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07seoul983 [2018/06/09 18:35] (현재)
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 +|07SEOUL983 |2007-04-04 02:53 |2011-08-30 01:44  |일반 |서울대사관|
  
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 +
 +
 +====== 한국, 지하 성매매의 심각성 깨닫기 시작 ======
 +
 +  *분류자: 분류되지 않음
 +
 +
 +===== 요약 및 시작하는 말 =====
 +1. (U) 3월 20일에 국회 문화관광위 조배숙 위원장은 산업형 성매매 축소를 위한 공동 세미나를 국회에서 개최하였다.
 +이 세미나는 매춘 피해자 보호소 운영 및 지원을 하는 NGO, 다시함께 센터와 공동 개최되었다.
 +다시함께 센터에서 나온 2명의 발제자와 각 지역 및 정부의 8명의 인물이 연사로 참여하여
 +한국의 매춘 산업을 변화시킬 수 있는 방안을 발표했다.
 +패널들은 국회, 경찰청, 대검찰청,​ 정보통신부 등의 정부기관의 소속 인물들로 구성되었다.
 +한국정부는 음지에서 이루어지는 성매매 문제를 해결하기 위한 하나의 방법으로 지정된 지하 매춘 장소에서만 호객 행위를 하도록 강력히 시행해왔다.
 +
 +2. (U) 2004년에 한국에서는 모든 형태의 성매매를 불법으로 만든 성매매 특별법을 통과되었다.
 +법안이 통과된 후, 경찰은 한국 사회의 한 단면으로 광범위하게 인정되어 오던 매춘 산업을 억제하기 위한 장기적인 노력을 시작했다.
 +NGO와 한국 정부는 매춘에 대한 사회 인식을 변화시키려는 노력과 함께 사회에 부정적인 영향을 주는 매춘의 단점을 부각시키 위해 힘을 쏟았다.
 +매춘업에 대한 단속이 시작된 후 매춘업주들은 자신들의 작업장을 전통적인 홍등가에서 마사지샵,​ 퇴폐 이발소, 노래방 등으로 이동시켰다.
 +또한 자신의 영업 상황을 은밀하게 유지하고 싶어하는 업주들에 의해 인터넷이 주요 매춘 흥정 장소로 이용되고 있다.
 +한국의 매춘 산업이 음지로 내려갈수록 한국 정부는 이에 보조를 맞춰 관련 규제를 강화하는 방향으로 정책을 만들고 있다.
 +
 +
 +===== 키노트 연사: 조진경, 다시함께 센터 =====
 +3. (U) "​사람들의 일상생활에서의 매춘을 밝히다"​의 테마로 다시함께 센터의 조진경 이사가 키노트를 시작하여 ​
 +일반인들의 일상생활에 어느정도까지 매춘이 허용이 되었고, 매춘 산업이 어떻게 규제되어 왔는지 특정 사례와 함께 제시했다. ​
 +현재의 매춘 규제 노력은 산업의 비지니스 측면에 집중되었다. ​
 +광고 및 영업 면허 발급에 대한 규제를 강화하는 것이 지하 매춘 고리를 끊는 첫번째 노력이었다.
 +
 +4. (U) 조 이사는 거주지에서의 매춘 행위가 얼마나 광범위하게 이루어지고 있는지에 대한 조사를 요약하여 발표하였다. ​
 +도시 지역이나 농촌 지역 모두 주거 지역에서의 매춘은 금지되어 있다. ​
 +도시지역에는 큰 기업 규모로 성장한, 룸살롱, 마사지 샵 같은 매춘 장소가 농촌 지역보다 많다. ​
 +최근의 매춘 영업의 특징은 매춘이 아닌 다른 서비스를 연상시키는 단어를 사용한다는 점이다. ​
 +농촌 지역에서는 다방, 노래방 등이 인근 모텔과 연결되어 소규모의 매춘 영업을 하는 특징을 보이고 있다.
