韓國敎員의 權利, 義務에 관한 硏究

Abstract

硏究의 目的 본 연구는 敎職의 複合的인 諸 特性 즉 專門性·公供性·勤勞者性은 敎員의 役割에 葛藤을 야기시키고, 이러한 葛藤은 敎職에 대한 敎員의 不滿의 原因이 되고 있다는 假定에서 시작된다. 이러한 假定에서, 敎員의 地位에 관련되는 法規上의 葛藤과 敎員의 意識構造上의 葛藤을 발견하여 있어야 할 韓國敎員의 地位를 定立해 보자는 것이 本 硏究의 目的이었다. 敎員의 地位를 保障하고 保護하기 위하여 敎員에게 주어지는 힘을 權利(right)라고 하고, 敎員으로 하여금 어떠한 行動을 하거나 하지 못하도록 生動을 拘束하는 義務(duty, obigation)라고 한다면, 敎員의 地位의 定立은 바로 敎員의 權利와 義務를 규명하는 일이 된다. 따라서 본 硏究에서는 敎員의 權利와 義務에 관한 “있어야 할 모형”을 設定해 봄으로써, 韓國敎員의 地位를 定立해 보고자 하였다. 硏究의 內容과 節次 본 연구의 II章에서는 準據模型의 設定段階로서 專門性·公供性·勤勞者性의 三側面에서 그 理論을 展開하고, 이 特性에서 각각 敎員에게 期待되는 權利와 義務를 밝혔다. 밝혀진 權利와 義務를 본 硏究의 準據「模型」으로 삼았다. 본 硏究의 III, IV章은 準據「模型」의 관점에서 敎員의 葛藤을 分析하는 段階로서 (1) 韓國敎員의 權利·義務에 관련되는 法規上의 葛藤을 발견하고, (2) 權利·義務에 대한 韓國敎員의 意識構造上의 葛藤을 발견하였다. 본 硏究의 V章은 韓國敎員의 地位를 定立하는데 참고가 될 比較硏究의 段階로써 (1) ILO/UNESCO의 ‘敎員의 地位에 관한 勸告’를 分析하고, (2) 이 勸告의 世界諸國의 適用 정도를 파악하였다. 이상과 같은 연구의 內容중에서, 한국교원의 의식에 관한 분석은 質問紙法을 사용하였으며, 그외의 內容은 文獻硏究와 資料分析에 의하였다. 硏究의 結果 본 연구의 VI章은 綜合과 結論의 段階로서 敎職의 複合的인 諸 特性은 敎員의 地位에 다음과 같은 葛藤을 초래하고 있음을 밝히고 있다. 1. 敎員의 專門性 側面의 自律性과 公共性 側面이 國家公務員으로서의 服務義務와는 相互葛藤關係에 놓여 있고, 敎育課程·敎科書 등의 國家的 決定權은 敎員의 專門性 側面의 義務를 形式化한다. 2. 敎員의 公共性 側面의 義務는 敎員의 專門性 側面의 權利와 勤勞者性 側面의 權利를 동시에 손상시키고 있다. 한편 公共性 側面의 지나친 身分保障도 敎員의 自律的 專門性 維持를 손상케 할 수 있다. 3. 敎員의 勤勞者性 側面의 權利는 專門性 側面의 自律性을 더욱 補完할 수 있으나, 勤勞者性 側面의 無制限한 權利行使는 專門性, 公共性의 義務를 同時에 손상시킬 수 있다. 4. 韓國敎員은 敎職의 諸 特性에서 기대되는 權利·義務의 相互關係에서 葛藤을 드러내고 있다. 5. ILO/UNESCO의 ‘敎員의 地位에 관한 勸告’와 이 勸告와 관련되는 世界諸國의 適用傾向은 모두 專門性 側面을 강조하고 있으며, 그 法制化에 노력하고 있다. 이러한 硏究를 통하여, 본 硏究에서는 다음과 같은 결론에 도달하였다. 韓國의 法·實際와 敎員의 權利·義務意識은 敎職을 自律性으로 維持하기보다 公共性으로 維持하기가 더욱가능하였다. 그러나 民主的 敎育發展·國民의 最善의 敎育機會 및 世界諸國의 傾向을 감안하여, 본 硏究에서는 專門性을 강조하는 敎員의 地位를 확보하려는 데 目的을 두었다. 이러한 관점에서 본 硏究의 準據「模型」은 다음과 같이 修正·補完되어야 한다. 1. 韓國敎員의 地位는 敎職 專門職으로 定立한다. 따라서 準據「模型」의 專門性 權利·義務는 더욱 保障되어야 한다. 2. 公共性 側面의 權利에서, 財産上의 保障은 公敎育의 관점에서 「模型」상의 公共性의 權利로 계속 維持되고, 身分上이 權利는 專門性 側面의 敎職團體와의 共同決定을 通하여 補完되어야 한다. 3. 公共性 側面의 國家公務員으로서의 服務義務는 國家公務員法에 準하여 規律하지 않고 專門性 側面의 倫理網領을 通한 自律的 規制의 義務로 간주되어야 한다. 4. 勤勞者性 側面의 團體行動權은 專門性의 權利로 간주되어야 하며, 專門職 團體交涉權으로 機能化하게 한다. 한편, 勤勞者性 側面에서 社會人으로서의 生活人의 權利는 專門性 側面의 自律的 倫理網領에서 限界지워져야 한다. 準據「模型」을 修正한 이상과 같은 「模型」은 敎職의 專門職 自律性을 위하여 「있어야 할 韓國敎員의 權利·義務의 模型」이라고 본다. 이러한 專門職 敎員의 地位는 (1)敎員과 行政機關과의 相補的協力關係를 形成시키고 (2)學校敎育과 敎員의 創意的 努力을 極大化할 수 있으며 (3)行政機關의 努力을 減少시키고 (4) 國庫의 投入이 현재보다 減少하게 되며 (5) 私法上의 勤務關係에 놓인 私立敎員의 民法上의 權利를 認定하게 된다. 이러한 모든 結果는 교원의 複合的인 三面性의 期待를 專門性의 관점에서 모두 滿足시키는 敎員의 地位를 形成하게 될 것이다. 따라서 敎員의 不滿은 상당히 除去되며, 敎育效果는 보다 높아지게 된다. 提言 이러한 敎職自律性을 통한 敎育效果는 다음과 같은 敎育體制의 改善程度에 따라 可能하게 된다. 1. 敎育內的 事項에 대한 中央的 行政權은 一線 敎育機關에 移讓되어야 한다. 2. 學校行政은 民主的 過程을 통해서 遂行되어야 한다. 3. 敎職團體는 專門職 交涉을 통하여 영향력 있는 機能을 行使하여야 한다. 4. 敎員 각자는 專門家로서의 職務遂行에 최선을 다 하여야 한다. 5. 敎育關係法은 民主主義 敎育理念의 實現을 위하여 正義的으로 解釋·適用되어야 한다. ; Objective This study was conducted on the assumption that the complex characteristics of the teaching profession, that is, professional, public and laboring natures, cause conflicts in the role of the teacher and that these conflicts are the cause of the teacher’s grievances about his profession. The objective of the study is to establish the status of the Korean teacher through identifying the conflicts involved in laws and regulations related to his status and in his frame of consciousness on the basis of the above assumption. If the force given to the