만주국 조선인 고등 관료의 형성과 정체성

박성진(Park Sung-jin) 한국동양정치사상사학회 2009 한국동양정치사상사연구 Vol.8 No.1

이 논문은 만주국에서 고등 관료로 근무했던 조선인의 형성과 그들의 정체성의 문제를 다루었다. 현재까지 각종 자료를 통해 만주국에서 고등 관료로 근무했던 조선인은 201명이 확인된다. 당시 조선인이 만주국 고등 관료로 진출할 수 있는 경로는 5가지였다. 첫째, 일본 고등문관시험 합격자의 만주국 진출, 둘째, 조선총독부에서 만주국으로의 인사 이동을 통한 진출, 셋째, 만주국 고등고시 합격을 통한 진출, 넷째, 만주국 자체에서의 승진, 다섯째, 대동학원 졸업을 통한 진출 등 5가지이다. 이 5가지 경로 가운데 현재까지 확인되는 바로는 30% 이상의 조선인이 만주국 고등고시를 통해 고위 관료로 진출했다. 대부분의 조선인 고등 관료는 일반 행정 부분에 종사했으며 사법, 교육, 경찰 분야에서도 일부가 확인된다. 당시 젊은 조선인들의 만주국 고등 관료를 선택한 동기는 만주국이 내세운 ‘오족협화’ 등과 같은 피상적 구호에 근거해 있었다. 이러한 점에서 만주국 고등 관료를 선택한 조선인들은 입신출세주의를 내면화했다고 할 수 있다. 만주국 조선인 고등 관료들의 최종 출신학교를 보면, 제국대학 대 비제국대학 비율이 2:8 정도였고, 사범학교 출신자들이 많은 것이 특색이었다. 만주국에서 조선인 고등 관료들은 그들만의 연결을 통해 만주국에서 그들의 위상을 확보하고자 했다. 당시 조선인 관료들을 하나로 묶는 핵심 고리는 대동학원이었다. 1945년경 일본의 패전 징후가 농후해지면서 만주국 조선인 관료는, 만주국에서 잔류와 조선으로의 귀환 그리고 남과 북으로의 선택에 직면했다. 당시 대부분의 만주국 조선인 관료는 남한으로의 귀 환을 선택했고, 이후 남한에서 전문 관료로 성장하게 된다. This article aims to explore the formation of Korean higher civil servants and their identity in Manchuko. So far, The number of Korean working as higher civil-servants in Manchuko was 201. At that time, there were four kinds of ways five Korean to be the higher civil-servant in Manchuko. The first is, the pepole who passed the higher civil-servant examination in Japan are choose the higher civil servant in Manchuko. The second is, the personnel change between the The Government-General of Joseon and the Manchuko government. The third is, passing the higher civil-servant examination in Manchuko. The fourth is, the promotion in Manchuko bureaucracy and the last is, graduating from the Daedong School(大同學院). Among these five ways, the third was taken by more than 30% of Korean higher civil servants in order to advance to the higher-ranking bureaucracy in Manchuko. Since then, most of them were engaged in the field of general administration and the rest were in the field of justice, education and police. In those days, what motivated the young Koreans to be higher civil servants in Manchuko is such a superficial faith as 'the confederation of five ethnic groups(五族協和)'. And that means that the Korean higher civil servants in Manchuko internalized careerism. Indeed, the statistical data on which school they graduated from shows that the proportion of the Imperial Universitys are about 20% and especially most of them were from the college of education. The Korean higher civil servants have tried to acquire their own integrity in the realms of officialdom through their personal network. The critical juncture of the personal network was the Daedong School. As the sign of Japan's defeat was developing in 1945, the Korean higher civil servants were faced with the crossroad for the choice to remain in Manchuria or to return to Korea. The most of Korean higher civil servants have decided to return to South Korea, however, some people have chosen North Korea. Since then, they have grown to be the technocrats in both South and North Korea.

