韓國 敎育自治制의 發展方向

이지태 東國大學校 地域開發大學院 1993 국내석사

The education autonomy has been realised since 1991 with the proclamation of The Education Act and The Regional Autonomy Act, The education system aimed at the spirit of the independence of the education and the relevance of the deucation administration. We would like to study the thoretical background of the educational autonomy system at first, and research the changing analysis of foreign countries' systems of educational autonomy will give us to discover the ideas for developing the education system. The direction of development of the educational autonomy system in Korea through these approaches is as follows: First, The execution of the education autonomy must be enlarged from the great-sphere unit to the narrow-sphere unit, as it were basic administration unit in future. At same time, it is important the education committee can have the right of decision about the policy making and the operation of the education policy with independance. Secondly, the method of election of the committee member need to be corrected. Who acted as the member of the political party has not to be the member of the education committee and the member of the education committee must be elected with the direct idea of the citizen. Thirdly, It is need to reallocate the authority of the educational organization. The ministry of education is eager to develop the education policy and the right of enforcement must be delegated to the regional administrative bodies. In acoordance with this arrangement, regional administrative unit need to be enlarged in organization and finance. Forthly, The member of education administration need to have the competence of planning and management to enhance the effeiency of administration. The measurement for proffesional management is very important point.

敎育自治制 運營의 改善 方案에 관한 硏究

김복련 朝鮮大學校 敎育大學院 2004 국내석사

Education is a process to build humans in desirable manner, and through special relationship between the educators and the students, it inherits historically valuable mental and cultural heritage to the junior generation. And it encourages the educated to achieve self-realization even in this rapidly-changing society and contribute to creation of culture. So, education system can help education to be more effective. Educational autonomy is a kind of work to promote participation of community members. To achieve educational goals, it assures independence of education and democratic educational administration, which leads to reinorcement of professionalism and specialty of educationa administration. In Korea, since the Educational Autonomy was first phblished in 1952, it has have ups and downs such as stoppage, abolition, and revival. After May 16 event, about for three decades, the local council was closed, and the educational board members were appointed by the minister of Culture and Education, mayors and governors necessarily became the head of the board, and concultation of educational budget of local assembly was executed by the minister of Culture and Education. Educational autonomy was nominally maintained. Not until 1990 that 'the Law of Local Educational Autonomy' was enacted and published, which led to a positive implementation of educational autonomy. However, from the beginning, controversy was raised in operation of educational autonomy such as confusion in definitions of characters and roles of educational autonomous committee, election of educational board members and superintendents of educational affairs. Ten years have passed since then, but no agreement has been achieved to the present. Until recently, various attempts to regulate character of the educational board have continued. In the 100 tasks designated by the Undertaking Committee in Feb. 1988, the regulation indicating that educational board is an executive organization with council system was included. The report presented by 'ad hoc committee for improvement of local education autonomy system' within the Ministry of Education regulated the educational board as a council system organization. Led by the planning budget agency and some research institutes, a program to incorporate educational autonomy into common autonomy was advanced from May to August, 2000. In particular, a program to incorporate consultation and decision organization was advanced, but it was stopped due to aggravation of public opinion. Again, 'the Improvement Committee of Local Educational Autonomy System' was established in Jan. to Sept. 2000, and the report developed by this committee presented a standing committee program in terms of reinforcing the links between educational autonomy and general autonomy. However, until when will the argument whether independency or incorporation in relation to educational autonomy and general autonomy be continued? Consumptive controversy that never helps educational development has to be evaded as soon as possible. And a program that encourages independence and promotes cooperation and association should be developed. Based on the discussions and experiences accumulated for the past decade, a practicable program should be prepared. Although educational autonomy which reflects opinions of the public, induces people to participate in creation of program and helps their living to be improved should have been established, real circumstance is not prepared for the goal. To prepare educational autonomy of the people, by the people and for the people, instritutional complement is required. Ten years have passed since the law of educational autonomy was enacted. According to the law, educational autonomy system through which educational committee members and superintendents indirectly elected by the people control educational affairs was implemented, but the way to elect the board members and superintendents was revised several times, controversies about sharing between general local autonomous bodies and educational organizations, power sharing between federal and local governing bodies, and reorganization of educational autonomy have continued. However, in spite of such arguments, actual autonomy is not still realized, and paticipation in autonomy of the people is limited. As the election of the board members and superintendents is peformed by the members of school management councils, it is true that most of the people are not informed of the election. School management councils established by May 13 educational refomation have made some contribution to the autonomy, but limited participation is allowed except for a few members of parents council. In this aspect, efforts to induce the community people to participate in decision-making process more positively and to make educational administrative system that responds more sensitively to their needs like basic-unit educational autonomy may be necessaily considered. However, it can not be said that no participation of the community people was found under the present autonomy system. Even though there is educational autonomy in large cities, suerintendents who represent education and academic culture of schools in large cities, and board members belonging to educational committee that consult and decide important matters about education and arts and science are elected by members of school management council. The council members are elected among the community people who are willing to realize school autonomy. Therefore, when basci-unit educational autonomy system is realized, it can be said that actual participation of the community is realized. However, to some extent, the participation of the community is possible. Thus, this study examined concepts and basic principles of educational autonomy as a statring point of autonomy discussion, and its current problems. And through review of basic direction and improvement of future autonomy system, it intended to present an effective educational administrative mechanism which can contribute to development of education and the nation and by which high-quality educationa can be achieved.

