repository
외국인근로자의 고용제도와 권리구제에 관한 연구
- Alternative Title
- A Study on the Employment System for Foreign Workers and Available Remedies for Violation of Their Legal Rights
- Author(s)
- 정봉수
- Alternative Author(s)
- Bongsoo Jung
- Advisor
- 이승길
- Department
- 일반대학원 법학과
- Publisher
- The Graduate School, Ajou University
- Publication Year
- 2018-02
- Language
- kor
- Keyword
- 외국인근로자; 단순기능 외국인근로자; 동포근로자; 전문외국인력; 고용허가제; 노동허가제; 외국인근로자의 고용제도; 외국인근로자의 권리구제
- Abstract
- 최근 우리나라는 저출산․고령화 시대에 들어섰고, 노동력의 부족문제를 해결하고자 외국인근로자를 도입하고 있다. 2017년 10월말 현재 우리나라에 상시 체류하는 외국인은 214만 명(전체 국민의 4.1%)이고, 2021년에는 상시 체류하는 외국인이 300만 명(5.8%)이 예상된다. 본 연구는 1993년 외국인근로자를 도입한지 25년이 경과한 시점에서 외국인근로자의 도입정책을 되돌아보고 향후 개선방안을 찾기 위하여 진행하였다. 현재 단순기능 외국인근로자는 고용허가제를 통해서 도입·관리하고 있으며, 전문외국인력은 출입국관리법에 따라 체류 자격별로 관리하고 있다. 단순기능 외국인근로자의 제도만으로는 사회적 갈등과 산업구조의 후진성을 극복하기 어렵다. 이제는 외국인근로자의 고용제도 및 권리구제에서 정책적 선택을 하여야 한다. 단순기능 외국인근로자의 도입은 억제하면서 단기순환원칙을 유지해야 하고, 기존의 숙련된 외국인근로자와 전문외국인력에 대해서는 예외적 정주화를 인정하여 장기체류를 장려해야 한다. 먼저, 기존의 외국인근로자와 관련된 연구물은 단순기능 외국인근로자의 활용제도와 인권의 보호를 주로 다루었다. 본 논문은 외국인고용제도의 균형적인 도입을 위해 ‘단순기능 외국인근로자’뿐만 아니라 ‘동포근로자’ 및 ‘전문외국인력’의 고용제도와 권리구제를 각각 구체적으로 제시한 점에서 차이점이 있다. 또한, 국제기준과 외국제도로 독일, 일본, 미국, 싱가포르에서 외국인근로자의 고용제도와 권리구제제도를 검토하였다. 독일은 통합이민법을 통해 외국인근로자의 사회통합을 위해 특별하게 노력하고 있고, 일본은 단순기능 외국인근로자를 최소한으로 유지하면서 고도의 전문외국인력을 적극 도입하고, 동포근로자와 유학생도 적극 활용하고 있다. 미국과 싱가포르는 이민국가로서 전문외국인력의 이민을 적극 권장하고, 단순기능 인력의 유입을 억제하는 이민정책을 통해 자국의 경쟁력을 유지하고 있다. 그리고, 체류자격별로 단순기능 외국인근로자, 동포근로자 및 전문외국인력에 대하여 각각의 외국인고용제도의 현황과 문제점을 검토하고, 현실에서 적용 가능한 개선방안을 제시하였다. 첫째, 단순기능 외국인근로자의 고용제도 개선방안을 제시하였다. 구체적으로는 ① 사업장 선택의 자유보장, ② 사업장 이동의 자유보장, ③ 단기순환 정책유지, ④ 불법체류에 대한 개선이 필요하다. 둘째, 동포근로자의 도입확대 방안을 제시하였다. 현 방문취업제(H-2)를 폐지하고 중국과 구소련 지역의 해외동포에게도 선진국의 재외동포(F-4) 체류자격을 부여하여 취업과 체류의 자유를 주어야 한다. 동포근로자에 대한 사회통합의 교육을 체계적으로 지원해 정착할 필요가 있다. 셋째, 전문외국인력의 도입확대 방안을 제시하였다. ① 전문외국인력에 대한 노동허가제 도입, ② 외국인고용법을 통한 전문외국인력의 통합관리, ③ 출입국관리법과 노동법의 협조 관계 구축, ④ 유학생의 활용방안을 적극적으로 모색해야 한다. 나아가, 개별적 근로관계 분야, 집단적 노사관계분야, 사회보험과 전용보험 분야에서 외국인근로자의 권리보호의 현황 및 문제점을 살펴보고, 현실적이고 구체적인 개선방안을 제언하였다. 첫째, 개별적 근로관계 분야에서는, ① 균등처우, ② 연차유급휴가의 보장 ③ 외국인 전용의 행정창구 개설, ④ 외국인근로자를 위한 근로기준법과 출입국관리를 통합하는 법체계의 도입이 필요하다. 둘째, 집단적 노사관계 분야에서는, ① 근로조건의 향상을 위한 노동 3권을 보장을 통한 외국인근로자의 사업장내 단위노동조합 가입을 적극 수용하고, 노동조합의 미조직 사업장의 경우 외국인근로자가 지역일반노조로의 편입이 필요하며, ② 외국인근로자가 포함된 노사협의회제도의 활성화가 필요하다. 셋째, 사회보험과 전용보험 분야에서는, ① 고용보험의 경우 고용보험의 의무 가입과 직업능력교육의 확대를 추진해야 한다. ② 산재보험의 경우 농어촌 지역의 산재보험 적용제외 사업장을 의무가입 사업장으로 전환해 산재사고 시 산재보험처리를 활성화해야 한다. ③ 국민건강보험의 경우 기본권의 보호 차원에서 불법체류자의 의료보험 가입을 허용해야 한다. ④ 국민연금의 경우 단순기능 외국인근로자는 노령연금 수급권이 없기 때문에 국민연금의 가입대상자에서 제외해야 한다. ⑤ 전용보험 분야에서는 퇴직금에 갈음하여 출국 시에만 수령할 수 있는 출국만기보험과 관련해 장기체류자의 예외를 인정해야 한다. 외국인근로자의 고용제도 및 권리구제의 개선을 위해서는 외국인근로자의 활용과 인권 보호라는 양면을 함께 보아야 한다. 이를 통하여 외국인과 내국인이 조화롭게 공존하며 협력하는 사회로 발전할 필요가 있다.