임기제공무원제도의 바람직한 운영방안에 관한 연구 - 사법부 임기제공무원을 중심으로 -

서현웅 ( Seo Hyunwoong ) 사법정책연구원 2019 연구보고서 Vol.2019 No.5

In the public sector, the status of fixed-term civil servants has been elevated and their roles also has been gradually expanding. The purpose of the system of fixed-term civil servants is to improve the professionalism and efficiency of the public sector by introducing high-performing civilian personnel into the public sector. It is also aimed at improving the flexibility of the personnel management system by improving the existing vocational public servant system which entails considerable expense, compared to the benefits by guaranteeing a person’s status. This report examines the problems of the personnel affair practices of fixed-term civil servants during the period of about 5 years after the implementation of the system of fixed-term civil servants. The improvement plan would reviewed in terms of fixed-term civil servants and the respective state institution making the appointment. The improvement of personnel practices from the viewpoint of fixed-term civil servants can be considered unusual personnel practices related working period. In particular, in the personnel practices of fixed-term civil servants in Korea, there are frequent cases of longer term employment by means of reemployment following the expiration of original working period. In this regard, this report examines the background of reemployment through new recruitment process, the illegality and purposefulness of such a procedure, and considers the problems and remedies in the recruitment process. In addition, a practical discussion would be made on what criteria should be established when each state institution applies the new rule introduced in 2015 that extends the working period for fixed-term civil servants with outstanding performance. Because there is still no specific guidance or regulation on how most national authorities should use this rule, this research proposes practical directions and guidelines. This report also included a discussion the application of the promotion system for fixed-term civil servants who are not allowed by the current legislation, and the problems and improvement plans for the work performance evaluation system. From the aspect of the state institution, which is the appointment authority of fixed-term civil servants, this report identifies problems of work management and abuse of appointment rights, and suggests on how to pursue the long-term policy in employing fixed-term civil servants. In particular, this report offers measures to improve the regulations for human resources and practices of the current fixed-term civil servants, especially for the judiciary.

우리 헌법에 있어서 공무원노동조합의 정치적 의사표현자유와 공무원 제도에 대한 기능주의적 이해

김연식 경희대학교 법학연구소 2010 경희법학 Vol.45 No.2

Nowadays, it might be difficult to recognize the argument that rejects civil servants’ three rights and their trade unions. Nevertheless, legal operations of civil servants’ employment relations are very vulnerable to changing political climates that the government and civil servants create. In other words, labour’s legal system enabling civil servants’ trade unions and related activities has not yet been stabilized. Against this backdrop, this paper attempts to understand political expression of civil servants’ trade unions, which provoked a wide scope of pros and cons in Korea. It also seeks to examine the constitutionally protected core of the civil servant system and relevant constitutional rights which are immune from any political or ideological pressures. The paper addresses these issues from the perspective of functionalism, which analyzes original constitutional tasks and functions of each legal system. In this regard, the paper will examine constitutional legal issues concerning civil servants’ trade unions’ political activities, especially political expression. This study will address changes and challenges found in special-power-relation theory. Ultimately, this analysis concludes that protections and restrictions of civil servants’ trade unions’ fundamental rights should avoid black-and-white matters, in which the government blocks or allows all relevant political expressions. Therefore, this article argues that colliding relevant legal interests need to be articulated and adjusted in the context of functionalism. In this context, this paper will examine the functions of the civil servant system and constitutional rights in the constitutional structure of society. In addition, it will determine out how the original functional tasks of civil servant system and constitutional rights are optimized in the context of practical coordination principle. This study will further demonstrate that the constitution should provide minimal protection, enabling the trade union to express its own political opinion directly related to working conditions or labour rights. Finally, the paper will touch upon other kinds of political expression not closely related to labour environments, arguing that top-down and ban-based labour policies would worsen the situation. Therefore, the government needs to develop “practical and living” social rules based on mutual cooperation and trust between the government and labour. In other words, the government—introducing informal social norms—can identify a solution to enhance the possibility of autonomous control regarding civil servants’ trade unions’ political expressions. This approach might require labour policy changes in governmental attitudes, resulting in cumbersome labour-related legal issues.

