해외탈북난민과 국제사회의 대응

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송영훈(서울대 통일평화연구원 선임연구원)

2010년 해외탈북난민 18개국 917명

 

              유엔난민기구(UNHCR)의 발표에 의하면 2010년말 현재 난민신분의 탈북자들은 18개국에 917명이 거주하고 있다.  망명신청자 278명을 합하면 1,195명에 이른다.  2011년 6월까지 한국사회에 정착한 탈북자들의 수가 2만명을 넘었고 중국내 거주하고 있는 탈북자의 수도 2만-4만명으로 추정되는 것과 비교하면, 해외체류 탈북난민의 수는 상대적으로 적다. 그렇지만 2001년 해외탈북난민이 7개국 19명에 불과했던 점을 감안하면 탈북난민의 수가 짧은 기간 동안 빠른 증가추세를 보이고 있으며, 탈북자의 국제이주의 범위도 확산되고 있다. 또한, 영주권이나 시민권 취득으로 인해 통계에서 빠진 탈북자까지 포함하면 해외탈북난민의 전체 규모는 훨씬 더 많다고 할 수 있다.

탈북자들이 남한으로의 이주만을 고집하지 않고 미주와 유럽으로의 이주를 하게 되는 현상을 북한체제의 문제 혹은 남북한 관계만으로 설명하기는 어렵다. 한반도 주변국가의 상황만이 아니라 UNHCR을 비롯한 국제기구 및 다른 국가들의 난민정책도 반드시 고려해야만 할 것이다.  해외탈북난민의 증가와 이들의 국제이주의 다변화를 초래하고 있는 중요한 요인으로 국제사회의 1951년 제네바협약에 따른 난민개념을 탈북자들에게 확대 적용하려는 시도, 북한인권실태에 대한 국제사회의 관심고조, 이에 따른 각국의 탈북자에 대한 포용적 망명정책 등을 살펴 볼 수 있다.

 

탈북난민인가? 불법월경자인가?

 

우선, 탈북자의 난민지위에 관한 논쟁은 1990년대 초반 체제이탈형 정치적 탈북과 1990년대 후반의 생계형 탈북이 확대되면서 국제사회의 많은 관심을 받았다. 1994년에 UNHCR은 중국내 탈북자들을 위임난민으로 규정하고 보호하려 하였으나, 이러한 노력도 탈북자들에게 제네바협약에 따른 국제난민지위를 부여하려는 것은 아니다. 한편, 중국정부는 탈북자들을 경제적 이유에 따른 불법월경자로 규정하여 체포하고 강제북송하는 정책을 일관되게 유지하고 있다. 그리고 중국정부는 UNHCR을 비롯한 국제인권기구들의 탈북자에 대한 접근을 허락하지 않음으로써, 탈북자들이 난민지위 심사신청을 할 수 있는 기회를 원천적으로 봉쇄하고 있다. 따라서, 중국내 탈북자들이 난민지위를 받기 위해서는 중국내 재외공관에 진입하여 난민심사를 신청하거나, 제3국을 경유하여 미주와 유럽의 국가에 망명을 신청을 해야만 한다.

위와 같은 현상은 중국을 비롯한 동남아 주요국가에 체류하는 탈북자에게 난민지위를 부여하는 것이 이들 정부에게는 큰 정치적 부담으로 작용하기 때문에 발생한다. 난민지위의 부여는 북한내부에 정치적 박해 등에 따른 난민 발생의 위협요인이 존재한다는 것을 인정하는 것이 된다. 자국의 이익을 최우선으로 고려하는 중국의 입장에서 탈북난민의 인정이 북한과의 정치외교적 관계에 가져올 부정적인 영향을 우려하고 있다. 따라서, 중국은 “중국•북한  범죄인 상호인도협정”에 따라 탈북자를 불법월경자로 규정하고 있는 것이다. 태국과 베트남 등 주요 동남아시아 국가들도 비공식적으로는 탈북자 문제를 인도주의적 측면에서 다루지만, 공식적으로는 중국과의 정치•경제적 관계를 고려하여 탈북자들을 난민으로 인정하려 하지 않는다. 그 결과 2010년말 현재 이들 국가에는 탈북난민이 존재하지 않는다.

 

북한인권법과 탈북자 수용정책

 

2000년대에 들어서 북한의 인권문제에 대한 국제사회의 관심 고조도 해외탈북이주 현상을 촉진시켰다. 유럽연합은 북한과 외교관계를 수립하는 과정에서 북한내 인권상황의 개선을 꾸준히 요구하였으며, 특히 미국정부는 해마다 각국에 대한 인권보고서, 인신매매보고서 등을 발간하여 탈북자 문제를 국제적 이슈로 공론화하기 위해 지속적인 노력을 하였다. 2004년 10월에는 “북한인권법”이 조지 부시 대통령에 의해 서명•발효되었으며, 2008년 효력이 만료됨에 따라 “북한인권재승인법”이 채택되어 그 효력을 2012년까지 연장하였다. 이 법안은 북한이탈주민을 위한 인도주의적 지원단체 혹은 개인 활동에 대한 재정지원을 명시하고 있으며, 또한 대한민국 국적취득권이 미국내 난민신청자격을 제한하지 않는다는 상징적 조치를 포함하고 있다. 이와 같은 국제사회의 북한인권 상황에 대한 관심과 북한인권법 등을 비롯한 포용적 난민이주정책은 탈북자들에게 최종정착지를 선택하는데 큰 영향을 미쳤음에 틀림없다.

