박정원, "국제법의 본질과 조약 해석에 관한 소고: 해석주의 법철학을 중심으로" 대한국제법학회 63 (63): 339-364, 2018
• 4 박정원, "국제법상의 소수자 개념정의에 관한 소고: 국적소지요건에 특히 주목하며" 중앙법학회 11 (11): 555-581, 2009
• 5 M. Shahabuddin, "‘Ethnicity’ in the International Law of Minority Protection: The Post-Cold War Context in Perspective" 25 : 885-, 2012
• 6 M.A. Miller, "Why scholars of minority rights in Asia should recognize the limits of Western models" 34 : 799-, 2011
• 7 H. Hagtvedt Vik, "Who Owns the Land? Norway, the Sami and the ILO Indigenous and Tribal Peoples Convention" 20 : 517-, 2013
• 8 M. Weller, "Universal Minority Rights: A Commentary on the Jurisprudence of Intranational Courts and Treaty Bodies" Oxford University Press 2007
• 9 A. Eide, "Universal Minority Rights: A Commentary on the Jurisprudence of Intranational Courts and Treaty Bodies" Oxford University Press 2007
• 10 S. Hoffman, "United Nations Committee on the Elimination of Racial Discrimination: consideration of Australia under its early warning measures and urgent action procedures" 6 : 13-, 2000
• 11 C. Comegys, "The impact of religiously affiliated universities and courses in ethics and religious studies on students attitudes" 3 : 35-, 2010
• 12 A. Eide, "The Universal Declaration of Human Rights: A Common Standard of Achievement" Martinus Nijhoff 1999
• 13 J.P. Humphrey, "The United Nations Sub-Commission on the Prevention of Discrimination and the Protection of Minorities" 62 : 869-, 1968
• 14 U. Caruso, "The United Nations Declaration on Minorities : An Academic Account on the Occasion of Its 20th Anniversary (1992-2012)" Nijhoff 2015
• 15 M. Paz, "The Tower of Babel: Human Rights and the Paradox of Language" 25 : 473-, 2014
• 16 G Zhu, "The Right to Minority Language Instruction in Schools: Negotiating Competing Claims in Multinational China" 36 : 691-, 2014
• 17 J. Castellino, "The Protection of Minorities and Indigenous Peoples in International Law: A Comparative Temporal Analysis" 17 : 393-, 2010
• 18 M. Tabory, "The Protection of Minorities and Human Rights" Martinus Nijhoff 1992
• 19 R. Niezen, "The Origins of Indigenism: Human Rights and the Politics of Identity" University of California Press 2003
• 20 S. Joseph, "The International Covenant on Civil and Political Rights: Cases, Materials and Commentary" Oxford University Press 2013
• 21 S. Errico, "The Draft UN Declaration on the Rights of Indigenous Peoples: An Overview" 7 : 741-, 2007
• 22 J. Fox, "Religious causes of discrimination against ethno-religious minorities" 44 : 423-, 2000
• 23 Y. Akbaba, "Religious Discrimination against Muslim Minorities in Christian Majority Countries: A Unique Case?" 12 : 449-, 2011
• 24 O. Riesel, "Race versus Religion in the Making of the International Convention Against Racial Discrimination 1965" 32 : 351-, 2014
• 25 R. Hoffman, "Protecting the Rights of National Minorities in Europe, First Experiences with the Council of Europe Framework Convention for the Protection of National Minorities" 44 : 237-, 2001
• 26 W. Kymlicka, "Politics in the Vernacular: Nationalism, Multiculturalism, and Citizenship" Oxford University Press 2001
• 27 J.I.L. Claude, "National Minorities : An International Problem" Harvard University Press 1955
• 28 W. Kymlicka, "Multicultural Citizenship: A Liberal Theory of Minority Rights" Oxford University Press 1996
• 29 P. Thornberry, "Minority Rights in Europe: A Review of the Work and Standards of the Council of Europe" Council of Europe Publishing 2002
• 30 J. Castellino, "Minority Rights in Asia: A Comparative Legal Analysis" Oxford University 2009
• 31 G. Pentassuglia, "Minority Protection in International Law: From Standard-Setting to Implementation" 68 : 131-, 1999
• 32 G Sundberg, "Language Policy and Multilingual Identity in Sweden Through the Lens of Generation Y" 85 : 205-, 2013
• 33 R. Dunbar, "Is There a Duty to Legislate for Linguistic Minorities?" 33 : 181-, 2006
• 34 P. Thornberry, "International Law and the Rights of Minorities" Clarendon Press 1991
• 35 P. Thornberry, "International Law and Indigenous Peoples" Martinus Nijhoff 2005
• 36 J. Rehman, "International Human Rights Law" Longman 2010
• 37 L. Rodríguez-Pinero, "Indigenous Peoples, Postcolonialism, and International Law: The ILO Regime, 1919-1989" Oxford University Press 2005
• 38 N. Lerner, "Group Rights and Discrimination in International Law" Martinus Nijhoff Publishers 1991
• 39 D. Keane, "Fifty Years of the International Convention on the Elimination of all Forms of Racial Discrimination: A Living Instrument" Manchester University Press 2017
• 40 P. Justesen, "Equality for Ethnic Minorities-International and Danish Perspectives" 10 : 1-, 2003
• 41 W. McKean, "Equality and Discrimination under International Law" Oxford University Press 1983
• 42 W. McKean, "Equality and Discrimination under International Law" Clarendon Press 1985
• 43 S. Fredman, "Discrimination and Human Rights" Oxford University Press 2001
• 44 K. Henrard, "Devising an Adequate System of Minority Protection: Individual Human Rights, Minority Rights and the Right to Self-Determination" Martinus Nijhoff Publishers 2000
• 45 P. Thornberry, "Confronting Racial Discrimination: A CERD Perspective" 5 : 239-, 2005
• 46 D. Keane, "Caste-based Discrimination in International Human Rights Law" Routledge 159-212, 2016
• 47 Stephanie E. Berry, "Bringing Muslim Minorities within the International Convention on the Elimination of All Forms of Racial Discrimination-Square Peg in a Round Hole?" 11 : 423-, 2011
• 48 H. Lauterpacht, "An International Bill of the Rights of Man" Columbia University Press 1945
• 49 D.J. Sullivan, "Advancing the Freedom of Religion or Belief through the UN Declaration on the Elimination of Religious Intolerance and Discrimination" 82 : 487-, 1988
• 50 M. Evans, "Advancing Freedom of Religion or Belief: Agendas for Change" 1 : 5-, 2012