敎育自治의 定着을 爲한 制度改善에 關한 硏究

김정규 全北大學校 行政大學院 1994 국내석사

The purpose of this study is to find out the operational problems of current Local Educational Autonomy Systems in Korea, and to present the plans which can reforms institutionally in orer to settle down the educational autonomy systems in Korea. The Local Educational Autonomy System must be organized and operated in both democratic and fully self-governing way. Currently, however, in our society it is very doubtful that to what extent this democratic idea and procedures are reflected in educational administration. To meet the objective of this study, analytical and descritive methods are selected through the written inquiry, relevant books, thesis, official documents, etc., One major premise is central to this study : maximization of goal of Local Educational Autonomy Systems could secured by 1) rationlization of educational region, 2) gurantee the autonomy of local organization educational administration, 3) professionalization of personnel in education, 4) idependency from national economy in educational finance. According to this premises, it is analyzed the problems of current opreating systems in Korea. The main argument begins with a discussion of theoretical background and analytical model for this study(Chapter 2). The focus of this part is on 1) reviewing the concept and theories of Local Educational Autonomy, 2)exploring the factors and variables of educational autonomy system, 3)establishing the most relevant analytical model for this study. Based on this preliminary theorizing, the empirical research proceeds with descriving and evaluating the current operations of Korean local educational autonomy systems. After this proceedings, this study seeks to find out the problems in operation and exercise of Korean local educational autonomy systems (Chapters 3). In chapter 4, It is suggested the general plans and alternatives that would be solve the problems of current operations in Korea. The main suggestions and conclusions drawn from this study indicate that: First, The most reliable generalization can be established that, above of all, the efficient operations of Local Educational Autonomy Systems should be the systems what peculiar to the local community and reflected in the needs of educators and students in local districts. Second, the centralization of educational administration should have a gradual reduce to secure administrative decentralization and then to do its right functions as an educational organzation. Third, the Local Organization Educational Administration should be secured political neutrality and be independent from general administration and from personnels and finance in central goverment to practice its special works and programs. Fourth, the Local Organization Education Administration must be given a special professional status to follow the professionality of educational administration. And finally, to realize the propositions mentioned above and to secure a steady development of local administration continuous study and some legal measures must be taken along with strenuous public relations toward general citizen if its nature, intentions and objectives to get their supports.

