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한국 저숙련 이주노동자의 사회적 통합과 배제에 관한 연구: 담론적 제도주의 관점에서

Understanding the Social Inclusion and Exclusion of Low-skilled Labour Migrants in South Korea: A Discursive Institutionalist Perspective

김경환
정부학연구소 (Institute of Governmental Studies)|2020.08|정부학연구 (Journal of Governmental Studies(JGS))|제26권 제2호|pp. 275-322|DOI 10.19067/jgs.2020.26.2.275

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키워드

이주노동자사회적 통합social inclusion담론적 제도주의labour migrantsdiscursive institutionalism
주제분류행정학

초록

본 연구의 목적은 한국 이주노동자의 사회적 통합과 배제를 역사적 관점에서 분석ㆍ설명하는 것이다. 구체적으로, 동포노동자와 비동포노동자를 포함한 저숙련 이주노동자와 관련한 정책변화에 초점을 맞추었으며, 입국 및 거주, 노동시장 접근성, 복지수급, 정치참여, 차별금지 등 다섯 가지 정책영역을 고려하였다. 지난 20여 년 동안 한국사회에서 저숙련 이주노동자의 사회적 통합과 배제는 차별적 배제에서 인종에 따른 위계적 통합으로 변화하였는데, 이의 변화과정을 담론적 제도주의 관점에서 분석하였다. 분석결과, 진보정치세력과 시민사회는 인권과 다문화주의와 같은 대안적 정책담론을 주로 활용하였으며, 보수정치세력과 기업은 생산주의와 인종적 민주주의와 같은 정책적 유산을 고수함과 동시에 대안적 담론, 특히 다문화주의를 재정의하였다. 이러한 행위자와 아이디어 간 갈등과 경쟁, 그리고 상호작용을 통해 저숙련 이주노동자는 한국사회에 점차 통합될 수 있었지만, 동시에 인종에 따른 위계적 체제가 형성되었다.

Abstract

This article aims to examine and explain the development of immigrants’ rights and responsibilities in Korea from a historical perspective. Specifically, it focuses on policy changes related to low-skilled labour migrants, including both co-ethnic migrants and others. Over the last two decades, the social inclusion and exclusion of low-skilled labour migrants in Korea have shifted from differential exclusion to ethnically hierarchical inclusion. Based on the discursive institutionalist analysis, the rationale behind the shift can be found in the politics of inclusion and exclusion and the interactions with policy ideas. Specifically, progressive parties and civil society have earned public support on the issues of low-skilled labour migrants through alternative challenging ideas (e.g. human rights and multiculturalism), thus contributing to the improvement in their rights and responsibilities to some extent. On the contrary, conservative parties and business have strongly advocated their ethnically differential inclusion by simultaneously adhering to the policy legacies (e.g. productivism and ethnic nationalism) and redefining the alternatives (particularly, multiculturalism). Such an interplay of political dynamics and policy ideas has led to the ethnically hierarchical inclusion of low-skilled labour migrants in Korea.

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