임기제공무원제도의 바람직한 운영방안에 관한 연구

서현웅(Seo, Hyunwoong) 사법정책연구원 2019 사법정책연구원 연구총서 Vol.2019 No.-

공직사회에서 임기제공무원들의 위상이 갈수록 높아지고 있고 역할도 확대되고 있다. 임기제공무원제도의 취지는 민간 영역의 우수한 인재를 공공부문에 유입하여 공직의 전문성 및 효율성을 제고하는 데 있다. 또한 강한 신분보장으로 편익 대비 비용이 높은 기존의 직업공무원제도를 개선하여 공직 인사의 유연성을 증대하기 위함이다. 본 연구는 임기제공무원제도가 시행 된 지 약 5년이 경과한 시점에서 임기제공무원 인사 실무의 문제점을 살펴보았다. 그리고 그에 대한 개선방안을 임기제공무원 측면과 임용권자인 국가기관 측면에서 각각 고찰하고 개선점을 구체적으로 제시하였다. 임기제공무원 측면에서 바라본 인사실무 개선사항으로 근무기간과 관련된 특이한 인사실무를 살펴보았다. 특히 우리나라의 임기제공무원 인사실무에서는 근무기간 만료 후 재채용을 통해 본래의 근무기간보다 장기 근무하는 사례가 자주 발생하고 있다. 이와 관련해 신규채용을 통한 재임용이 나타나게 된 배경, 이러한 절차의 위법성 및 합목적성 여부를 살펴보고 이러한 재채용 과정상에서 나타나는 문제점 및 개선방안을 고찰하였다. 그리고 2015년 도입된 성과가 탁월한 임기제공무원에 대한 근무기간 연장규정 적용과 관련해 각 국가기관이 탁월한 성과 판단 시 어떠한 기준을 적용해야 하는지 실무적 논의를 진행하였다. 아직 대부분의 국가기관이 이 규정을 어떻게 활용하여야 할지 구체적 지침이나 규정이 없는 상황에서 최소한의 실무적 가이드라인을 제시하였다. 이 밖에 현행 법령상 허용되지 않는 임기제공무원의 승진임용제도 도입방안, 근무성적 평정제도에 대한 문제점 및 개선방안을 논의하였다. 임용권자인 국가기관 측면에서 바라본 제도 개선사항으로는 임기제공무원의 복무관리 및 임용권 남용 문제를 고찰하였고 장기적으로 국가전체의 임기제공무원 활용 정책을 어떠한 방향으로 나아가야 할지에 대한 제언을 포함하였다. 특히 사법부에 대한 제언으로 현 임기제공무원 인사 관련 규정 및 실무상 개선분야를 논의하였고, 장기적으로 사법 행정 분야의 관리자급 직위에 임기제공무원들의 임용 확대에 대비한 인사정책방향을 제시하였다. In the public sector, the status of fixed-term civil servants has been elevated and their roles also has been gradually expanding. The purpose of the system of fixed-term civil servants is to improve the professionalism and efficiency of the public sector by introducing high–performing civilian personnel into the public sector. It is also aimed at improving the flexibility of the personnel management system by improving the existing vocational public servant system which entails considerable expense, compared to the benefits by guaranteeing a person’s status. This report examines the problems of the personnel affair practices of fixed-term civil servants during the period of about 5 years after the implementation of the system of fixed-term civil servants. The improvement plan would reviewed in terms of fixed-term civil servants and the respective state institution making the appointment. The improvement of personnel practices from the viewpoint of fixed-term civil servants can be considered unusual personnel practices related working period. In particular, in the personnel practices of fixed-term civil servants in Korea, there are frequent cases of longer term employment by means of reemployment following the expiration of original working period. In this regard, this report examines the background of reemployment through new recruitment process, the illegality and purposefulness of such a procedure, and considers the problems and remedies in the recruitment process. In addition, a practical discussion would be made on what criteria should be established when each state institution applies the new rule introduced in 2015 that extends the working period for fixed-term civil servants with outstanding performance. Because there is still no specific guidance or regulation on how most national authorities should use this rule, this research proposes practical directions and guidelines. This report also included a discussion the application of the promotion system for fixed-term civil servants who are not allowed by the current legislation, and the problems and improvement plans for the work performance evaluation system. From the aspect of the state institution, which is the appointment authority of fixed-term civil servants, this report identifies problems of work management and abuse of appointment rights, and suggests on how to pursue the long-term policy in employing fixed-term civil servants. In particular, this report offers measures to improve the regulations for human resources and practices of the current fixed-term civil servants, especially for the judiciary.