- Alternative Abstract
- Korea has now entered into an age of low fertility and existence as an aged society, and has been introducing more foreign workers due to the resulting labor shortages. As of the end of October 2017, 2.14 million foreign nationals are residing in Korea, accounting for 4.1% of the total population. That number is predicted to exceed 3 million within four years, which will be equivalent to 5.8% of Korea’s total population. It has been 25 years since foreign workers were first allowed into Korea in 1993, and this study takes the view that it is time to review the related current policies and consider ways to improve them. Currently, non-professional foreign workers are introduced and managed through the Employment Permit System, while professional foreign workers are managed according to their immigration status in accordance with the Immigration Control Act. It is difficult to overcome the social conflicts and the backwardness of the industrial structure caused by managing only non-professional workers through the Employment Permit System. Now, policy priority should be on the employment system. In other words, the short-term cyclical system should be maintained while restraining the introduction of non-professional workers, but existing skilled and professional foreign workers should be granted exceptional conditions to encourage them to stay long term. The use of non-professional foreign workers and their human rights has been dealt with by a number of existing thesis papers. This study differs in that it looks at the employment systems for overseas Koreans and professional foreigners as well as non-professional foreigners towards maintaining a balanced foreign employment system. In particular, I have carefully examined the employment and remedy systems for foreign workers in countries such as Germany, Japan, the United States and Singapore. Germany has been making special efforts to integrate foreign workers through integrated immigration law. Japan has been actively introducing highly-specialized foreigners while keeping the number of non-professional foreign workers to a minimum, and has also been widely utilizing overseas Japanese and foreign students in Japan. The United States and Singapore, which are immigration destinations, maintain their competitiveness through policies that strongly encourage entry of professional workers and suppress the numbers of unskilled persons coming in. In this thesis paper, I review the current status and problems with the employment systems for non-professional and professional foreigners, as well as for overseas Koreans, and suggest ways to improve those systems in reality. In particular, I suggest that the management of foreign workers should be supervised by the Ministry of Employment and Labor, rather than the Ministry of Justice, with the former introduced as having responsibilities that are expanded from its present supervision of non-professional foreign workers, to include overseas Koreans and professional foreigners. First, I look at improving the protection of the human rights of non-professional foreign workers. Specifically, ① granting the freedom to choose their workplace, ② granting the freedom to change their workplace, ③ maintenance of a short-term circulation policy, and ④ decreasing illegal stays. Second, I suggest the active efforts to employ overseas Korean workers. This will necessitate abolishing the current employment system (H-2) and giving overseas Koreans in China and the states of the former Soviet Union a status of residence as overseas Koreans (F-4) from developed countries. In addition, The government should systematically support education on social integration for Korean workers and support them as they settle in Korea. Through this, the social costs of an increase in non-professional foreign workers will be reduced and numbers added to an insufficient labor force. Third, I suggest plans to expand the introduction of professional foreign workers in the following ways: (1) Introduce a work permit system exclusively for professional foreign workers; (2) Integrate the management of professional foreign workers into the Foreigners’ Employment Act; (3) Establish a synergistic relationship between the Immigration Control Act and the Labor Standards Act; and (4) promote the active use of foreign students in Korea. In addition, I review the current status and problems surrounding protection of foreign worker rights in individual employment relations, collective labor relations, social insurances and foreign workers’ insurance, and also suggest measures for improvement. In terms of individual employment relations, details would include: (1) guaranteeing equal treatment; (2) providing annual paid leave; (3) establishing an exclusive administrative window for handling foreigners; and (4) introducing a legal system for foreign workers that integrates the Labor Standards Act and the Immigration Control Act. In terms of collective labor relations, towards guaranteeing the three labor rights to improve working conditions: ① foreign workers should be actively accommodated by unit labor unions in the workplace or should be incorporated into local unions if they work at unorganized workplaces; ② it is necessary to revitalize the labor-management cooperation system along with the participation of foreign workers. Regarding social and foreign workers’ insurances: ① In the field of unemployment insurance, it is necessary to obligate foreign workers to subscribe to unemployment insurance, and to extend vocational skills education; ② in the field of industrial accident compensation insurance, it is necessary to include the workplaces presently excluded from agricultural and livelihood coverage; ③ In the field of national health insurance, even illegal immigrants must be required to subscribe, ④ In the field of national pension, as non-professional workers return to their home countries after serving a short period, they will be exempted from subscription of the national pension because they are not entitled to the old age pension due to their short stay in Korea. ⑤ In the field of foreign workers’ insurance, it is necessary for foreign workers staying long term to be able to receive severance pay upon termination of employment, rather than receiving the foreign workers’ departure guarantee insurance (equivalent to severance pay) that can be collected only when leaving the country. When evaluating the foreigner employment system, it is important to see together the advantages and disadvantages of their use and protecting their human rights. The employment system and the remedy system for foreign workers as described above will enable Korea’s development as a society where foreigners and Koreans can work together and coexist harmoniously.
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