 +
 +5. (U) 매춘과 관련된 셀 수 없이 많은 웹 사이트 및 관련 정보 교류를 인터넷에서 찾을 수 있는데 ​
 +그 범위는 관련 산업으로 여성을 유혹하는 광고로부터 시작해서 매춘을 자주 이용하는 사람들에 의해 작성된 리뷰에 이르기까지 다양하다. ​
 +조 이사는 현행 규제의 비효율성에 비해 매춘 산업은 사람들의 일상 생활에 맞춰 놀라운 적응력을 보여주고 있다고 언급했다. ​
 +그녀는 강력한 행정 조치(벌금,​ 명령 또는 위반 행위 단속을 위한 지방 자치 단체의 조례 제정)와 ​
 +더 많은 경찰 단속 및 법률상의 추가 조항 천명을 요구했다.
 +
 +===== 2번째 발표자: 조민영, 다시함께 센터 =====
 +6. (U) 다시함께 센터의 법률 고문인 조민영 발표자는 ​
 +4번째 문단의 다시함께 센터의 조사에 등장하는 두 개 지역의 법률 규제 사례에 대해 토론을 했다. ​
 +해당 연구에서는 준 매춘 영업(합법적인 영업으로 포장되지만,​ 매춘이 2차적으로 추가되는 영업 형태)의
 +법률 위반 행위와 그에 상응하는 관리 감독 조치 사이의 숫자를 비교했다.
 +매춘 영업에 대하여 경고, (장부 기록 누락, 매춘 알선, 청소년의 출입 허가 등에 대한) 벌금, ​
 +(잘못된 간판, 허가받지 않은 건물 레이아웃 변경, 화재 안전 기준 미준수 등에 대한) 개선 명령 , 
 +비지니스에 대한 지불 정지, (원래 영업 영역인 무허가 마사지 클럽, 음란 산업 참여에 대한) 영업 허가 취소 ​
 +등의 관리 감독이 이루어졌다.
 +조민영 발표자는 준 매춘 영업 발생 지역에 관리 감독을 위한 현행 법률이 있음에도 불구하고, ​
 +해당 법률은 효과적으로 적용하기에 너무 분명치 않거나 모호하고, ​
 +다른 법률 조항은 간단하게 시행되지 않는다고 결론을 맺었다.
 +
 +===== 기타 약어에 대한 설명 =====
 +1. (U) Unclassified의 약자.
 +2. (SBU) Sensitive But Unclassified의 약자.
 +3. (C) Confidential의 약자. 대외비.
 +4. (S) Secret의 약자. 기밀.
 +5. (U) SIPDIS: SIPRNet distributed;​ SIPRNet(미 국방부 인트라넷)에 배포됨
 +6. (U) NOFORN: Not releasable to Foreign Nationals; 외국에 배포 금지.
 +
 +====== 원문 ======
 +<​code>​
 +UNCLAS SEOUL 000983 ​
 + 
 +SIPDIS ​
 + 
 +SIPDIS ​
 + 
 +E.O. 12958: N/A 
 +TAGS: KCRM KWMN SMIG KS
 +SUBJECT: KOREA BEGINS TO SEE THE LIGHT ON UNDERGROUND ​
 +PROSTITUTION ​
 + 
 + 
 +------------------------ ​
 +SUMMARY AND INTRODUCTION ​
 +------------------------ ​
 + 
 +¶1.  (U) Representative Cho Bae sook, Chairperson of the 
 +Culture and Tourism Committee, co-hosted a seminar at the 
 +National Assembly on March 20 to discuss the evolution of the 
 +prostitution industry in Korea. ​ The other host of the event 
 +was the Dasi-Hamkke Center (Together Again Center), a large 
 +NGO that provides shelter and support for victims of 
 +prostitution and human trafficking. ​ In addition to the two 
 +keynote speakers from the Center, a panel of eight officials ​
 +from local and national government shared their insights into 
 +the changing nature of the prostitution industry in Korea. ​
 +The panel included members from the National Assembly, ​
 +National Police, Chief Prosecutor'​s office, Ministry of 
 +Communication and others. ​ The ROKG has recently cracked down 
 +on advertising used by underground prostitution venues, an 
 +area which falls under the jurisdiction of the Ministry of 
 +Culture and Tourism, as one way to root out the growing ​
 +problem of underground sex trade. ​
 + 
 +¶2.  (U) Korea passed sweeping anti-prostitution legislation ​
 +in 2004 that made all forms of prostitution illegal. ​ Soon 
 +after the law was passed, police initiated several prolonged ​
 +crackdowns in an initial effort to curb the prostitution ​
 +industry that was a widely accepted behind-the-scenes part of 
 +Korean society. ​ As NGOs and ROKG Ministries combined their 
 +public awareness efforts, public perception of prostitution ​