현행 지방교육자치제 운영의 재구조화 방안 연구

김인희 연세대학교 관리과학대학원 2001 국내석사

지방교육자치제도를 통해 구현하고자 하는 핵심적 가치는 교육의 자주성, 독립성, 주민통제의 원리, 전문성, 자율성, 교육재정의 안정을 통한 교육활동으로 국가적·사회적으로 바람직한 인간을 형성하는 것이다. 교육은 인간을 대상으로 가르치고, 자율적 인간을 양성한다는 점에서 자율성을 지니고, 또 그 자율성을 보장하기 위해 자치제도가 요청되는 것이다. 교육의 전문성이나 정치적인 중립성도 이러한 교육의 자율성에 비추어 해석되어야 하면, 교육에 관한 의사결정에 영향을 미치는 업무들을 지방으로 이양함으로써 주민의 집적 참여한다는 측면도 있다. 우리 나라는 역사적으로 주민자치의 경험이 적다. 그러므로 외국의 주민자치사상을 바탕으로 발전한 지방자치제도와 그 형식은 유사하나 토대가 다르다. 지금까지 소모적으로 논의하여 온 지방자치와 지방교육자치간에 논쟁은 종식되어야 한다. 그러므로 교육의 본질을 추구하고 21세기의 변화에 능동적으로 대처한다는 측면에서 반목과 갈등을 지양하고 협조와 지원을 모색하여야 한다. 교육자치는 교육의 자주성, 전문성, 정치적 중립성을 확보하고자 하는데 기본으로 하여 지방분권을 통한 주민참여로 학교단위의 자율성이 전제되어야 한다. 따라서 본 연구는 현행 교육자치제도의 문제점을 분석하여 재구조화 방안을 제시하는데 그 목적이 있다. 우리 나라가 발전하는 길은 국가경쟁력에 알맞은 교육으로 시대의 변화에 대처하고 비효율적인 교육자치제도를 보다 효율적으로 재구조화하여 교육의 본질에 보다 충실한 교육을 실시하는 길이다. 교육의 본질 구현은 교육의 목적이지만, 행·재정의 효율화는 교육의 목적이 아니라 과정상의 부차적인 목표일 수 있고 그것은 목적달성을 위한 수단에 불과하다. 목적을 그르칠 수 있는 수단은 효율성이 있다 해도 결국 가치가 없게 된다. 따라서 교육의 본질을 올바르게 구현하기 위하여 교육자치가 올바르게 정착되고 발전되어야 한다. 본 연구의 목적을 달성하기 위하여 구체적인 연구내용은 다음과 같다. 첫째, 지방교육자치의 개념과 원리를 선행 연구를 통하여 조사하여 현행 우리 나라 교육자치에 알맞는 개념을 정립하여 교육발전을 위해 타당성을 연구한다. 둘째, 외국의 지방교육자치에 대하여 조사하여 현행 우리 나라 교육자치제와 비교·연구·분석한다. 셋째, 현행 교육자치제의 문제점을 도출하여 재구조화에 대한 합리적 논거를 제시한다. 따라서 본 연구에서 교육자치제도의 재구조화 방향과 과제로서 다음과 같이 제시하였다. 첫째, 지방교육자치의 개념을 정립하여 국민적 합의를 이루어 내야 한다. 둘째, 교육위원회를 독립형 의결 기구화하여 교육자치제를 강화하고 행정에 효율성을 제고한다. 셋째, 지방교육자치와 일반지방자치와의 상호 갈등을 방지하고 협력하기 위하여 법률적인 협의체를 상설하고 행·재정적 협력체제를 구축한다. 넷째, 현행 광역단위에서만 실시되는 교육자치제를 기초자치단체까지 범위를 확대하여 지역주민이 참여 할 수 있는 풀뿌리 민주주의를 확고히 다진다. 다섯째, 교육재정을 확보하고 교육감에게 과세권을 부여하여 지방교육재정의 내실화를 기한다. 여섯째, 학교운영위원회를 활성화하여 단위학교의 자율성을 신장하고 학교자치의 구심점이 되도록 하여야 한다. 우리 나라 역사를 보면 초기 산업화의 과정 속에서 민주주의를 희생하더라도 경제발전을 하여야 한다는 결과제일주의에 집착하다보니 모든 제도나 법이 그때 그때의 정권유지 차원에서 굴절의 역사를 가지게 되었다. 지방교육자치법도 예외는 아니어서 정권의 실세와 의지에 따라 부침을 계속하여 왔다. 최근 교육재정의 효율성만을 위하여 교육자치를 폐지하고 일반지방자치에 통합하여야 한다는 주장과 이를 위해 단기적으로 지방교육재정과 일반지방재정을 통합하자는 주장은 교육자치제 50년의 발전적 흐름에 역행하는 방안이라고 할 수 있다. 21세기의 지식기반사회에서 우리 나라가 국가 경쟁력을 갖고 세계선진국 대열에 진입하려면 교육력의 제고 외에는 다른 길이 없으므로 반드시 교육자치가 활성화되어 교육력 제고에 토대가 되어야 한다. 그러므로 21세기에 요구되는 패러다임의 변화는 단순한 세기의 변화가 아니라 삶의 질, 양식, 사고의 변화를 총망라한 문명사적 변화이다. 따라서 교육의 본질을 추구하고 올바른 백년지대계를 세우기 위하여는 당리당략이나 집단이기주의, 부처 보신주의 차원을 넘어 교육발전에 이바지하고 교육개혁에 다가설 수 있는 올바른 교육자치제를 정착시키는 일이다. 교육자치의 정점은 올바른 학교자치의 확립임은 분명한 사실이다. 교육개혁의 성공을 위해서는 교육주체들을 자발적인 교육개혁의 중심으로 세우는 일이다. 고로 올바른 교육자치와 교육개혁은 동반자의 관계라 보여 진다. 지방교육자치제의 궁극적인 목적은 지방교육의 발전이 촉진되도록 하는 것이다. 이를 위해 지방교육자치제도에서는 지역 주민이 지역내 교육을 스스로 결정하여 추진할 수 있도록 보장해 주어야 한다. 그러므로 지방교육자치제의 기본원리도 지방교육의 발전이 촉진될 수 있는 방향으로 제도화되어 실천되어야 할 것이다. 그리고 지방교육자치제는 지역 주민의 교육에 대한 관심과 지원이 있을 때 활성화될 수 있다. 지방교육자치제의 성패 여부는 지역 주민의 지방교육자치에 대한 요구와 자치능력에 전적으로 달려있다고도 볼 수 있다. 지금은 지방교육자치에 대한 지역 주민의 열망이 절실히 요청되는 때이다. 교육행정은 궁극적으로 학교현장에서의 교육을 최대한 효과적으로 발전시킬 수 있게 하기 위한 수단적 기능으로 볼 수 있다. 다시 말해서 지방교육자치제도 역시 궁극적으로는 교육현장인 학교의 교수-학습의 성과를 극대화하는데 기여하는 방향으로 재구조화되어야 한다. The study suggests an appropriate direction for development of the educational autonomy as by examining a currently being discussed issue, the unification of local autonomy and its educational autonomy. Specially, considering the historical entanglement in between the local educational autonomy and the local autonomy, one studied on comprehending the foreign local educational autonomies as to see how it applies in to Korea thereby. Korea, historically, does not have much experience in the local self-governing. So although the local autonomy system developed based upon the foreign local autonomy theory may be found similar in its format, the foundation is indifferent as from. An exhausting dispute up to present time about the local autonomy and the local educational autonomy must be put to an end. Thus from a view of pursuing the essence in education and actively coping with the change in 21st century, ones ought to sublate the enmity and dissension while searching for the cooperation and support. In following, the focus is at analyzing the problem in educational autonomy system and directing an improved resolution. The autonomy of education should set the self-regulation of school unit as a premise with the citizens participation through the decentralization of power based upon securing of the educational independence, professionalism, and political neutrality. The current origin of the