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저숙련 외국인력제도, 이대로는 안된다

-고용허가제 6년의 현황, 문제와 개선책-



이철승(목사, 경남이주민센터 대표)

고용허가제의 현황


2010년 8월은 고용허가제 시행 6년을 맞는 때이다. 고용허가제 시행 3년 후 ‘현대판 노예제’라고 불리던 산업연수생 제도도 ‘청소’되었고, 고용허가제도 연륜이 쌓이면서 안정적인 외국인력제도로 자리잡아 나가고 있는 것처럼 보인다. 고용허가제 실시 직전까지만 해도 체류 외국인의 절반 이상이 미등록 신분이던 때를 벗어나 현재 미등록 체류자가 전체의 10% 대로 떨어진 것도 상당 부분은 고용허가제에 기인한다는 것을 인정할 수 있다. 그럼에도 불구하고 고용허가제 시행 당시부터 제기되었던 제도의 취약점에 대한 우려와 반발의 목소리는 여전히 잦아들지 않고 있다. 6년의 기간은 그동안 고용허가제의 누적된 문제점이 충분히 발현되는 때인 만큼 더 문제가 커지기 전에 하루 속히 개선해야 할 문제를 지적하고 방안을 강구해야 할 때이다.

저숙련 외국인력 도입 제도로서 고용허가제의 주요 특징을 먼저 요약해 보기로 한다. 첫째, 고용허가제는 내국인 일자리를 우선 보호하며 국내 노동시장의 보완성을 원칙으로 한다. 즉 외국인 노동력 유입으로 인한 국내 일자리 잠식을 막기 위해서 내국인 구인 노력을 의무화한다. 둘째, 외국인 근로자가 사업장을 선택하는 것이 아니라 전적으로 고용주가 외국 근로자를 선발하여 고용하는 제도이다. 셋째, 제도의 공공성과 투명성을 위해 해외에서 근로자를 선발하고 도입하는 과정에서 민간 기관을 배제하여 과도한 송출비용을 막는다. 넷째, 취업자에게 ‘정주화 방지’ 원칙을 적용하며 국내 단기 체류 기간 동안 국내 근로기준법을 적용하여 기본권을 보호한다.

고용허가제도 외의 저숙련 외국인력 도입 제도로는 중국, 구소련의 외국 국적 동포들에게 적용되는 ‘방문취업제’가 있다. 동포들은 일반 비동포 외국인들과 달리 의사소통의 문제가 거의 없어 방문취업제는 낮은 고용 비용으로 신속하고 간편하게 기업들의 요구들을 충족시키는 제도로 정착하고 있다.


단기순환식 이주정책의 정주화 문제


고용허가제는 대표적인 단기순환식 외국인력 정책이다. 독일, 미국, 대만 등 이러한 제도를 이미 경험한 나라들의 사례를 통해서 우리는 한국 고용허가제의 미래가 어떤 모습이 될 지를 충분히 짐작할 수 있다. 김준겸 교수(미국 콜로라도대학)는 독일과 미국의 선례를 통해, 짧은 고용 기간만 허용하는 비전문직 이주인력에게 적용되는 단기순환식 이주정책은 필연적으로 정주 이주정책으로 변화할 수밖에 없다고 주장한 바 있다. 1960년대 말 독일에 광부나 간호사로 이주노동을 떠났던 한국인들 중 90% 이상이 귀국하지 않고 독일에 눌러 살며 정주한 사례에서도 충분히 이를 알 수 있다. 김준겸 교수는 다음과 같은 세 가지 점에서 단기 순환 정책이 실패할 수밖에 없다고 주장한다.


1. 단순 기능 노동자는 본국에 돌아가지 않는다.

2. 외국인 임시고용제도는 장기고용제도로 변화한다.

3. 이주자의 기본권을 박탈하는 미숙련 이주노동자 정책은, 이주민이 한국사회에서 통합하는 과정을 저지시키고 ‘민족적 계층화’를 초래할 것이다.