 +slowly began to change and people began to understand the 
 +negative effects it can have on society. ​ As pressure against ​
 +the prostitution industry mounted, brothel owners began to 
 +shift their work to alternate venues such as massage parlors, ​
 +barber shops and singing rooms although a few traditional ​
 +red-light districts continue to operate. ​ The Internet also 
 +became a popular method to arrange sexual encounters because ​
 +it provided protection for business owners who wanted to keep 
 +a low profile. ​ As the prostitution industry in Korea 
 +continued to move underground,​ the ROKG was trying to keep 
 +pace with its legislation and law enforcement tactics. ​ END 
 +SUMMARY AND INTRODUCTION. ​
 + 
 +--------------------------------------------- ----- 
 +KEYNOTE SPEAKER: CHO JIN-KYUNG, DASI-HAMKKE CENTER ​
 +--------------------------------------------- ----- 
 + 
 +¶3.  (U) Under the theme of "​Revealing Prostitution in 
 +People'​s Everyday Lives,"​ the keynote speaker, Cho Jin-kyung, ​
 +Director of Dasi-Hamkke Center, shared specific examples of 
 +how prostitution had permeated into the daily lives of 
 +ordinary citizens and how the industry was regulated. ​
 +Current regulation efforts are centered on the business ​
 +aspects of the industry. ​ Stricter regulation of advertising ​
 +and issuance of business licenses were the first steps in 
 +putting pressure on underground prostitution rings. ​
 + 
 +¶4.  (U) Director Cho summarized the findings of a research ​
 +project her organization conducted to find out how widespread ​
 +prostitution was in residential areas. ​ The research showed ​
 +that prostitution in residential areas was prevalent in both 
 +urban and rural areas. ​ Urban areas had more large-size, ​
 +high-end venues for prostitution like large "​room-salons"​ and 
 +massage parlors that grew into established businesses. ​ One 
 +recent trend was for prostitution businesses to use 
 +incorrectly spelled words on their sign boards to indicate ​
 +that the business provides a "​different"​ service. ​ In rural 
 +areas, underground prostitution businesses tended to be more 
 +small-sized,​ low-end coffee shops or music bars (norae bang), ​
 +often with connections to a neighboring motel. ​
 + 
 +¶5.  (U) Countless websites and exchanges of information ​
 +relating to prostitution were found on the Internet, ranging ​
 +from advertisements to lure women into the business to 
 +reviews by customers who frequented these underground ​
 +brothels. ​ Cho noted the remarkable adaptability of the 
 +prostitution industry to suit people'​s daily lives compared ​
 +to the ineffectiveness of current regulations. ​ She called ​
 +for stronger administrative action (fines, orders or other 
 +actions levied by the local government for breach of local 
 +ordinances),​ more police crackdowns and further clarification ​
 +of the provisions in the law. 