complication begins from a matter whether to unify the local educational autonomy and local self-governing or to further strengthen the educational autonomy as the friction in between education department and administration department continuously drifts apart since the nations modern education was initiated. In looking into a contention of unifying into the local self-government: First, the local educational autonomy is supposed to take a role as a portion of the educational functioning within the local autonomy system. Second, due to a rupture of connection in between the general local administration and the local educational administration, it is difficult for the general local autonomy organization to invest into the educational facilities. Third, there is a waste followed after the dualism of voting right between the local and provincial education assembly. Fourth, it is a fact that there is higher rate of inefficient administration as with the distinctive practice of resemblance duplication operation. Then in looking into the educational circles contention of more solidifying the local educational autonomy and setting the educational self-regulation independent from the general administration: First, the educational independence, professionalism, and political neutrality justified on Article 34 of the Constitution must be upheld. Therefore as on a side of breaking away from the political power to keep the educational independence and educating the human as a whole, the independence of education becomes a further pressing need. Second, it is a fact that once the educational assembly is systemized as self-decisive organ, the administrations inefficiency can be eliminated. By unifying the loss of administrative capability after the current city/province assemblys session of annual 120 days along with the educational committees session of annual 60 days, it is to be organized as an independently decisive system. Third, the local self-governing associations invest in the educational facilities must cooperate by forming a conference committee in between the local educational self-reliant and local self-governing organizations, and the nation increasing the investment in educational appropriation to GNP-prepared 6%, so then the security needs to be rapidly established. Fourth, ones must further extend the educational autonomy to the basic units, create and execute the general administrative districts along with other intermediary administrative districts, then support the school units. Fifth, a school administration of the school units must be activated while guaranteeing its self-governess to the maximum degree and further affirm the fundamental foundation of the educational autonomy. Consequently, in observing the nations history, there finds all the systems or laws, just to stay in power, having to have refracted past time by time, as in the midst of early industrialization process, all were attached upon the principle of only the result first, which said that the economic advancement was to be achieved even while the democracy was being sacrificed. Having the local educational autonomy system away from the exemption therein, it had gone through the continuous sinking and floating depending on the loss and will of political power. At the point of confronting the 21st century, this change of paradigm is not simply a change of a century but of the lifes quality, cultivation, and way of thinking. Therefore, ones are to pursue the fundamentals of education and in order to establish the correct centennial policy, the righteous educators structure that contributes in the educational advancement and reach out for the educational reformation must be settled as beyond the party-interested organizations selfishness or the post self-protection theory. It is a definite fact that the summit of the educational autonomy is an establishment of the proper schooling autonomy. As for the success in educational reformation, it is to raise up the main educational structure centralizing around the educational reformation. Thus it is seen that the right educational autonomy and the educational reformation is at an accompanied relationship.