헌법상 직업공무원제에 관한 연구 ― ‘공무’와의 관계를 중심으로 ―

우미형 행정법이론실무학회(行政法理論實務學會) 2019 행정법연구 Vol.- No.58

국가의 임무는 지속적으로 확대되어 가고 있지만, 국가의 규모는 축소되어야 한다는 주장이 일반적인 지지를 받고 있다. 국가의 임무가 국가의 핵심에서 점차 먼 조직에서 수행되는 경향이 강화되고 있다. 이러한 논의에서 지금까지 소홀히 취급되었던 주제 중 하나가 공적임무의 사화와 공적임무를 수행하는 조직구성원 신분의 관련성이다. 민영화 등을 통해 임무를 수행하는 조직이 바뀌면 공적 통제는 주로 국가의 간접적인 감시, 감독을 통해 이루어지며 공적 임무를 수행하는 개별 임무수행자에 대한 공법적 규율에 대한 논의는 사라진다. 특히, 우리나라는 민영화, 보장국가 등의 논의가 본격적으로 진행되기 이전에도 국가의 임무를 공법인이나 공공단체에서 수행하는 비중이 적지 않았는데, 공법인등에 속한 구성원은 예나 지금이나 공무원 신분을 인정받지 못한다. 문제는 헌법 제7조의 공무원 개념이다. 헌법 제7조 제1항의 공무원은 최광의의 공무원이라는 점에서 이견이 거의 없는데, 국민 전체에 대한 봉사자이며 국민 전체에 대해 책임을 질 의무가 있는 공무원의 범위가 구체적으로 어디까지인지, 구체적으로 어떤 책임을 지는지 등에 대해서는 해석만 분분하다. 한편, 현재 통설과 판례는 헌법 제7조 제2항이 직업공무원제도를 규정하는 것으로 해석하면서, 최광의의 공무원을 의미하는 제1항의 공무원과 달리 제2항의 공무원은 직업공무원제도의 대상인 경력직공무원을 의미하는 것으로 본다. 그런데 이와 같이 헌법 제7조 제1항과 제2항의 공무원을 다르게 이해해야할 타당한 근거가 있다고 보기 어렵다. 제1항과 제2항의 공무원을 동일하게 국민전체의 봉사자로 이해하고, 제2항에 따라 입법자가 직업공무원제를 구체화할 수 있다고 보면 헌법재판소와 같이 법률의 규정에 의거하여 헌법상 직업공무원의 범위를 경력직공무원에 한정하지 않아도 되며 국가의 임무를 위탁받은 공법인이나 공공단체 종사자 중 공무원 제도를 통한 공적 규율이 필요한 대상에 대해 직업공무원의 신분을 부여할 수 있게 된다. 우리는 직업공무원제는 독일에서 계수하였는데 독일에서 직업공무원제를 인정하는 주된 근거는 공무원이 행사할 임무의 중요한 공익성을 고려하여 특별한 의무와 그에 상응하는 보장을 해주는 것이다. 우리 헌법상 국민주권주의와 주기적 정권교체의 보장조항을 헌법 제7조 제2항과 체계적으로 해석하면 우리 헌법이 직업공무원제를 인정하고 있다고 볼 수 있고 여기서의 직업공무원제도는 기능유보를 전제로 하고 있다. 그렇게 보지 않는다면 일정한 공적 임무 수행자에 대해 특별한 혜택인 신분 보장과 특별한 의무인 정치적 중립을 요구할 다른 타당한 근거를 찾아보기 어렵다. 지금까지 우리나라 입법자는 기능유보를 전제로 한 헌법상 직업공무원제의 취지를 제대로 구체화했다고 보기 어렵다. 특히 주된 공적 임무가 계속 외주화되면서 마치 당연한 결과인 것처럼 임무의 사화가 종사자의 사화로 이어졌다. 뿐만 아니라 정책 수행의 핵심을 담당하는 직업공무원에 대해서는 고위공무원단제도를 도입하여 오히려 헌법상 직업공무원제의 취지를 약화시켰다. 향후 입법자는 직업공무원제도를 개선하고 구체화할 때 공무의 성격과 직업공무원 신분과의 관계를 고려하여 헌법제정권자가 예정한 국민의 공복에 의한 공무의 충실한 수행이 담보되도록 해야 할 것이다. While the country's role is constantly expanding, the claim that the size of the government should be reduced is receiving general support. There is a growing tendency for national duties to be carried out in organizations increasingly distant from the core of the state. In this discussion, one of the topics that has been neglected so far is the relationship between the privatization of public duties and the career civil service status of the organization members performing public duties. When privatized, governmental control will be mainly through indirect monitoring and oversight of the state, and the discussion of the ‘public’ responsibility of individual subjects performing public missions disappears. Particularly, before the discussions of privatization proceeded in earnest, Korea already had some proportion of the government to carry out its duties in public institutions. However, the members of public institutions are not recognized as civil servants. The problem is the concept of