 + 
 +-------------------------------------------- ​
 + 
 +SPEAKER 2: CHO MIN-YOUNG, DASI-HAMKKE CENTER ​
 +-------------------------------------------- ​
 + 
 +¶6.  (U) Cho Min-young, Legal Counsel of the Dasi-Hamkke ​
 +Center, discussed the legal regulations pertaining to the two 
 +neighborhoods where the Center conducted its fact-finding ​
 +survey described in para. 4.  The study compared the number ​
 +of legal violations committed by quasi-prostitution ​
 +businesses (businesses that primarily provide a legitimate ​
 +business service with prostitution as a secondary business) ​
 +and the corresponding administrative actions that were 
 +imposed. ​ Some of the administrative actions taken against ​
 +the businesses included warnings and fines (for poor 
 +bookkeeping,​ brokering prostitution and admitting juveniles ​
 +to the premises), correction orders (for "​misleading ​
 +signboards, unauthorized changes in the layout of the 
 +building and noncompliance with fire codes), suspension of 
 +business and cancellation of business permits (for operating ​
 +outside of their original business category, operating a 
 +massage parlor without a license and engaging in lewd or 
 +indecent business). ​ Cho concluded that although the current ​
 +laws included provisions for administrative actions against ​
 +quasi-prostitution venues, they were often too vague or 
 +ambiguous to be applied effectively while other provisions ​
 +were simply not enforced. ​
 + 
 +---------------- ​
 +PANEL DISCUSSION ​
 +---------------- ​
 + 
 +¶7.  (U) Prosecutor Kang Ji-sik from the Seoul Central ​
 +District Prosecutors'​ Office suggested that the Ministry of 
 +Justice (MOJ) implement stronger administrative controls on 
 +real estate. ​ For example, some prostitution businesses are 
 +closed down only to reopen in the same location under a new 
 +name.  Korea should also shift from a registration-based ​
 +system to a permission-based system for those business types 
 +that are now synonymous with underground prostitution. ​ Kang 
 +also suggested that the MOJ provide more compensation for 
 +informants in an effort to root out more underground ​
 +businesses. ​
 + 
 +¶8.  (U) Director General Kwon Yong-hyun from the Ministry of 
 +Gender Equality and Family (MOGEF) suggested that Korea 
 +needed to establish a legal framework to regulate ​
 +quasi-prostitution businesses whereas there are currently ​
 +very few legal channels to pursue. ​ Kwon recommended stronger ​
 +punishment of building owners who knowingly allow 
 +prostitution to occur on the property. ​ Finally, Kwon urged 
 +the central government to be harsher in its assessment of 
 +local government'​s regulatory practices for underground ​
 +businesses. ​
 + 
 +¶9.  (U) Team Director Park Soon-tae from the Ministry of 
 +Culture and Tourism said his Ministry had championed efforts ​
 +since late 2006 to prevent "norae bang" (singing rooms) from 
 +turning into quasi-prostitution venues. ​ The Ministry ​
 +promoted legislation that prohibited the sale of alcoholic ​
 +beverages and prohibited the employment of "​waitresses"​ who 
 +worked as prostitutes. ​
 + 
 +¶10.  (U) Director Seo Jae-yul from the Seoul Metropolitan ​
 +City Government reported the number of crackdowns on 
 +entertainment businesses: ​ 85 bars, 87 singing bars, 132 
 +lodging facilities, 172 barber shops and 2 massage parlors ​
 +were subject to administrative actions between 2004 and 2006. 
