유엔 자의적 구금 실무그룹(UN WGAD)의 준사법적 개인진정 절차를 통한 보편적 인권침해 구제

국문 초록 (Abstract)

유엔 인권이사회에서 임명되는 독립 전문가로 구성된 자의적 구금 실무그룹(WGAD)은 유엔 인권 특별절차이면서도 인권조약 이행감독위원회처럼 신체자유의 박탈에 관한 개인진정을 수리하면 양 당사자인 진정인과 해당국 정부가 내는 서면 자료를 근거로 인권침해여부와 즉각 석방을 포함한 필요한 구제조치를 판단하는 “보편적 인신보호절차(un habeas corpus universel)”를 구축하였다.
국제인권 이행감독체계에는 국제인권조약으로 설립된 인권조약 이행감독기구(human rights treaty monitoring bodies)와 유엔 결의로 창설된 유엔 인권특별절차(special procedures)가 있다. 국제인권조약기구의 개인진정은 준사법절차로 해당 조약의 위반을 판단하기 때문에 법적 구속력은 없어도 권위 있는 법적 해석과 적용으로 인정되지만 해당국의 권한 수락, 국내구제수단의 완료, 진정인과 피해자의 관계 요건으로 개인의 인권침해구제에 한계가 있다. 반면에 유엔 결의를 근거로 대부분 1인 독립 전문가 기구로 구성되는 유엔 인권 특별절차는 개인진정 사건에서 공식적으로 법적 판단을 내리지 않고 해당국정부와의 대화와 국제여론의 압박을 통한 문제 해결에 방점을 두는 것이 일반적이지만 유엔 회원국과 비회원국 모두의 인권침해를 피해자의 국내구제수단 완료 이전에 다룰 수 있으며, 시간적 제약도 거의 없다.
1991년 유엔 인권위원회 결의 1991/42호로 설립된 WGAD는 당시 탈냉전 이후의 유리한 정치적 여건 속에서 이례적으로 자유권규약 위원회와 같은 준사법적 개인진정절차를 도입하게 되었다. WGAD 개인진정은 모든 국가에 대하여 가능하고, 국내 구제수단을 사전에 완료할 필요가 없으며, 비정부기가(NGO)나 WGAD의 직권 회부도 가능하지만 WGAD가 내리는 결정은 자유권규약 위원회와 유럽인권법원 등에서 준사법적 절차에 따른 결정으로 인정받는다. WGAD는 또한 국가 비상사태 및 국제무력분쟁 중 자의적 구금에 대하여도 개인진정을 처리할 수 있다는 절차규범을 확립하였다.
한편, WGAD는 실체규범 측면에서도 ‘자의적 구금’의 구성요소인 ‘구금(신체자유 박탈)’과 ‘자의성’을 넓게 해석하여 개인진정을 용이하게 할 뿐만 아니라 신체의 자유 이외의 권리 침해에 대해서도 법적 판단을 내릴 권한을 확보하였다. WGAD는 가택연금과 비자발적인 장기 외교공관 피신도 ‘신체자유 박탈’에 포함될 수 있다는 결정례를 남겼다. 또한, ‘자의성’ 개념도 “광의의 자의적 구금(arbitrary detention lato sensu)” 개념을 채용하여 법적 근거가 없는 구금(유형 I), 시민ꞏ정치권 행사를 탄압하기 위한 구금(유형 II), 공정한 재판을 받을 권리를 위반한 구금(유형 III), 외국인의 장기 행정구금(유형 IV), 불법적 차별에 따른 구금(유형 V)의 5가지 법적 유형을 자의적 구금으로 판단하고 있다.
이러한 WGAD의 개인진정 절차는 이행 및 구제 절차가 제한된 국제법 체계에서 매우 독특한 시도이다. 동아시아에서 지역인권체계의 구축이 어려운 한국으로서는 WGAD와 같은 국제인권체계의 발전에 힘쓸 필요가 있다.

다국어 초록 (Multilingual Abstract)

The UN Working Group on Arbitrary Detention (WGAD), made of independent experts appointed by the UN Human Rights Council, is a UN human rights special procedure but has established “un habeas corpus universel” that determines human rights violations and necessary remedies, including the immediate release, based on written submissions by the petitioner and the government concerned in its handling of individual petitions like a human rights treaty monitoring body.
The international human rights monitoring system comprises of the human rights treaty monitoring bodies, created by international human rights treaties, and the UN special procedures, based on UN resolution. The international treaty bodies determines the violation of relevant treaty provisions in the quasi-judicial procedure and accordingly its legal interpretation and application enjoys considerable authority, despite the lack of binding force, but its utility is limited by the requirement of the state consent, exhaustion of domestic remedies, and the link between the petitioner and the victim. By contrast, the UN special procedures, mostly one-person independent expert body, acting under UN resolutions, generally do not make legal determinations in their handling of individual petitions but rather emphasize problem solving through dialogue and international pressure; it can receive petitions concerning all UN member and non-member states before the exhaustion of local remedies with little temporal limits.
The WGAD was created in 1991 by UN Commission on Human Rights resolution 1991/42 under the favorable political atmosphere in the post-Cold War years, and was able to adopt the quasi-judical process for individual communications not unlike the Human Rights Committee. The WGAD petitions can target any state, does not require the prior exhaustion of local remedies, and can be submitted by non-governmental organizations (NGOs) or even by the WGAD itself. Nevertheless, the WGAD’s case-law is considered to be that of a quasi-judicial body by the Human Rights Committee, the European Court of Human Rights and other human rights bodies. The WGAD can also address the individual communications concerning arbitrary detention in the state of emergency or war.
The WGAD has also developed substantive norms for the expanded interpretation of “detention (deprivation of personal liberty)” and “arbitrariness”--the literal elements of “arbitrary detention”--to not only ease individual petitions but also to enlarge its authority to make legal findings on alleged violations of rights other than the liberty of person. The WGAD jurisprudence has included house arrest and prolonged involuntary flight to a foreign legation as ‘deprivation of liberty’. Also, by utilizing the concept of “arbitrary detention lato sensu”, the WGAD has determined that detention without legal basis (category I), detention for the purpose of punishing the exercise of civil and political rights (category II), detention in violation of the right to fair trial (category III), prolonged administrative detention of foreigners (category IV) and detention on the basis of illegal discrimination (category V) qualify as arbitrary detention.
The WGAD’s individual communication procedure is a unique experiment in the current international legal system that has limited enforcement and remedy mechanism. Given the difficulty of developing a regional human rights system in East Asia, South Korea needs to make greater efforts in the further development of WGAD and other international mechanisms.

목차 (Table of Contents)

• Ⅰ. 서론
• Ⅱ. 기존 국제 인권침해구제기관의 개인진정 처리
• Ⅲ. WGAD 개인진정 처리 절차의 특징
• Ⅳ. WGAD의 준사법적 개인진정 절차에 적용되는 실체법의 특징
• Ⅴ. 결론
• 국문초록
• ABSTRACT

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