지방교육자치제도의 개선방안연구 : 기초교육자치 실시를 중심으로

박은엽 蔚山大學校 敎育大學院 2005 국내석사

교육의 자주성 전문성 정치적 중립성을 보장하고 지역교육의 특수성을 살리기 위하여 지방교육자치제도가 실시된 지 여러해가 지났음에도 불구하고 교육현장에서는 교육자치를 실감할 수 없으며 지방교육자치의 본질이 도외시 된 채 교육자치의 명맥만을 잇기 위한 수준에서 벗어나지 못하고 있다. 이에 정치 경제적 환경변화에 적절히 대응하는 동시에 교육주체인 학생 지역주민 등의 교육적 필요에 부응하는 기초단위 지방교육자치제도의 발전 방안이 모색되어야한다. 본 연구는 이러한 문제의식에서 시작하여 제1장 서론에서는 연구의 목적, 범위, 방법을 서술하였다. 제2장에서 지방교육자치제도의 이론적 배경으로 지방자치제의 본질을 근거로 지방교육자치의 개념 및 원리와 기초단위 지방교육자치의 필요성과 법적근거를 설명하였으며 제3장에서는 우리의 지방교육자치제도가 어떠한 방향으로 나아가야 할지에 대한 시사점을 얻기 위해 주요국의 지방교육자치제도의 특성을 분석하였다. 제4장에서는 우리나라의 지방교육자치제도의 역사적 변천과정과 최근 지방교육자치와 관련된 정책의 동향을 파악한 후 현재 지방교육자치제도의 현황과 문제점을 검토하였다. 즉, 역사적 변천과정을 교육자치도입시기(해방후-5.16군사정변), 유보기(1962-1991), 실시기(1991-현재)로 나누어 설명하고 최근 정치권에서 추진하고자 하는 정책의 방향인 지방분권화의 지속적 추진, 일반자치와 교육자치의 연계강화, 단위학교 중심의 교육행정체계 지향 등의 지방교육자치 정책의 강조점을 알아보았다. 이어 현행 지방교육자치제도의 문제점으로 교육자치의 실시구역과 지방교육자치의 기본구조를 중심으로 하는 교육위원회와 교육감의 위상과 선출방식 및 학교운영위원회의 역할, 그리고 지방교육재정의 비효율성과 자치에 미치지 못하는 권한배분등의 문제점을 분석하였다. 제5장에서는 개선방안을 도출하기 위해 기초단위로의 교육자치확대 실시를 전제하면서 그와 관련된 구체적 실시구역배분, 기본구조를 설정하고 교육위원회와 교육감의 위상과 선출방식 방안 학교운영위원회와 재정의 효율적 활용방안을 제시하였다. 그리고 지방교육기초자치가 실시의 전제조건으로 중앙과 광역 및 기초의 교육권한의 배분을 근거로 해서 광역과 기초의 교육기능의 권한분담의 개선내용을 정리하였다. 개선방안은 다음과 같다. 기초단위 교육자치가 효과적으로 실시되기 위해서는 기초단위에서는 교육위원회를 특별지방자치단체화하고 광역단위에서는 합의제 집행기관화를 구조적으로 실시하는 것이다. 그리고 교육위원에 있어서도 기초의 경우 특별지방자치단체의 위상에 맞게 주민의 직선으로 선출하고 자격은 크게 두지 않도록 하며 광역의 경우 합의제집행기관의 구성원으로 학교운영위에서 선출하도록 하며 전문성을 고려하여 교육 및 교육행정과 연구경력을 자격요건을 두는 것이 타당한 것으로 보인다. 교육감의 경우 기초는 독임제 집행기관으로서 역할을 하도록 하고 광역은 합의제 집행기관의 사무장으로 지방자치단체장이 지방의회의 동의를 받아 임명 하도록 한다. 단, 기초의 교육감의 경우 주민의 직선으로 선출하거나 교육위에서 선출하도록 한다. 재정적인 부분에서는 기초자치가 실시되기 전 미리 충분한 안정적 재원조달 정책을 확보해야 하고 이와 더불어 교육위원회와 교육감 및 교육관련 관청에게 충분한 권한이 배분되어야 효과적인 기초자치가 실시될 수 있다는 점을 강조하였다. 마지막으로 제6장 결론에서는 연구의 요약과 연구의 결과를 서술하였다. In the face of several years having passed since the Local Educational Autonomy was carried out in order to guarantee independence, professionalism, and political neutrality of education and to revive the specialty of local education, the educational autonomy cannot be experienced in educational field, and it is being failed to escape a level that aims to continue only the existence of local autonomy, with the essence of the Local Educational Autonomy having been ignored. According to this, it is required to seek for a plan to develop the Local Educational Autonomy that conforms to the educational needs of students and local residents who are the educational core, at the same time coping with political, economic and environmental changes properly. Beginning with this problematic sense, this study described the objective, scope, and method of a study in the introduction of Chapter 1. Chapter 2 described a concept and principle of Local Educational Autonomy System and the necessity and the legal basis of an educational autonomy system in the basic administrative units, based on the true nature of local autonomy system with the theoretical background of Local Educational Autonomy System, and Chapter 3 analyzed the characteristics of Local Educational Autonomy System in main countries aiming to obtain the implications about to which direction our Local Educational Autonomy System will need to advance. Chapter 4 examined the present status and problems of the currently Local Educational Autonomy System after grasping the historically transitional process of our country's Local Educational Autonomy System and a tendency of policy related to the recently Local Educational Autonomy System. In other words, it explained the historically transitional process by dividing into the introduction period of Educational Autonomy (after liberation-5.16 military coup), reservation period (1962-1991), and enforcement period (1991-present), and inquired into the emphasis of policy for Local Educational Autonomy System such as the continuous propulsion of decentralization that is the direction of policy being strived to be recently driven by the political circle, the reinforcement of connection between general autonomy and educational autonomy, and the orientation of educational administration system centering on a unit school. And, as for the problems of the currently Local Educational Autonomy System, it analyzed problems such as the status and a selection method in the Board of Education and in an educational superintendent focusing on the enforcement district of educational autonomy and the basic structure of Local Educational Autonomy System, a role of the school management committees, and the inefficiency of local educational finances and the authority division that does not reach the autonomy. Assuming the extension in the enforcement of educational autonomy to the basic unit aiming to derive an improvement plan, Chapter 5 established the specific division of enforcement district, and the basic structure in relation to it, and presented a plan for the status and a selection method in the Board of Education and in an educational superintendent, and for an efficient utilization of school management committees and finances. And, based on the division of educational authority in a central area, a wide area, and a basic area, with a prerequisite for the enforcement of Local Educational Basic Autonomy, it arranged the improvement contents of authority assignment for educational functions in a wide area and a basic area. In case of educational superintendent, a basic area needs to allow it to act as the execution agency with a single-authority model and a wide area needs to allow the local officer as a head officer of the execution agency with the consensus model to receive the agreement of local council and to nominate. Still, in case of the educational superintendent for a basic area, it needs to be allowed to be directly selected by residents or to be chosen by educational committee. As for the financial section, it emphasized that the previously sufficient and stable fund-raising policy prior to the enforcement of basic autonomy, needs to be secured, and along with this, that the effectively basic autonomy can be operated only when enough authority should be alloted to educational committee, educational superintendent, and a government office related to education. Finally, in the conclusion of Chapter 6, it described the results of a research and the policy suggestions.