public officials in Article 7 of the Constitution. The public servants of Article 7, Paragraph 1 of the Constitution are public servants in broad meaning. They are the servants of the whole people and obliged to take responsibility for the whole of the people. In relation to the concept of public servants in Article 7 (2) of the Constitution, the present law and precedents are different from the public servants of Paragraph 1, The public officer under Paragraph 2 shall be deemed to mean a career civil servant. It is hard to say that there is a reasonable basis to understand differently the public officials in Article 7 (1) and (2) of the Constitution. If the public servants of paragraphs 1 and 2 are regarded equally as servants of the whole nation and legislators are able to formulate the provisions of the civil servants under Paragraph 2 in accordance with the provisions of the Constitution, It is possible to grant the career civil servant status to the persons who need the public discipline through the public servant system among the public corporations entrusted with the tasks of the state or public organizations. Career civil servants are counted in Germany. The main reason for recognizing career public servants in Germany is that they provide special duties and corresponding guarantees, taking into account the important public interests of the duties of the officials. If our interpretation of Article 7, Paragraph 2 of the Constitution is systematically interpreted as a guarantee of national sovereignty and periodic regime change in our Constitution, it can be said that our Constitution guarantees career civil servants system. Without that, it is difficult to find any other justification for special favor, such as a guarantee of status, and other necessary grounds for political neutrality, a special obligation. Until now, it is difficult for the legislator of the Republic of Korea to properly shape the purpose of the career civil servant system, which the Constitution presupposes to preserve the function. Particularly as the main public mission continues to be outsourced, the privatization of the mission has led to the privatization of the worker as if it were a natural result. In addition, for the career public servants who are at the core of policy implementation, the introduction of a senior public servant system has weakened the purpose of the career public servant in the Constitution. In the future, the legislator should ensure that faithful execution of public affairs, considering the relationship between the nature of public service and the status of public officials in improving and realizing the career public service system.

