公務員의 服務關係에 關한 硏究

Abstract

本論文은 現行 公務員法을 中心으로 하여 公務員服務關係에서의 諸權利의 制限과 諸義務의 賦課에 對한 個別的·具體的 法的根據를 糾明하고, 그 限界를 分明히 함으로써 法的規制의 妥當性 與否를 밝혀봄과 同時에, 嚴格한 解釋을 通해 올바른 民主行政의 機能과 公務員 個人의 基本權保障과의 調和를 이루는 均衡點을 찾아, 實際運用과 適用에 寄與하고자 함이다. 먼저 公務員制度 一般에 關한 槪觀을 爲하여, 近代公務員制度의 本質과 類型, 그리고 民主的 公務員制度와 職業公務員制度에 原則을 둔 現行 우리나라 公務員制度의 原則을 살피고, 本論文의 對象이 되는 公務員의 範圍를 把握하기 爲하여 公務員의 槪念, 本質, 種類를 簡單히 整理하고, 本論文에서는 公務員法上의 狹義의 公務員으로서 國家公務員法과 地方公務員法의 服務規定을 適用받고 있는 一般職公務員을 그 對象으로 하기로 하였다. 다음 章에서는 本論文의 中心部分이 되는 公務員의 服務關係를 다룸에 있어, 公務員들에게 特殊義務를 지우고 一定한 基本法을 制限할 수 있는 根據를 어디에서 求하는가와의 關係가 問題의 核心이라고 生覺하여, 지금까지 公務員關係를 包括的·一律的으로 取扱해온 特別權力關係論을 再檢討하였다. 公務員服務關係에서의 公務員의 特定의 義務負擔과 基本權制限의 根據는 特別權力關係에서 當然히 오는 것이라고 보기보다는 公務員의 國民全體의 奉仕者로서의 公務遂行이라는 點에서, 各各의 職務의 內容과 性質에 따른 個別的·具體的事項에 따라 極히 制限的으로 認定되어야 한다고 考察하였다. 이러한 立場에서 現行法上의 公務員의 主要義務를 職務上義務와 身分上義務로 나누고 前者로는, 服從義務·法令遵守義務·職務專念義務를, 後者로는, 秘密嚴守義務·政治運動禁止義務·集團行爲禁止義務를 個別的으로 檢討하였다. 아울러 各 義務內容의 實踐過程에서의 問題點을 살피고 民主主義國家의 實現을 爲한 公務員의 機能을 完遂할 수 있는 方案도 模索해 보았다. 이어서 公務員의 責任에 對해서 考察했다. 이 責任에 對해서는 現行 公務員法上의 懲戒責任·弁償責任·行政罰責任에 對해서 公務員의 身分保障과 關聯시켜 論하였다. 또 이러한 公務員의 責任에서 不利益處分을 받은 公務員은 그들의 身分保障의 擔保를 爲한 訴請制度와 行政訴訟에 依한 救濟의 길이 있다. 이에 對한 現實的 權利救濟를 爲한 檢討를 하였으며, 여기에서의 問題는 訴請對象의 擴大와 訴請審査機關의 强力한 獨立性이 要求된다고 보았으며 또한 1975年부터 始作된 庶政刷新以後 公務員의 懲戒가 急增하고 있으며, 反面 이에 對한 訴請의 救濟率은 顯著히 低下되고 있는 點도 보았다. 이것은 庶政刷新이 本來의 目的과는 달리 懲戒와 肅淸의 手段으로 되어 버린다면, 公務員의 身分保障과 逆行함으로써, 이는 公務員의 身分을 保障한 憲法精神에 反하는 것이므로 이에 對한 새로운 評價가 要求된다고 보았다. 以上의 硏究에서 얻은 結論은 公務員에 對한 諸義務의 賦課와 一定한 基本權의 制限에 있어 個個의 公務員이 擔當하는 職務의 內容과 性質에 따라 區分하여, 그 制限의 程度와 內容을 달리하는 立法的解決이 優先되어야 하며, 解釋論으로는 關係法規의 適用·運用에 있어 最大의 嚴格한 解釋이 要求된다고 考察하였다. 또한 이 服務關係에 臨하는 公務員 個個人도 國民全體의 奉仕者, 民主行政의 擔當者로서의 强한 意識을 갖는 것이 必要하며, 아울러 이를 뒷받침할 强力한 身分保障制度가 補完되어야 할 것이라고 思料되었다. 끝으로 本硏究에 있어 實際의 判例와 事例를 通하여 法院의 判例傾向과 國家機關 實際運營의 問題를 考察하려고 하였으나, 資料蒐輯이 困難하였고, 判例에 있어서도 身分上服務에 關係되는 事項은 比較的 많지 않아, 이에 對한 考察이 充分하지 못했음을 아쉽게 생각한다.;The purpose of this thesis was to investigate the legitimacy of legal regulations by means of defining the boundary and finding out individual, concrete and legal ground on the restriction of various rights and the imposition of various duties in civil servants service relations centering around civil servants law in force. And at the same time to make a contribution to the practical management and application by means of finding out balance point to be harmonize correct function of democratic administration with the guarantee of fundamental right of individual civil servant through strict interpretation. And so, first of all, the essense and types of modern civil servants system was examined in order to survey general civil servants system. And in order to do so, the principles of current civil servants system of Korea based on democratic civil servants system was examined, and briefly arranged conception, essence and types of civil servants in order to catch hold of the catagory of the civil servants. And finally in this thesis the subject of study confined to general civil servants which was applicable to a service rules of national civil servants law and local civil servants law as a civil servant in a narrow sense with respect to the civil servants law. Next chapter has restudied on special power relations which generally had dealt with civil service relation in view of the fact that how the characteristic of civil service relations is looked upon, in other words, where the ground can be sought to regulate certain fundamental rights of civil servants who have been imposed on