韓國 地方敎育自治制의 改善方案

임낙신 朝鮮大學校 敎育大學院 1995 국내석사

本 硏究는 現行 韓國 地方敎育自治制의 問題點을 地方分權, 住民의 參與, 敎育 行政의 分離·獨立, 專門的 管理, 自主的 財政의 觀點에서 分析하여 改善方案을 모색하는데 그 目的이 있다. 硏究의 範圍는 주로 地方敎育行政組織에 限定하고, 硏究方法은, 分析의 模型을 定立하는데 있어 理論的 說明은 國內外 各種 關聯書籍, 硏究論文, 關聯法規 등을 참고로 하였으며, 이 모형에 의해 現行 韓國 地方敎育自治制의 現況과 問題點을 파악하거나 改善方案을 작성하는 데는 設問調査의 結果을 統計處理하여 分析함으로써 계량적 분석을 주로하고 文獻硏究法을 가미한 것이다. 硏究結果, 韓國 地方敎育自治制의 問題點으로 다음과 같은 여섯 가지 事項이 파악되었다. 첫째, 現行 地方敎育自治制는 廣域單位로 運營이 되고 있어 地方分權의 實效를 거둘 수 없다는 비판이 제기되면서 基礎單位까지의 擴大實施問題가 논의의 對象이 되고 있다. 둘째, 副敎育監의 任命權을 비롯하여 이양되어야 할 權限이 中央政府에 集中되어 있어 지역특성에 맞는 교육자치가 이루에 지지 못하고 있다. 셋째, 敎育委員을 地方議會에서 二重間選을 함으로써 敎育의 政治的 中立性 侵害, 敎育에 대한 住民의 參與 制約 등 問題點을 초래하고 있다. 네째, 敎育監의 선출과정이 無登錄 無推薦 등의 비공개적으로 운영됨으로써 候補者가 누구인지 알 수 없을 뿐 아니라 후보자의 소신조차 들어 볼 기회가 봉쇄되고 적절한 候補를 암중 모색하는 과정에서 음성적인 거래나 유언비어 등 각종 부작용이 발생할 우려가 있다. 다섯째, 敎育委員會와 地方議會와의 關係에 있어서 敎育委員會는 豫·決算 및 徵收·條例 등에 관한 實質的인 議決權이 부여되고 있지 않아 地方議會의 전심 기관에 불과하다. 여섯째, 地方敎育財政이 安定的으로 確保되어 있지 못하고 自立生과 自律性을 동시에 상실하고 있다. 따라서 본 硏究에서는 이와 같은 問題點온 是正하여 名實相符한 地方敎育自治制가 運營되도록 하기 위해서 다음과 같은 事項들을 改善방안으로 제시하였다. 첫째, 敎育自治制 實施 地域은 市·道 單位와 現行 敎育(區)廳 單位構造를 維持하되 地域實情에 따라 自治區域을 調整 實施하는 것이 바람직하다. 둘째, 副敎育監은 資格要件을 專門職으로 補하되 敎育監이 당해 敎育委員會 동의를 얻어 任命되어야 한다. 셋째, 市·道 敎育委員會 敎育委員 選出方法은 敎育自治 規模가 현재와 같이 廣域單位로 계속 시행될 경우 住民이 直選하여 選出하며, 기초단위까지 擴大 實施될 경우 基礎單位 敎育委員會 敎育委員은 住民直選에 의해 選出하고 여기에서 基礎單位 敎育委員中 間選을 통해 市·道 敎育委員을 뽑는 것이 두 계층의 敎育 自治 기구간에 연계성을 강화한다는 점에서 이점이 있다. 단 시·도 교육위원, 시·군·구 교육위원 兼職은 禁하는 것이 좋을 것이다. 敎育監은 住民直選에 의하여 構成된 敎育委員會에서 候補登錄을 받아 소견을 발표하고 비밀투표에 의해 選出하는 것이 바람직하다. 敎育長은 敎育委員會 동의를 얻어 敎育監이 任命하며, 敎育自治制가 기초단위까지 확대 실시될 경우 市·郡·區 敎育長도 당해 敎育委員會에서 候補 登錄 後 秘密投票에 의해 選出하는 것이 좋을 것이다. 넷째, 現 敎育自治制 實施 이후 가장 큰 문제로 제기된 것이 敎育委員會의 地位와 權限으로서 "地方敎育自治에 關한 法律" 第 13條의 議決權에 關한 것이다. 敎育行政의 分離, 獨立을 위해 敎育委員會에 敎育, 學藝에 關한 實質的인 條例制定權, 豫·決算 등의 審議 議決權이 부여되어야 한다. 다섯째, 敎育行政要員이 專門性을 갖추므로써 敎育 本來의 目的을 達成하는데 보다 더 效率性을 기할 수 있을 것이다. 따라서 現行 敎育監 資格要件中 敎育 또는 敎育專門職員 經歷, 兩經歷을 합한 經歷 20年 以上은 타당하며, 여기에 大學院 과정에서의 專門的 訓練 要件까지도 부과하여야 한다. 여섯째, 地方敎育財政確保 및 獨立性은 人事權과 함께 敎育自治制의 成敗를 좌우하는 重要한 要素라 할 것이다. 따라서 窮極的으로 地方의 財政負擔能力 신장과 함께 敎育財政 負擔도 배가시켜야 할 것이며, 地方自治團體의 敎育費 負擔 責任을 法律로 規程하고, 現行 敎育稅를 地方敎育稅로 轉換하여야 하며, 地方議會는 敎育費 전출금에 대해서만 豫算審議權을 행사하도록 하여야 할 것이다. This study analyzes the problems of the current local autonomy system of educational administration in Korea from the viewpoints of decentralization of power, participation of residents, separation of educational administration and its independence, professional management and independent finance and aims at seeking the improvement alternatives. The range of this study is confined to local educational administrative organization, the research methods refer to the related books, articles and related rules and regulations at home and abroad as the theoretical explanations in establishing the model of the analysis, analyze the results of questionnaire to understand the actual conditions and problems of the current local autonomy system of educational administration in Korea and to make the improvement alternatives by statistical treatment and use the quantitative analysis mainly and adds the method of literature survey to it. This study grasped the six problems on the local autonomy system of educational administration in Korea and! suggested the six alternatives to improve those problems on it. As the six poblems, first, as the criticism has been raised that the current local autonomy system of educational administration has been managed in great-sphere unit and then the actual effect of the decentralization of power cannot be obtained, the extension of the basic unit has been discussed. Second, as the authority to be transferred including the appointive power of vice-superintendent of educational affairs has been concentrated on the central government, the educational autonomy suitable to the local characteristics cannot be achieved. Third, dual indirect election of educational committee by local council has resulted in the problems such as infringement of political neutrality of education and the restriction of residents' participation in education. Fourth, as the election process of superintendent of educational affairs has been managed by informal no-registration and no-recommendation, the candidates are unknown and the opportunity to listen to the candidate's opinions is even closed and many side effects such as the negative transaction and wild rumor can be occurred. Fifth, as the educational committee has not the practical voting rights on budget, settlement of accounts, collection and regulations in the relation of educational committee and local council, it is merely the prior organ of consultation of local council. Sixth, local educational finance is not firmly secured and it loses the independence ,and autonomy at the same time. As the six alternatives, first, the areas of executing the educational autonomy system maintain the city-province unit and the unit structure of the current board of education and it is desirable that the self-governing district should be adjusted and executed depending on the regional conditions. Second, vice-superintendent of educational affairs should be appointed to the professional position as the qualification requirement, but he/she should be appointed by superintendent of educational affairs with the consent of educational committee concerned. Third, educational committee of city and provincial boards of education should be elected by direct election of residents when the size of educational autonomy is the same as the current great-sphere unit and in the case that it is extended to basic unit, educational committee of the board of education at basic unit should be elected by direct election of residents and to elect the educational committee of city and province through the indirect election among educational committees of basic unit has the advantage in that it strengthens the connection between two educational autonomy bodies. But, it is better that holding two offices of educational committee of city-province and city-county-ward at the same time is prohibited. It is desirable that superintendent of educational affairs accept the candidate's registration from educational committee organized by the direct election of residents, publishes his/her opinions and is elected by secret ballot. Director of educational affairs should be appointed by superintendent with the consent of board of education and when the educational autonomy system is extended to the basic unit, it is desirable that the directors of city, county and ward educational affairs should be elected by secret ballot after the candidate's registration to the board of education concerned. Fourth, the position and authority of the board of education has been raised as the greatest problem after the execution of the current educational autonomy system and it is on the voting right of Article 13 of "Law of Local Educational Autonomy". Right to deliberate and voting right like practical right to enact regulations, budget and settlement of accounts on education and liberal arts should be given to the board of education for the separation and independence of educational administration. Fifth, when the educational administrative personnel has the professionalism, they can contribute greatly to achieve the purpose of education more efficiently. Therefore, the requirement more than 20 years of careers for the superintendent of educational affairs is valid and furthermore professional training requirement in the course of graduate school should be added. Sixth, the security of local educational finance and independence are the important elements deciding the success and failure of educational autonomy system with the right of personnel management. Accordingly, the burden of educational finance should be added with the improvement of local financial ability, the responsibility of the chief of local self-governing body to pay the educational costs should be prescribed by the law, the current educational tax should be converted into local education tax and local council should exercise its budget deliberation right only for the amount of moving-out of educational casts.