이러한 주장은 그대로 한국의 고용허가제에도 시사하는 바가 크다. 1, 3번은 이미 현실적으로 돌출하고 있는 문제이며, 2번도 몇 차례에 걸친 ‘땜질’ 처방과 개선 과정을 통해 그 징후가 보이고 있다. 고용허가제 시행 초기만 해도 취업자가 3년의 체류 기간이 끝나면 재입국이 전혀 보장되지 않았으나, 곧 사용자의 재고용 의사가 있으면 출국을 통해 고용 관계를 해소하고 1개월 후 다시 입국하는 것으로 바뀌더니(3+3), 그 절차마저 번거롭다는 사용자측의 지적이 있어 취업자가 중간에 출국하지 않고 한국에 그대로 머무르며 최대 5년 미만의 한도 내에서 고용을 보장하는 것으로 바뀌었다.(3+2)

물론 이는 취업자인 이주노동자의 처지와 목소리를 감안한 것이 아니며 어디까지나 사용자의 편익 보장과 시장의 요구에 부응하기 위한 것이다. 어떤 측면에서 ‘3+2’는 ‘3+3’에 비하면 취업자에게는 앉아서 고스란히 1년을 손해 보는 셈이므로 거부감이 적지 않다. 취업자의 처지를 고려하느라 5년 이상의 체류를 보장하는 것은 단순기능 인력의 ‘정주화 방지’를 모토로 하는 고용허가제로서는 난감한 일이었을 것이다. 그러나 한국에 취업하기 위해 적지 않은 비용을 치르고 입국하는 이주노동자들에게 1년은 돈을 모으기에 결코 적지 않은 기간이며, 불법체류자라는 오명을 무릅쓰고서라도 한국 체류를 저울질할 수 있는 기간이라는 점이 고려되어야 한다.

자본의 요구에 따라 단기간만 소모될 인력으로 취급되기를 거부하는 이주노동자의 관점에 따르지 않더라도, 중?장기적 관점에서 고용허가제의 지속을 위한 검토 작업은 필요하다. 단순 기능 인력을 필요로 하는 산업이 존재하는 한 국내 진입에 성공한 외국인력은 좀처럼 본국으로 돌아가려고 하지 않는다는 점을 현실적으로 인정해야 할 필요가 있는 것이다. 이것은 이주노동자를 위한 것이 아니라 고용허가제 제도의 안정적인 지속을 위해서이다.

단기체류만 보장된 외국인력제도의 성공은 한 번 유입된 외국인력을 체류 기간 만료와 함께 귀국시킬 수 있느냐에 달려 있다. 한국의 고용허가제 취업자들이 체류 만료와 함께 본국 귀환을 원하는가 하는 질문에 대해 선뜻 그렇다고 답하기 힘들다는 것은 부인할 수 없는 현실이다. 그렇다면 정부가 취업자들의 안정적인 본국 귀환을 위해 지원하는 것도 고용허가제 내용에 포함되어야 마땅하다. 그러나 현행 고용허가제는 노동력을 사용하는 것만 있을 뿐 사용 후 귀국해야 할 취업 만료자들이 성공적으로 돌아갈 수 있도록 도와주는 정책적 배려가 전무하다. 그러다보니 단속 등 강제적인 행정력 집행을 통해서만 불법체류자를 해소하는 정책으로 귀결될 수밖에 없다. 최근에야 한국산업인력공단에서 취업 만료자의 귀국 지원에 눈을 떠서 직업능력교육을 일부 도입하고 있는 정도이다.  

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Maria

2021.10.06
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Holder

2021.10.12
21:37:26
(*.200.144.54)

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Georgette

2021.11.15
13:35:01
(*.200.144.39)

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William

2021.11.21
04:04:18
(*.171.96.25)

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Joseph

2021.11.22
09:43:29
(*.200.144.39)

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