special obligations. This thesis hasn't taken it for granted that assuming of special obligation and the ground of fundamental rights restriction would spring from the theory of special power retalions, and has come to a conclusion that the civil servants rights should be partially recognized according to the contents of each duty and to individual and concrete situation in view that civil servants are to serve as servants for their entire people. Under these circumstances, the main obligations of civil servants in current laws can be devided into the obligations in a sense of duty and those in a sense of individual social status. And the former involves the obligation of obidience, law abiding and duty concentration, and the latter involves the obligation of keeping secret, non-political activity and non-group activity. This thesis has considered the ways in which the function of civil servants can be carried out for the realization of democratic nation through studying various problems coming up in the course of each duty performance. There are such responsibilities in current civil servants laws as disciplinary punishment, compensation, and administrative punishment responsiblities which have been discussed in this thesis in connection with the gurantee of civil servants social status. In this responsibilities of civil servants, those civil servants who suffer from any other unfavourable treatment would be survived through legel procedures of court trial or appeals reviewing system. This thesis has discussed the way of practical saving of civil servants rights, expansion of subjects requiring appeals reviewing system, and strong independence of Appeal Reviewing Committee, and also pointed out that there should be new measures and considerations on the fact that eversince the year of 1975 when the administrative renovation started, the amount of disciplinary punishment has been increased against civil servants and yet, the relief of such punished civil servants has been reduced, and this kind of trend has apparently done good to the policy of administrative renovation, but on the other hand, it has much influence on the morale of civil servants, consequently disturbing the actual duty performance, and it is against the national constitutional law spirit. The conclusion obtained from the foregoing study is that the restriction of certain fundamental rights and imposing certain obligation on civil servants should be classified according to the contents and characteristics of oblightions which civil servant is to take, and accordingly, the legislative solution to the said matter should be preceded and the fundamental civil servant rights should be guaranteed in maximum by strict interpretation of the management and application of pertinent laws. And strong security of the tenure of civil servants should be firmly formed, so that civil servants might be able to devote themselves as real servant of the entire people to their welfare and benifits. Finally, in this thesis the writer intended to have investigated a tendeney of a leading case of court and matter of praitical management of a state organ through an actual examples of a leading case. But I felt somthing lacking of which an investigation on this was not thoroughgoing enough because of many difficulties in collecting materials and comparatively few articles about service in social status in leading cases.