교육자치제에 있어서 주민 참여에 대한 의식 조사 : 서울시내 학부모를 대상으로

김남희 이화여자대학교 교육대학원 1994 국내석사

現行 敎育自治制의 改善方向에 관한 硏究

이금태 전남대학교 교육대학원 2000 국내석사

지방자치제도가 안정되어 감에 따라 지방교육자치제도를 보다 "주민통제의 원리"에 맞도록 개선해 나갈 필요성이 제기되고 있다. 또한 경제난 극복을 위하여 사회 전반에 걸쳐 구조조정이 진행되고 있는 가운데 정치·경제적 환경변화에 적절히 대응하는 동시에 지역 주민의 교육적 필요에 부응하여 양질의 교육을 제공할 수 있는 방향으로 그 개선 방안이 모색되어야 한다는 것이다. 교육행정의 전문성, 특수성 및 정치적 중립성을 보장하기 위한 교육자치제도의 목적을 구현하기 위해서 개정된 현행 지방교육자치제의 문제점에 대하여 학자 및 전문가들 사이에 논란되고 있는 문제점들을 열거해보면 기초 자치단체인 시·군·구(자치구)의 교육자치단체가 구성되지 못하고 광역인 특별시·직할시·도만 교육위원회가 구성된 채 실시되고 있다는 점이다. 또한 교육위원회 구성에 있어서도 교육 위원 선출을 간접 선거로 실시하고 있기 때문에 후보난립, 공정 선거 관리의 어려움, 후보 검증 기회의 부족 등의 문제를 해소하지 못하고 있으며, 교육위원회와 지방의회간 교육과 학예에 관한 예산안과 조례안의 의결권 이원화 체제에 따른 양기관의 대립 갈등의 문제가 대두되고 있다. 본 연구에서는 현행 교육자치제의 문제점을 살펴보기 위해 교육자치제도에 대한 이론적 배경인 교육자치제와 외국의 지방교육행정제도를 고찰하고 이를 바탕으로 현행 제도의 문제점을 교육자치제의 분석 모형에 적용하여 분석하였다. 이 분석 모형에 따른 지방분권의 측면, 주민 통제의 측면, 행정 분리·독립의 측면, 전문적 관리의 측면, 자주적 재정의 측으로 나누어 개선 방안을 제시하였다. 첫째, 교육자치제는 기초 단위부터 실시되어야 하고 특별시·시·도 교육청과 시·군 교육청 사이에 권한이 적절히 배분되어야 한다. 지방교육자치의 중요 원리인 주민통제 내지 지방 분권의 원리 등이 명실공히 공존되는 교육자치가 실시되기 위해서 기초 교육위원회가 구성되어야 한다. 이렇게 됨으로써 교육의 전문성, 독자성, 지방의 특수성 및 정치적 중립성이 보장될 것이다. 둘째, 교육 인사의 독립성을 확보하기 위해서는 교육감, 부교육감, 교육장의 선출 및 임용 방식이 정치적 중립을 확보하기 위해서라도 정당인이 아니어야 하며 모든 교육공무원의 임용권은 해당 교육청의 교육감이 행사해야 한다. 또한 교육위원회를 교육·학예에 관한 지방교육자치 의결기관으로 하고 교육감은 그 집행을 담당해야 한다. 셋째, 교육감, 교육위원 선출에 있어서 후보검증의 기회가 확대되어야 하며, 그 전문경영의 경험을 반영하기 위하여 자격 경력을 늘려야 한다. 또한 부교육감, 교육장의 전문적 자격 요건이 주로 일정 기간의 교육행정 경력 혹은 연구경력 등에 관한 요건을 요구하지 않고 있기 때문에 전문적 훈련과정의 이수를 자격 요건에 포함되어야 한다. 넷째, 지방교육행정 및 정책과정에 있어서 주민이 통제권을 확보하기 위해서는 교육감과 교육위원은 주민이 직접 선출해야 하고, 부교육감의 대통령 임명은 교육감과 부교육감의 갈등을 초래할 수 있기 때문에 교육감이 교육위원회의 동의를 얻어 부교육감을 임명해야 한다. 다섯째, 지방 교육재정의 확보를 위해 지방자치단체로 하여금 새로운 지방 교육세를 신설 하거나 현재의 교육세를 지방 교육세로 전환해야 하고, 교육재원의 배분과 확보를 위해 중앙의 국세는 간접세 중심으로 과중하게 부과하고 국세 중 교육세의 일정 부분을 확대하여 교육재원 확충에 기여할 수 있는 방안을 마련하면 교육자치의 독자성과 자율성이 보장받게 될것이다. As local self-government system is becoming stable, it is issued the necessity to improve the local educational self-government into rather fit for "principle of inhabitants' control". According to this, in the middle of the process of structure intervention for the conquest of economical crisis over the whole society, the improving plan should be searched for to the direction capable to provide education of a good quantity, answering inhabitants' educational necessity at the same time it should properly cope with the change of politic and economical environment. In order to realize the purpose of educational self-government system to guard the speciality · peculiarity and politic neutrality of educational administration, if we enumerate the problems of current revised local education self-government system issuing among the and scholars · specialist, it would be that the education committee is organized only in the wide area of metropolitan · special city under the central government control, province, with no educational self-governing body in basic self-government district of city, county and self-government ward. In addition, in composing the education committee, because the election of education Committee is enforced by the way of indirect election, they could not yet be settled the candidate’s being flooded, the difficulty to keep the equity of election management and the shortage of opportunity to inspect the candidates. And the last raised problem is the one of confrontation and conflict between the education committee and local assembly owing to the dual system of voting right of regulations proposition and budget on education and liberal arts. In this study, I consider the educational self-government system and local educational administration system in foreign countries which are the theoretical backgrounds of educational self-government system to investigate the problems of current educational self-government system and analyze the problems of current system by means of applying them into the analysis model of educational self-government system. Then I offer the improving plan by dividing them into the respect of local decentralization of power, that of inhabitants' control, that of separation. independence of administration, that of special management and that of independent finance based on analysis model. First, educational self-government system should be carried into effect from the basic unit and the authority between the education affairs of metropolitan · city · province and that of city · county should be distributed properly. The basic education committee should be organized in order to realized the education self-government which the principle of the inhabitants’ control or local decentralization of power, the important principle of local educational self-government coexist both nominally and virtually in. They will be guarded the specialty and independence of education and unique character of local and politic equity through the realization of this. Second, to secure the independence of educational personnel as well as to secure the politic equity of election and employment, the superintendent, sub-superintendent and principal of educational affairs may not be member of party and the principal of related educational affairs should exercise the right to employ all educational public officials. Also built the educational committee as a deliberate organ for local educational self-government on education · liberal arts and the principal of it should take the charge of the execution. Third, the opportunity of inspecting the candidates should be increased in electing education principal and committee and qualification and career should be lengthen to reflect the experience of professional operation. In addition, now that most professional conditions of the sub-superintendent and education principal's qualification are not demanding the necessary conditions regarding educational administration career or studying career, the completion of professional training course should be involved into necessary conditions of career. Fourth, inhabitants should directly elect the superintendent of educational affairs and education committee to assure that inhabitants gain the right of control in the process of policy and local educational administration and the superintendent should appoint the sub-superintendent with the agreement of educational committee since the President’s appointment of the sub-superintendent could cause the conflict between the superintendent and the sub-superintendent. Fifth, local self-government should establish new local education tax or current education tax should be converted into local education tax to secure local educational finance. The independent character and autonomous character of educational self-government could be assured by means of that the national taxes of center should be imposed heavily centering of indirect taxes and by magnifying the certain portion of education tax out of national taxes and by preparing the plan of contributing in magnification of educational resources.

