외국인 계절 근로자 운영에 관한 국가 간 비교 -역량강화와 인권기반 운영 관점-
A Comparative Study on the Foreign Seasonal Worker Program among Countries
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본 연구의 목적은 캐나다, 뉴질랜드, 호주의 계절근로자제도를 분석하고 이를 토대로 우리나라에 정책적 시사점을 제공하는 것이다. 분석을 위해 계절근로자 제도의 도입 목적, 선발과 채용, 노동권, 사회권, 이탈방지를 중심으로 살펴보았다. 분석결과 모든 국가에서 계절근로자제도는 농업인력 수급을 일차적 목표로 시작하였으나 운영과정에서 송출국의 빈곤해소와 인적자원화관점으로 변화되고 있었다. 둘째, 사례국가들은 인력의 선발과 채용에서 송출국의 요구에 기반하여 운영되고 있으나, 우리나라는 지방자치단체의 요구에 기반한다. 셋째, 계절근로자들의 노동조합에 참여가 사례국가 모두에서 허용되지만, 우리나라의 경우는 금지되어 있다. 넷째, 사회보장권은 의료보장 등의 혜택은 모두 허용되고 있으나, 연금은 호주만 인정하고 있다. 다섯째, 체류가능기간은 최대 7개월 정도이나, 우리나라는 최대 3개월이고, 문제가 없는 경우 재입국을 허용하고 있다. 모든 국가들은 이탈방지를 위한 제도가 있다. 정책적 함의는 첫째, 사례국가들은 송출국의 빈곤감소의 초기 운영목적 외에 계절근로자들의 역량강화를 위한 방향으로 변화를 모색하고 있고, 송출국의 요구를 적극적으로 반영한다. 둘째, 계절노동자들에 대한 일정정도의 제한은 있으나 노동권이나 사회보장권 등에 대해서는 인권에 기반한 운영 모델로 전환중이다. 계절근로자에 대한 경험이 부족한 우리나라의 경우 사례국가들의 운영 방식을 전적으로 모방하기 어려우나, 송출국 인력에 대한 역량강화와 인권기반 운영으로의 전환은 필요한 것으로 보인다.
Abstract
The purpose of this study is to analyze foreign seasonal worker programs in Canada, New Zealand, and Australia and provide policy implications to the Korean Government based on their programs. For the analysis, we focused on the purpose of introducing the seasonal worker system and aspects of selection and recruitment, labor rights, social rights, and prevention of departure. The study shows that the seasonal worker program started with the primary goal of addressing the supply and demand of agricultural personnel in all countries, but it was changing to solve the problems of poverty and human resource in the sending countries during the operation process. Second, the case countries operate based on the request of the sending country in the selection and recruitment of human resources, but Korea bases on the needs of local governments. Third, participation of seasonal workers in labor unions is allowed in all case countries but prohibited in Korea. Fourth, medical support for seasonal workers is guaranteed and allowed in all countries, but pensions are only recognized by Australia. Fifth, the maximum length of stay is about seven months, but in Korea, it is up to three months. All countries allow re-entry if there is no problem with a system to prevent the departure. The policy implications are: first, the case countries are seeking changes to strengthen the capacity of seasonal workers in addition to the initial purpose of reducing poverty in the sending countries and actively addressing the demands of the sending countries. Second, although there are some restrictions on seasonal workers, labor rights and social security rights are being converted to human rights-based operating models. In the case of Korea, which lacks experience in operating the seasonal workers system, it is difficult to fully imitate the ways case countries operate, but it seems necessary to strengthen the capacity of sending country personnel and shift to human rights-based operations.
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