ILO 핵심협약 비준에 따른 노동관계법 개정에 대한 평가와 과제 - 공무원노조법 및 공무원노조법 시행령을 중심으로 - (The Evaluation and Tasks for the Amendments of Labor Relations Law in Accordance with the Ratification of the ILO Core Conventions - Focusing on the Civil Service Labor Union Act and the Enforcement D)

서지정보

· 발행기관 : 한국법학회
· 수록지 정보 : 법학연구 / 21권 / 3호 / 75 ~ 100페이지
· 저자명 : 이재용

초록

본고에서는 ILO 핵심협약 비준에 따른 국내 노동관계법의 개정 내용 중 공무원노조법과 동법시행령을 중심으로 검토하였다. 우리나라는 1991년 ILO 가입 후 국제사회에 핵심협약 비준을 지속적으로 약속해 왔으나, 김대중 정부에서 4개의 핵심협약을 비준한 이후 20년 가까이 추가 비준을 하지 않았다. 문재인 정부 들어서 ‘노동존중 사회 실현’을 국정과제로 표방하고 미비준 핵심협약의 비준을 추진한 끝에 이번에 제29호(강제노동 철폐 협약), 제87호(결사의 자유와 단결권의 보장 협약), 제98호(단결권과 단체교섭권 협약) 등 3개 협약에 대한 추가 비준이 이루어진 것이다. 이로써 우리나라는 8개의 핵심협약 중 7개를 비준한 나라가 되었으며 이는 미국(2개), 일본(6개)보다 많은 수준이다.
ILO 핵심협약이 비준되면 헌법 제6조에 따라 국내법과 같은 효력을 갖기 때문에 핵심협약의 내용과 배치되는 국내 노동관계법의 개정이 필요하였다. 이에 2018. 4.부터 경제사회노동위원회(이하 ‘경사노위’라 함)를 중심으로 해고자 등 노조 가입 허용, 노조전임자에 대한 급여지급 금지 규정 개정 등 협약 비준을 위한 필수개정사항에 대한 사회적 대화가 시작되었고, 이어 핵심협약 비준과 직･간접적으로 관련되는 개정 필요사항까지 논의가 확대되었다. 2019. 5. 20. 사회적 대화가 최종 결렬되면서 한 때 위기를 맞았으나, 2019. 5. 22. 정부가 핵심협약 비준과 노동조합법･공무원노조법･교원노조법 등 소위 ILO 3법의 개정을 20대 정기국회 회기 내에 마무리하겠다고 밝히며 논의를 이어갔다. 결국 3년이 넘는 지난한 과정 끝에 지난 2020. 12. 9. ILO 3법 개정안이 국회를 통과하였고, 2021. 2. 26.에는 핵심협약 비준동의안이 국회를 통과하였다. 이어 2021. 4. 20. 정부가 핵심협약 비준서를 ILO에 기탁함으로써 국내 노동관계법의 개정과 핵심협약 비준 절차를 모두 완료하게 되었다.
그 결과 ‘공무원노조법’에도 많은 변화가 있었다. (ⅰ) 퇴직공무원의 노조 가입이 허용되었고, (ⅱ) 6급 이하 공무원의 가입만 허용했던 직급 제한을 없앴으며, (ⅲ) ‘지휘･감독자’, ‘업무총괄자’ 등 직무 특성에 따른 가입 제한 요건을 보다 구체화함으로써 가입범위 확대 등 개정법의 목적에 부합되도록 하였으며, (ⅳ) 특정직공무원 중 소방공무원 등의 노동조합 가입을 새로 허용하였다. 한편 개정 ‘공무원노조법 시행령’에서는 그간 규정이 미비했던 교섭창구 단일화 절차 관련 규정을 보완하였다. (ⅰ) 교섭요구사실 등 공고 방법, (ⅱ) 조합원 수에 비례한 교섭위원 선임 시 조합원 수 산정기준과 포함되는 조합원의 범위에 관한 규정을 신설한 것 등이 그 예이다.
본고에서는 이러한 개정 내용을 면밀히 분석･검토하고 입법적 개선사항을 제시하고자 하였다. 법령 개정사항은 아니지만, 법체계상 노동조합법을 준용하고 있어 제기될 수 있는 문제점이나 교원노조법 등 관련 법령의 비교분석을 통해 확인된 미비점에 대한 의견도 함께 제시하였다. 또한 공무원의 노조 가입 범위 확대 중 가장 큰 변화라 할 수 있는 소방공무원의 가입 허용과 관련하여 노조 설립이나 단체교섭 형태 등 법적 쟁점에 대해서도 상세히 검토하였다.