지방교육자치의 헌법합치적 구현

박정희 충북대학교 법학전문대학원 2016 국내박사

Local education autonomy of our country has been extensively implemented since its law was enacted in 1991. However, as education office superintendent was elected by direct election system of residents from 2007, representation of residents was started to be strengthened and as a consequence, demand for local education autonomy has been increasingly intensified. Under this background, in order to achieve constitutional local education autonomy, its constitutional provision was necessitated. For this objective, in this study, a constitutional solution for how local education autonomy is operated in reality, what is its operational problem is intended to be suggested. Local education autonomy is a constitutional system that revives particularity of local education by combining domain-specific education autonomy with regional education autonomy. As requirements of local education autonomy, first, local education government having autonomous right is required to be established based on a certain region and residents and second, its own function relevant to purpose of existence is required to be assigned. Third, autonomy of local education administration should be ensured and fourth, autonomy of independent finance and its operation should be secured. Fifth, an authority of being able to enact self ordinance reflecting local characteristics should be provided. Above is generally called as autonomous right of local education government. In connection with this autonomous right, following problems are represented under the current operation system. First, as a problem relevant to autonomous organization right of local education government, a system of deputy superintendent and approval system for upper level position over class 4 could be cited. Deputy superintendent is stipulated to be appointed by the President through the Prime Minister by the request of the Minister of Education for a person recommended by a superintendent and this means that the central government partially intervenes in organization and employment quota of local education government. In addition, even under gross labor cost system being introduced as a part of expanding autonomous right in terms of decentralization, as approval right for upper level position over class 4 is still held by the central government, autonomous organization right of local education government may be restricted in reality. Second, in connection with autonomous business(office work) right of local education government, institution (government) mandated office work, diversity of exclusive national office work, insufficiency of financial measure could be illustrated. In addition to a basic problem that a head of local education government directly elected by the residents is regarded as low levelled education administration head of the government, government mandated office work may not only impede autonomous right of local education government by excessive supervision of the government, restriction on ordinance enactment but also create legal dispute by unclear blame. In addition, in case of the government mandated office work, its expenses should be shouldered by the government in principle but in a process of its operation, local education government partially shares it in reality. Third is an issue of autonomous legislative power of local education government. In case of ordinance and rules that are autonomous regulations, as there is no discrimination as to which contents should be stipulated by either ordinance or rules, ordinance and rules are overlapped and so, in operating autonomous regulations, autonomous legislative power is likely to be operated in a mixed form. Fourth, as an issue of autonomous finance right, an independent autonomous finance right of being able to levy and collect taxes should be authorized to local education government at least in their performing autonomous office work. In order to solve above problems, it is required that in addition to provincial governor, mayor, county head and director of Gu office that are enforcement institution based on local autonomy law, an enforcement institution for local education should be stipulated to be separately operated and regarding local government comprising city, provincial education superintendent, it should be designated as local education government and entity name as city, province education district by law. In addition, if law of local education autonomy should be sub-law of local autonomy law, it is justified even though education superintendent is controlled by provincial governor but if it is a special law under general law or local autonomy law regardless of local autonomy law, its incorporation into standing committee of education committee creates a problem. Therefore, it is required to provide a constitutional ground for local education autonomy. In order to strengthen autonomous administration right of local education government, 11 governmental office works and 12 local office works were suggested. While regarding judgement standard of autonomy work and government mandated work as autonomy work of local education government in principle, an exceptional standard of regarding only a case of which mandated purpose is clear by law as government mandated work is required to be established. In order to strengthen autonomous legislative power of local education government, a standard not only of hierarchical order for ordinance and rules but also of contents and effect is required to be provided. In addition, as legal reservation for ordinance is acknowledged in the current law, local education government should be permitted to be participated in national legislation process in a proper range and detailed quota, position for specialized members of local government council and other organization of legislation support body should be also permitted to be defined by ordinance. In order to secure autonomous finance right of local education government, it is required that transferred money from local government be abolished and education autonomy tax be newly enacted as an objective tax by simplifying composition of local education finance. Finally, in order to implement constitutional local education autonomy, a legislative suggestion is required to be presented. Under the current constitution, a clear regulation guaranteeing local education autonomy is not stipulated. As centralization is justified by delegating most of major contents for local education autonomy to law, an essence of local education autonomy may be impaired. Based on this, detailed legislation for revision of current basic education law, local autonomy law and local education autonomy law and enactment of local education autonomous finance law is hereby suggested to the desirable direction of legal system for local education autonomy. Keywords: education autonomy, local education autonomy system, local autonomy, autonomous right, autonomous organization right, autonomous administration right, autonomous legislation right, autonomous finance right

韓國 地方敎育自治制의 運營과 改善에 關한 硏究

전재문 전주대학교 2000 국내석사

The education system in the Republic of Korea(ROK) has been greatly influenced by the United States since August 15 of 1945, when ROK won the independence from Japan. American military government planned to implement local control of education for the self-reliance and independence of education. Faced with objection from Korean officials, however, American military government enacted and promulgated the 216th ordinance(establishment of school district) and the 217th ordinance(establishing the school district council) on August 12 three years later. Three days after promulgation the ROK was established, therefore those ordinances did not come into force. American military ordinances had great impact on the development of local control of education in ROK. They were also the logical bases of objection to the abrogation movement from general administration. Local control of education has been implemented at the city and county school districts since 1952. On May 16 of 1960, it was repealed because of the military coup and absorbed into general administration (the Ministry of Home affairs), and, after all, lost its functions. In 1964 local control of education resumed, but it was made up as a transitional form. Each city and province had the Councils of Education, which are a consultative administration body, the Superintendent of Education with responsibility of educational affairs, and the local assembly of resolving body. Actually the Minister of Education acted for local assembly because it did not make up. As a result local educational administration was under control of central government. With the local autonomy carried out in 1991, local control of education law was enacted and promulgated on march 8 of the year, and it was enforced only in the cities and provinces. Its organizations included the considering and resolving body of the Council of Education, the administration body of the Superintendent of Education and local assembly passing ordinances, budget, settlement, and residential responsibilities. Consequently, local assembly reduced to the nominal body, and the law has been amended six times over nine years, however it still has many problems. Main issues include the conducting range of local control of education, the characteristics of the Council of education and its relationship with local assembly. Besides the Council of Education and the local assembly have the same resolution right, therefore there are waste of administrative power and conflicts between these two organizations. Other issues are disputes over the qualifications and election method of the Superintendent of Education and independent local education finance. To solve these problems and suggest local control of education fit for ROK, I analyzed and studied the following : First, I analyzed the current local control of education. Second, I looked through the history of local control of education in ROK. Third, I reviewed the local control of education in developed countries. Last, I suggested the local control of education fit for Korea according to the results of those analyses. As plans for development of the local control of education, I made a suggestion as follows : First, the local control of education should be expanded to include two different levels of the wide area unit local control of education and the basic unit educational autonomy. Second, the characteristics of the Council of Education are a consultative administration body in the wide area unit educational autonomy and an independent resolving body in the basic unit educational autonomy. The chairman will be the Superintendent of Education and elected by the Council of Education respectively. Third, in the wide area unit educational autonomy, members of the Council of Education will be designated by mayor and governor, or elected by city and provincial assembly. Nominated by recommendation committee, the candidate will be elected Superintendent by the Council of Education. Fourth, in the basic unit educational autonomy, members of the Council of Education will be elected by city and county(gun) assembly and the superintendent by the Council of Education. Last, local education tax should be lain and the chairman of the local autonomy body must have some responsibility on education so that the efficient education system can drive forward educational policies. Therefore the local control of education that I suggest is designed to not only fulfil the ultimate goal of improving accomplishments on the scene, but also realize the idea of local control of education.