 + Seo highlighted several challenges that police face when 
 +carrying out crackdowns; ineffectiveness due to the secret ​
 +nature of the prostitution industry, jurisdiction limitations ​
 +of local government officials, weak punishment and legal 
 +loopholes. ​
 + 
 +¶11.  (U) Researcher Yun Deok-kyung from the Korean Women'​s ​
 +Development Institute highlighted the difficulty in providing ​
 +evidence of prostitution at quasi-prostitution venues. ​ Yun 
 +questioned the effectiveness of administrative actions and 
 +pointed out that only a small number of cases were actually ​
 +prosecuted. ​ Yun recognized that "​whistle-blowers"​ play the 
 +most effective role in cracking down on prostitution,​ but 
 +remained skeptical of how many of those cases booked for 
 +investigation through an insider'​s tip actually resulted in 
 +indictments and punishment. ​
 + 
 +¶12.  (U) Women and Youth Team Director Lee Geum-hyung from 
 +the Korean National Police Agency argued that, unlike what 
 +many call a "​balloon effect"​ (as the prostitution industry is 
 +constricted in Korea, prostitutes move to other countries ​
 +with less law enforcement pressure) it was unfair to blame 
 +the Anti-Prostitution Act of 2004 as the root cause of 
 +quasi-prostitution activities. ​ Since the law was enacted in 
 +2004, crackdowns on quasi-prostitution venues far outnumbered ​
 +those on traditional red-light districts (44 percent to 4 
 +percent, respectively). ​ Lee also highlighted the growing ​
 +number of victims who utilized the National Police Agency'​s ​
 +117 hotline (1,012 in 2004; 1,679 in 2005; 2,595 in 2006). ​
 +Through this hotline, 598 victims were rescued and 2,187 
 +pimps or business owners providing prostitution services were 
 +booked for investigation. ​ She expressed concern about the 
 +sharp increase in the use of the Internet as a channel to 
 +lure juveniles into prostitution. ​ Since the enactment of the 
 +Anti-Prostituti ​
 +on Act in 2004, 590 out of 744 cases, or 79 percent of 
 +juvenile prostitution cases, were brokered through the 
 +Internet. ​
 + 
 +¶13.  (U) Rep. Hong Mi-young, a member of the Uri Party and 
 +the National Assembly Women'​s Affairs Committee, laid out her 
 +plans to initiate bills to revise the law on preventing ​
 +prostitution and protecting victims. ​ Specifically,​ Hong 
 +proposed to amend the following laws: 
 + 
 +--Act on the Prevention of Prostitution and Protection of 
 +Victims: ​ Add a new clause on administrative actions so that 
 +local governments would have more power to order the closure ​
 +of businesses providing prostitution services. ​
 + 
 +--Act on the Punishment of Prostitution Brokerage: ​ Add a new 
 +clause that would enable officials to subject business owners ​
 +to punishment when they have repeated violations. ​
 + 
 +--Building Act: Add a new clause that subjects a business to 
 +administrative action if they illegally remodel a building ​
 +for the purpose of engaging in prostitution. ​
 + 
 +--Public Health Management Act: Add a clause that would 
 +include prostitution brokerage as the grounds for business ​
 +closure and extend the period of business suspension when 
 +found to have continued operating a business after issuance ​
 +of a closure order. ​
 + 
 + 
 +------- ​
 +COMMENT ​
 +------- ​
 + 
 +¶14.  (SBU) The ROKG is finally beginning to devote more time 
 +and resources to better address the changing nature of the 
 +prostitution industry in Korea. ​ Recognizing that the 
 +industry has long since adapted to the 2004 laws, Korean ​
 +lawmakers are scrambling to find better ways to update and 
 +enforce the existing laws.  Although many in Korea cite the 
 +notion of a "​balloon effect"​ of prostitutes leaving Korea for 
 +other countries, this is not to say that the prostitution ​
 +industry is shrinking considerably in Korea. ​ While many of 
 +the initiatives discussed at the conference appear to be 
 +effective methods for limiting the supply of prostitution, ​
 +there was little discussion about how to address the demand. ​
 + 
 +¶15.  (SBU) Park Hyun-sook of the Ministry of Gender Equality ​
 +and Family told poloff that in 2004, only 30 percent of the 
 +population knew that prostitution was illegal while today the 
 +number is 93 percent. ​ A serious debate on the issue erupted ​
 +late last year as MOGEF introduced a plan where men would be 
 +paid if they promised not to engage in prostitution as part 
 +of the traditional end-of-year parties hosted by their 
 +employers. ​ Many men were angered that the Ministry continued ​
 +to perpetuate the idea that most men still engage in 
 +prostitution. ​ The plan was quickly halted but not before the 
 +media in Korea and abroad highlighted the incident as part of 
 +a larger problem in Korea. ​ Any long-term plan that will 
 +effectively reduce the size of the prostitution problem in 
 +Korea will need to include programs to change the way Koreans ​
 +view buying and selling sex. 
 +VERSHBOW
 +</​code>​