영어초록

This study reviewed the Civil Service Labor Union Act and its enforcement decree among the amendments to the domestic labor law according to the ratification of the ILO core conventions. Since joining the ILO in1991, Korea has continuously promised the international community to ratify the core conventions, but after the Kim Dae-jung administration ratified the four core conventions, there was no further ratification for nearly 20 years. After the Moon Jae-in administration took office, ‘realizing a society that respects labor’ as a national task and pushed for the ratification of the core conventions that had not been ratified, this time, three additional conventions were ratified such as No. 29 (Forced Labor Convention, 1930), No. 87 (Freecom of Association and Protection of the Right to Organise), and No. 98 (Right to organise and Collective Bargaining Convention). As a result, Korea has become a country that has ratified seven of the eight core conventions, which is higher than the US (two) and Japan (six).
When the ILO Core Conventions is ratified, as it has the same effect as domestic law according to the Article 6 of the Constitution, it was necessary to revise the domestic labor-related laws that were contrary to the contents of the core conventions. Accordingly, from April 4, 2018, a social dialogue began on essential amendments for the ratification of the Conventions, centered on the Economic, Social and Labor Council, to allow dismissed workers to join the union and to amend the regulations prohibiting payment of salaries to full-time union Officials, and then, the discussion was expanded to the need for amendments directly or indirectly related to the ratification of the core conventions. On May 5, 2019, the social dialogue finally broke down and there was a crisis once to get faced with, but on May 22, 2019, the government, announcing that it would finalize the amendments of the so-called three (3) ILO Acts, including the ratification of the core conventions and the Labor Union Act - Civil Service Labor Union Act - Teachers' Union Act, within the 20th regular session of the National Assembly, continued the discussion. In the end, after more than three years of the process, on December 9, 2020, the ILO three Law Amendments Bill was passed by the National Assembly. On February 26, 2021, a motion to ratify the Core Conventions was passed by the National Assembly. Then, as the government deposited the ratification of the Core Conventions with the ILO on April 20, 2021, the amendments of the domestic labor-related laws and the ratification of the core conventions have all been completed.
As a result, many changes were made to the Civil Service Labor Union Act. (i) Retired public officials were allowed to join the union, (ii) the rank restrictions that only allowed public officials below grade 6 to join were removed, (iii) by specifying the requirements for membership restrictions according to job characteristics such as 'commander-supervisor' and 'chief officer', it was made to meet the purpose of the amended Act, such as expanding the scope of membership, and (iv) among public officials in specific positions, firefighters were newly allowed to join the union. In addition, in the revised enforcement decree of the ‘Civil Service Labor Union Act’, the regulations related to the unification of bargaining channels procedure, which had been insufficient in the past, were supplemented. Examples are (i) the method of publicizing the fact of request for negotiations, etc., and (ii) the establishment of regulations regarding the calculation criteria for the number of union members and the scope of members included in the appointment of negotiating members proportional to the number of union members.
This study attempted to analyze and review these amendments in detail and to suggest legislative improvement strategies. Although it is not a matter for the amendments to the Civil Service Labor Union Act and the enforcement decree of the Civil Service Labor Union Act, opinions were also presented regarding the absurdities that arise from applying the Labor Union Act mutatis mutandis, or the institutional deficiencies compared to the Teachers' Union Act. In addition, regarding the permitting of firefighters to join, which is the biggest change among civil servants' expanding the scope of union membership, prospective legal issues such as the establishment of a union and the form of collective bargaining were also reviewed in detail.

참고자료

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