새로운 유형의 풍속영업 등장, 경찰의 고민, 그리고 몇가지 대안 (What South Korean police can do in the face of emerging the new sex and adult entertainment business?)

서지정보

· 발행기관 : 경찰대학 치안정책연구소
· 수록지 정보 : 치안정책연구 / 25권 / 2호 / 113 ~ 145페이지
· 저자명 : 이웅혁, 심명섭

초록

풍속영업의 기본법인“풍속영업의 규제에 관한 법률”은 제정된 지 20년이 넘었다. 하지만 그 규제대상으로 삼고 있는 풍속영업의 범위는 상당히 제한적이므로 이에 속하지 않는 새로운 유형의 풍속영업에 대해서는 최근에는 제대로 규제를 하지 못하고있는 실정이다. 무엇보다 문제가 되는 영역은 키스방과 같이 성매매나 유사성행위가 이뤄질 우려가 있는 자유업종이다. 이는 단속하기가 어려울 뿐만 아니라 어렵게 단속을 하였다 하더라도 형사처벌에만그치고 영업정지나 폐쇄조치 등의 행정적 제재를 가할 수 없는 맹점이 있다.
현재 풍속영업에 대한 단속은 지방자치단체와 경찰기관으로 이원화 되어있지만 사실상 단속업무는경찰이 도맡고 있는 실정이다. 이런 상황에서 신종유해업종의 계속적 증가는 경찰기관의 실효성 있는관리와 단속에 상당한 한계가 되고 있다.
본 논문에서는 이에 대한 몇 가지 방안을 제시하고자 한다. 첫째, 현행 “풍속영업 규제에 관한법률”을 개정하여 영업자 준수사항 위주의 행위별규제방식으로 바꿔야 한다.
또한 준수사항으로서의 금지행위를 구체화하고, 타 법령과의 상이한 처벌기준을 통일하는 것은 물론 유해한자유업종에 대한 행정처분 근거도 마련해야 한다.
둘째, 풍속영업의 유형을 구분하여 인허가를 요하는풍속업소는 인허가 관청인 지방자치단체에서, 인허가를 요하지 않는 자유업종은 경찰에서의 분담적 규제가 이루어지도록 해야 한다.
셋째, 최근 풍속영업 환경에 맞는 경찰의 단속 시스템마련이 필요하므로, 전문화된 “풍속수사 전담팀”을 구성할 필요가 있다. 단속방식 또한 상급청의 일괄적인단속계획이나 단발적 이슈에 의해 수동적으로 끌려가는 방식에서 벗어나 지역실정과 특성에 맞는 계획으로선별적이고 집중적인 활동이 있어야 한다.
최근에 경찰 및 관계기관이 신종 유해업종을 규제하기 위해서 많은 노력을 하고 있으나 여전히 규제의사각지대에 머물고 있다. 따라서 본 연구가 새로운풍속환경에 걸맞게 관련법과 제도를 정비하는 밑거름이 되기를 바란다.

영어초록

The expansion of the-adult entertainment industry with recent economic growth in modern society has not only led to the commercialization of sex but also distorted teenagers' attitude toward sexualities. There has been a surge in unusual sex businesses in South Korean society. In fact, a new style of illegal adult entertainment business such as ‘Kiss Room’, ‘Mirror Room’, ‘Anteroom’ and abnormal sex massage parlor is causing substantial social problems. Despite these serious social toxicities, however, law enforcement officers are not able to timely regulate it due to the absence of legislation.
Although the ‘Law of Regulation on Sex and Entertainment Business’ was passed 20 years ago, this bill currently does not have any tangible effect to control the new types of illegal business flourishing in South Korea. It is because the legislation only covers limited spectrum of sex and entertainment industry. Especially, places like “Kiss Room”, where prostitution and “quasi-prostitution” businesses can take place, become the safe haven for an ‘unregulated business.’It is difficult to even estimate how many this kind of shops are in operation, because most of these business are not required to get permission from a government for opening. The absence of relevant legal code is the fundamental problem for police officers. It almost makes law enforcement crackdown efforts unfruitful unless officers actually come across the scene of sexual intercourse when such actions take place. To make matters worse, even in cases when the onsite arrest was successful,the premise can continue to open for business, because legal code for shutdown of the business does not exist. Unbalanced regulation activities by police department and local government is another problem, which results in overwhelmingly heavy workload for the former.
In this paper, the authors provide several suggestions for solving the these problems. First of all, the whole revision of the current “Law of Regulation on Sex and Entertainment Business” is necessary. New legislation needs to specify the obligation of the employers and address the need to introduce behavioral regulation, which means to regulate by the service they provide. The revision should also focus on identifying what behavior of employers’ is prohibited. Furthermore, the amendment, if necessary, must concentrate not only on standardizing various penalty criteria with other legal regulations but also on preparing administrative sanctions including closure and suspension of harmful and ‘unregulated businesses’.
Secondly, both the local government and police department should make an effort to regulate adult and entertainment business in a coordinated manner for its efficiency. Local government should regulate the establishments that require permission from the government. On the other hand, the police agency should regulate another establishments that do not require it. This division of work can serve as an effective model for dealing with a newly emerging variety of the sex business.
Thirdly, there is a need to create specialized police unit for dealing with sex and entertainment business. In addition, instead of keeping up with uniformed national level crackdown without considering local characteristics, each police department should consider the jurisdictional circumstances to make the crackdown more selective and concentrated.
In recent years, the authorities are making every effort to diminish new type of harmful industries. Unfortunately, new type of noxious establishments remains a blind spot in our society since there is no substantial regulation that can be applied to them. There is no doubt that this study will serve as a crucial stimulus to make public policy more effective and relevant.

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