 

탈북난민 영주권자의 증가

 

하지만 국제사회의 탈북자정책은 탈북자에 대한 독립적인 정책이라기 보다는 각국의 난민 및 이주 정책의 맥락에서 수립되고 실행된다. 이는 각국의 탈북자정책이 난민지위를 부여하는 것과 탈북난민들에게 영주권 내지 시민권을 부여하는 것을 구분해서 다루기 때문이다. 예를 들어, 영국정부가 2004년에 17명의 탈북난민을 인정한 이후 탈북난민의 규모가 계속 늘어나 2010년에 가장 많은 581명이 영국에 거주하고 있다. 이를 두고 영국의 탈북자정책이 포용적이기 때문이라고 해석하는 경우도 있지만, 이는 영국이 적어도 10년이상 합법적으로 체류한 외국인에게 영주권 신청자격을 주기 때문에 누적 탈북난민의 수가 가장 많은 것이다. 반면, 독일은 2004년 276명의 탈북난민이 거주했던 것과 비교하면 2010년에는 146명의 탈북난민이 거주하는 것으로 나타나고 있다. 독일정부가 5년이상 체류한 난민에게 영주권을 취득할 권리를 부여하는 이주정책을 펴기 때문에 많은 탈북난민이 영주권을 취득하여 난민신분에서 벗어난 것으로 볼 수 있다.

미국정부도 탈북자 문제를 자국의 난민재정착 프로그램의 틀 속에서 다룬다. 미국은 해마다 약 7만5천–8만2천명의 전세계 난민을 수용하고 지원하고 있는데, 지역적 쿼터가 정해져 있다. 현재 탈북주민은 지역적 쿼터의 혜택을 받지 못하게 되어 개별적으로 난민지위를 신청해야하며 해마다 약25명 정도만이 난민지위를 인정받고 있다. 미국무부는 공식적으로 110명이 2010년말까지 입국하였다고 발표했으나 2010년 말의 탈북난민의 수가 25명인 것으로 나타나는 것을 보면, 이미 80명 이상이 영주권을 받은 것으로 추정할 수 있다. 또한 캐나다에서도 최근 탈북자에 대한 관심이 높아지면서 난민인정사례가 증가하고 있다. 캐나다 이민국이 2007년부터 2010년 말 사이에 입국한 탈북자 116명에게 난민지위를 부여하였다고 발표했으나 UNHCR은 2010년 캐나다 거주 탈북난민의 수를 23명으로 발표하고 있다. 적어도 90명 이상이 캐나다 영주권을 취득하였기 때문이라고 볼 수 있다.

 

위장망명탈북, 현지 적응, 국내입국 등 국제협력 강화 필요

 

2007년 전후로 한국 내에서도 논란이 되었던 위장망명 탈북자 문제는 국제적인 이슈가 되어 각국이 난민지위심사를 강화하였다. 위장망명탈북은 국내로 정착한 탈북자들이 실업 및 각종 사회적 차별 등으로 인해 정착이 쉽지 않은 가운데, 일부 브로커들이 미국과 영국으로의 이주의 장점이나 각종 지원제도를 과장 선전한 것 등이 복합적으로 작용하여 나타났다. 그렇지만, 미국과 영국으로 이주한 탈북자들은 높은 현지 물가 때문에 한국에서보다 경제적으로 어렵게 생활하며, 대부분 언어장벽 및 문화적 차이를 극복하지 못하여 많은 어려움을 겪는다. 이들 중 상당수는 한국으로 다시 추방되거나 스스로 되돌아오는 경우들도 많다.

국제사회는 탈북자들을 난민의 성격과 불법이주자의 성격을 동시에 지닌 존재로 인식하고 있다. 북한체제로부터 심각한 생존의 위협을 받는 탈북자도 있는 반면에 생계를 위해 탈북했고 북한으로 다시 돌아가기를 희망하는 탈북자도 있는 것이다. 세계 각국이 탈북자들에게 난민지위를 부여하는 기준은 다르지만, 공통적인 것이 이들 국가들의 탈북자정책은 각국의 난민재정착 프로그램과 밀접한 관련이 있는 것이다. 즉, 난민지위를 부여하기 위한 난민심사 프로그램과 영주권 혹은 시민권을 부여하기 위한 이주 정책을 구분하여 실시하고 있기 때문에 이에 대한 이해가 부족했던 탈북난민들이 현지적응에 실패하는 경우가 자주 발생하고 있는 것이다. 그 동안 탈북난민과 탈북해외이주와 관련된 문제들은 일반대중 및 학계의 관심을 크게 받지 못하였지만, 탈북자들이 상대적으로 많은 경제적 혜택과 적응의 수월성에도 불구하고 반드시 한국을 최종정착지로 선택하지 않는 원인에 대해서는 앞으로 진지한 성찰이 필요하다. 국제사회의 난민정책과 이주정책에 대한 이해를 바탕으로 국내 북한이탈주민의 정착지원 및 해외탈북이주 현상에 대한 국제협력을 강화할 수 있는 방안이 강구되어야 할 것이다.


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