teacher to insure and protect his status is called his ‘rights’ and if the force binding his conduct to some scope or limit of behavior is called his “obligations” or “duties” the establishment of his status will be the identifying of his right and obligation or duty. In the present study, an attempt was made to define the status of the Korean teacher by developing “desirable model” of the right and obligation of the Korean teacher. Scope and Procedures In Chapter II of this study, an effort was made to set up a standard model. A theory was developed on the three aspects of teaching profession, that is, professional, public and laboring natures, and the rights and obligations of the teacher expected in each of these natures were identified in order to develop the standard model on the basis of the rights and obligations thus identified. In Chapters III and IV, the conflicts of the teacher were identified and analyzed on the basis of the said standard model, as follows: 1. Identification of conflicts involved in laws and regulations related to the rights and obligations of the Korea teacher. 2. Identification of conflicts involved in the Korean teacher’s frame of consciousness related to this rights and obligations. In Chapter V, (1) the ILO/UNESCO’s “Recommendation concerning the Status of Teachers” was analyzed and (2) how this recommendation is applied in various countries of the world was studied in a comparative study for establishment of the status of the Korean teacher. For a study of the structure of Korean teachers’ consciousness, a questionnaire was adopted; other studies adopted a methodology based on analyses of reference materials and data. Results and Conclusions In Chapter VI, all analyzed data were reviewed and discussed. It was found that the complex characteristics of the teaching profession caused the following conflicts related to the teacher’s status. 1. The autonomy of the teacher as a professional contradicts the service regulations imposed on him as a public servant. The government’s right to decide on school curricula and textbooks makes the teacher’s professional right formal and irrational. 2. The teacher’s obligations as a public servant infringe on his rights as a professional and as a worker, too, in addition, the extreme security of his status as a public servant makes it very difficult for him to maintain his right to autonomy as a professional. 3. The teacher’s rights as a worker can complement his autonomy as a professional, but the limitless exercise of his rights as a worker may reduce his obligations as a public servant and as a professional, too. 4. The Korean teacher has conflicts between the rights and obligations expected in the characteristics of the teaching profession. 