공무원 퇴직관리의 현황과 발전방향에 관한 연구 -퇴직예정공무원과 퇴직공무원의 인식을 중심으로

최무현,김경희,김소현 한국공공사회학회 2021 공공사회연구 Vol.11 No.2

The purpose of this study is to comprehensively review the current status of retirement management systems for civil servants in Korea, analyzes the survey of civil servants scheduled to retire and retired civil servants to improve their stability and satisfaction in post-retirement life. The survey was conducted on retired civil servants and civil servants scheduled to retire. The results of the analysis are as follows: The higher the level of retirement preparation, the stronger positive relationship of post-retirement life satisfaction, and the earlier the retirement preparation and the higher the understanding of the retirement support system, the higher positive relationship of the post-retirement life satisfaction. Based on the results of these analyses, the direction of retirement management of civil servants shall be as follows: First, a comprehensive and systematic mid- to long-term civil servants retirement management plan shall be established. Second, a customized retirement supporting system shall be established. Third, retirement management needs to be applied from the perspective of career development by the whole life cycle of civil servants. Fourth, a governance system for civil servants' retirement management needs to be established. 본 연구는 공무원의 퇴직준비 및 관리체계에 대한 현황을 포괄적으로 검토하고, 퇴직예정 공무원과 퇴직 공무원을 대상으로 한 설문조사 분석을 통해, 공무원들의 퇴직후 생활의 안정감과 만족도를 높이고, 공직 경험을 활용한 새로운 사회가치를 창출할 수 있는 공무원 퇴직관리의 발전방안을 도출하는 것을 목적으로 하였다. 설문조사는 국가 일반직 퇴직공무원(이하 퇴직자)과 퇴직예정 공무원(이하 퇴직예정자)을 대상으로 이루어졌다. 분석결과를 종합하면 다음과 같다. 퇴직준비의 수준이 높을수록 강한 정의 퇴직후 생활만족도를 기대할 수 있으며, 퇴직준비의 시기가 빠를수록 그리고 퇴직지원 제도의 대한 이해 정도가 높을수록 퇴직후 생활만족도가 높다고 할 수 있다. 분석결과를 바탕으로 앞으로 공무원 퇴직관리 방향을 제언하면 다음과 같다. 첫째, 종합적이고 체계적인 중장기 공무원 퇴직관리 계획이 수립되어야 한다. 둘째, 수요자 중심의 맞춤형 퇴직지원체계가 구축되어야 한다. 셋째, 퇴직관리는 공무원의 생애주기별 경력개발의 관점이 적용될 필요가 있다. 넷째, 공무원 퇴직관리의 거버넌스 체계가 구축될 필요가 있다. 그 밖에도 퇴직준비 교육이 능동적인 학습의 형태를 갖출 필요가 있고, 퇴직자나 퇴직예정자 뿐만 아니라 그 가족까지도 정책의 대상으로 포함시킬 필요가 있다.

행정권한 민간위탁의 헌법상 한계

송시강(Song Si-kang) 행정법이론실무학회 2020 행정법연구 Vol.- No.63

「행정권한의 위임 및 위탁에 관한 규정」은 “행정기관의 사무 중 일부를 지방자치단체가 아닌 법인 단체 또는 그 기관이나 개인에게 맡겨 그의 명의로 그의 책임 아래 행사하도록 하는 것”을 민간위탁으로 규정한다. 이와 같이 정의되는 행정권한 민간위탁은 다양한 민관협력 중에서 하나의 특별한 범주를 지칭하는 개념이 된다. 우리 법제에서 행정권한 민간위탁은 공무원이 행사하는 권한을 공무원이 아닌 자가 행사하기 위해서 반드시 필요한 수단이다. 이를 통해 공무원은 상대적으로 중요한 사무에 집중할 수 있으므로 조직 관리의 효율성을 도모할 수 있을 뿐만 아니라 민간의 전문성과 경쟁성을 적절하게 활용할 경우에는 사무 수행의 경제성을 도모할 수도 있다. 문제는 행정권한 민간위탁의 대상이 어디까지 확대될 수 있는지에 있다. 이에 관하여 「행정권한의 위임 및 위탁에 관한 규정」은 “국민의 권리 의무와 직접 관계되지 아니하는 사무”를 행정권한 민간위탁의 기준으로 제시하고 있으나, 최근 법제는 기본권에 중대한 영향을 미치는 영역에 대해서까지 행정권한 민간위탁을 확대하는 추세에 있다. 그러나 이와 같은 행정권한 민간위탁의 범위 확대가 헌법적으로 허용되는지에 관하여는 지금까지 충분히 진지하게 검토되지 않고 있다. 이점에 착안하여 본 연구는 행정권한 민간위탁의 헌법상 한계로서 법률유보의 원칙, 적법절차의 원칙, 공무원유보의 원칙을 비교법적인 관점에서 분석하고, 그것이 우리 법제에서 어떠한 실천적 의미를 가질 수 있는지 검토한다. 본 연구의 결론은 다음 3가지로 요약될 수 있다. 첫째, 법률유보의 원칙으로부터, 공무원이 아닌 자가 행정권한을 행사하는 경우에는 그 재량권의 행사를 객관적으로 통제할 필요성이 상대적으로 크다는 점에서 그에 비례해서 포괄적인 수권이 금지된다는 명제가 추론된다. 둘째, 적법절차의 원칙으로부터, 공무원이 아닌 자가 행정권한을 행사하는 경우에 그 상대방이나 제3자가 공무원에 의해서 행정권한이 행사되는 경우에 비해서 행정절차와 행정구제에 있어서 불리한 지위에 놓여서는 안 된다는 명제가 도출된다. 셋째, 공무원유보의 원칙으로부터, 국민의 권리 의무와 직접 관계되는 사무는 공무원에 의해서 수행되는 것이 원칙이고 예외적으로 공무원이 아닌 자에 의해서 수행되기 위해서는 정당한 사유가 있어야 할뿐만 아니라 그에 대해서 공무원이 적절하게 감독할 수 있어야 한다는 명제가 추론된다. 이상과 같은 헌법상 한계에 비추어 보았을 때에 공무원이 아닌 자에게 중대한 기본권을 침해할 수 있는 행정권한을 위임하는 입법은 원점에서 재고되거나 부작용의 최소화를 위해 개선될 필요가 있다. Delegation of administrative authority to private parties is a necessary means for a person who is not a civil servant to exercise administrative authority exercised by civil servants. In this way, civil servants can concentrate on relatively important office work, which not only promotes the efficiency of organizational management, but also can improve the economic efficiency of administrative affairs if the civilian expertise and competitiveness are appropriately utilized. The problem lies in the extent to which delegation of administrative authority to private parties can be expanded. Recent legislations are in the trend of expanding delegation of administrative authority to private parties to areas that have a great influence on basic rights. However, whether the enlargement of the scope of delegation of administrative authority to private parties is allowed by the Constitution has not been seriously examined so far. This study examines the principle of reservation to civil servants, the principle of reservation to the law and the principle of due process of law as limitations on delegation of administrative authority to private parties from a comparative legal point of view and examines what practical meaning they have in our legal system. The conclusions of this study can be summarized as follows. First, from the principle of reservation to civil servants, the proposition is inferred that, in principle, affairs directly related to the rights and duties of the people are carried out by civil servants, exceptionally, in order to be carried out by non-civil servants, there must be justifiable grounds and it should be able to supervise appropriately by civil servants. Second, from the principle of reservation to the law, the proposition is inferred that, if non-civil servants exercises administrative authority, because the necessity of objectively controlling the exercise of discretion is relatively large, comprehensive authorization should be prohibited accordingly. Third, from the principle of due process of law, the proposition is inferred that, when administrative authority is exercised by non-civil servants, compared to when it is exercised by a civil servant, the other party or a third party should not be placed in a disadvantageous position in administrative procedures and administrative remedies. In light of the above limitations of the Constitution, legislations delegating administrative authority to infringe on fundamental rights to non-civil servants should be reconsidered at the origin or improved to minimize side effects.

지방정부 장애인 공무원 고용의 영향요인에 관한 연구

김예령,나태준 한국국정관리학회 2024 현대사회와 행정 Vol.34 No.1

This study aims to identify the factors influencing the employment of disabled civil servants within local government settings, with the goal of promoting the inclusion of disabled individuals, a socially vulnerable group, and to emphasize the government’s role as an exemplary employer. The research analyses the employment status of disabled civil servants from 2019 to 2021 across 226 basic local governments nationwide. It investigates various factors impacting the employment rate of disabled civil servants in these local governments, as well as their compliance with mandatory employment regulations for disabled civil servants. The independent variables include legal and institutional factors, normative factors, political factors, and social and economic factors. As a result of the analysis, it was found that the enactment of the Ordinance on Convenience Support for disabled civil servants, which is a legal and institutional factor, and the size of registered disabled people, which is a social factor, had a positive effect on both the employment rate of disabled civil servants and compliance with mandatory employment of disabled civil servants. The implementation of the employment surcharge system was found to have a negative impact on the employment rate of disabled civil servants. On the other hand, the organization of policy consumers, which is a social factor, the political inclination of the head of the organization, which is a political factor, and the budget to support vulnerable groups, which is an economic factor, were found to have no significant effect on the employment rate of disabled civil servants and compliance with mandatory employment of disabled civil servants.