5. The ILO/UNESO ‘Recommendation concerning the Status of Teacher’ and the trends of countries of the world in the application of this recommendation stress the professional nature of the teacher and suggest the legislation of the teacher’s professionalism. On the basis of the above analyses and discussions, this study reached the following conclusion. The law and its practice and the teacher’s consciousness of his rights and obligations in Korea today make it easier for the teacher to maintain his status as a public servant than to maintain his autonomy as a professional. But in this study, the development of democratic education, the best opportunity of education for the people and the current trends of education in various countries were considered in an attempt to seek a way to guarantee the teacher’s status as a professional by stressing his professional characteristics. In this consideration, the standard model developed in this study must be complemented as follows: 1. The status of the Korean teacher should be established as a professional one, and the professional rights and obligations as defined in the standard model should be further promoted. 2. As for the teacher’s rights as a public servant, the guarantee of property rights should be continuously maintained as a public right in the standard model in view of public education, and his right to the status of a professional should be complemented through a joint decision by the organizations of teaching profession. 3. The teacher’s obligation to serve as a public servant should not be regulated by the Public Service Law. Instead it should be regarded as an obligation that should be fulfilled under autonomous regulation through the ethics code of conduct applicable to professionalism. 4. The teacher s right to collective action as a worker should be regarded as the right of a professional and be made a function of collective bargaining for professionalism. the teacher s right as a worker should be regulated by the autonomy and ethics code of conduct of the professional. The revised model of the standard model is considered “the desirable model of the Korean teacher’s rights and obligations” in order to promote the autonomy of the teaching profession as a profession. The teacher’s status as a professional helps to (1) constitute a complementary relationship between the teacher and the government, (2) maximize the creative efforts of school education and teachers (3) reduce the educational efforts of the government, (4) decrease the government’s investment in education, and (5) promote the rights of private school teachers as set forth in the Civil Code. This will further help establish the teacher’s status meeting expectations in the complex characteristics of the teaching profession and remove the teacher’s grievances, thereby promoting educational effects. Suggestions The educational effects of the autonomy of the teaching profession will be increased only through improvement of the educational system as suggested below. 1. Educational laws should be so revised as to delegate the centralized administrative rights in inter-educational matters to field educational agencies. 2. School administration should be exercised through the democratic process. 3. Educational laws should be so revised that organizations of teachers may carry out influential functions through collective bargaining for professionalism. 4. All teachers should seek to achieve the highest possible standards in all their professional work. 5. Educational laws should be interpreted and applied in a just manner for the realization of the ideals of democratic education.