여성 공무원의 승진 동기에 미치는 영향요인 연구 - 평등성과 공정성을 중심으로 -

권일웅 ( Illoong Kwon ),한승희 ( Seung-hui Han ) 한국거버넌스학회 2015 한국거버넌스학회보 Vol.22 No.2

Even though the number of female civil servants has been increasing, the percentage of female civil servants in high-ranking positions is still low. Discrimination against women in promotion (glass ceiling) would reduce motivations of female civil servants for promotion, and increase prejudice that females are inferior and passive in leadership positions. Furthermore, the lack of motivations for promotion could cause a vicious circle which may strengthen discrimination against female civil servants. To increase motivations of female civil servants for promotion, this study distinguishes formal equality which focuses on equal treatment between men and women, and equity which makes use of knowledge, skill, capacity of female. Also, this paper investigates which organizational management system is more effective in improving motivations of female civil servants for promotion. Using a survey data on central government civil servants in Korea, this paper shows that equitable organizational management system which makes efficient use of knowledge, skill of female has significant effect on increasing motivations of female civil servants. Interestingly, we can observe more significant effect in female civil servants on the age of 20s and 30s. Also, this paper shows that formal equality decreases motivations of male civil servants for promotion. Therefore, we need to consider paradigm shift of personnel policy from equal treatment between men and women to equitable organizational management system which makes use of knowledge, skill, capacity and focuses on human resource development of female.

공무원을 대상으로 한 징계재량권 남용의 심사기준과 강도 — 대법원 2019. 12. 24. 선고 2019두48684 판결 —

강화연 행정법이론실무학회 2023 행정법연구 Vol.- No.71

The Korean Supreme Court’s recent decision, “Supreme Court of Korea, Decision of 24 December 2019, 2019Du48684”, followed the precedent of applying the Supreme Court’s existing legal principle to the standard of judicial review, or the intensity of judiciary control, on canceling disciplinary discretionary actions, such as removal or suspension, against civil servants due to the severity of disciplinary measures. The Korean Supreme Court held that, “disciplinary actions shall be considered illegal only if the discretionary power conferred to the disciplinary authority was abused to the degree that the disciplinary measure was manifestly unreasonable in the common sense of the society.” By citing this legal standard, the Supreme Court maintained its long tradition of relaxing the standard of judicial review in deciding the legality of disciplinary actions against civil servants. The current relaxed legal standard has the hazard of significantly limiting civil servants’ chance to have any disciplinary action reviewed when their fundamental rights to job security and property are violated by such disciplinary action. The judicial review on the potential violation of such rights should not be deferred to the relevant governmental agency’s review as the civil servants’ fundamental rights could be at stake. In this regard, a closer analysis of recent Korean court decisions in similar cases, including the aforementioned decision, shows us that, despite the continued citation of the aforementioned principle as the golden rule, in applying the principle to the given facts, the Korean courts have vigorously reviewed whether the disciplinary measure was too severe in relation to the harm caused by the civil servant’s misconduct. Comparatively, a notable trend is found worldwide, including in France, the United Kingdom, and the European Union, that the administrative courts are making a change from a relaxed standard of review of the legality of disciplinary actions to a strict review of whether the disciplinary measures imposed were excessively severe or disproportionate. Therefore, the Korean Supreme Court should adopt a new, stricter principle on the standard of judicial review over the severity of the disciplinary measures. Given the close link between disciplinary actions and civil servants’ fundamental rights, the gap between the existing principle and its application by Korean courts on the standard of judicial review on civil servants’ disciplinary action cases should be closed. Even though civil servants have the Constitutional duty to perform public service, as well as other duties of loyalty, which sometimes result in them being treated not equally as private employees, being subject to a disciplinary action is, in most cases, irrelevant to the civil servants’ job or duty towards the people they are serving, but rather is related to their personal lives. In this regard, the civil servants’ right to have the wrongful disciplinary action fully reviewed should not be limited.