독일의 실업급여와 실업부조 제도

조성혜 한국비교노동법학회 2023 노동법논총 Vol.59 No.-

독일의 실업자는 기준기간 30개월 동안 피보험기간 12개월 이상 취업을 하면 실업 전 소득과 무관하게 순임금의 60%(유자녀 67%)에 해당하는 실업급여((Arbeitslosengeld)를 받을 수 있다. 피보험기간이 우리나라(기준기간 18개월 중 180일 이상 취업)에 비해 2배 정도로 길고, 우리나라와 같은 급여의 상・하한액 제도가 없다. 실업급여의 수급기간은 피보험기간과 연령에 따라 최단 6개월에서 최장 24개월로, 우리나라의 최단 120일에서 최장 270일보다 2배 이상 길다. 실업급여의 제한 사유는 우리나라와 유사하나 제한 기간을 1주부터 12주까지로 다양하게 정하고 있다. 독일의 시민급여(Bürgergeld)는 일명 “하르츠 Ⅳ”(Hartz Ⅳ)라고도 일컬어졌던 실업급여 Ⅱ를 대체하여 2023. 1. 1.부터 시행된 실업부조로서, 근로의 능력과 의사가 있으나 취업하지 못한 사람으로서 생활을 유지하기 어려운 사람과 그의 가족에게 지급된다. 시민급여는 실업급여 수급기간이 만료한 후에도 직장을 찾지 못한 장기실업자, 실업급여만으로는 생계를 유지하기 어려운 실업급여 수급자에게도 지급된다. 우리나라의 실업부조인 구직촉진수당이 실업급여 수급기간 만료 후 6개월이 지난 사람에게만 지급되어 실업급여와 연계되지 않는 점과 대비를 이룬다. Unemployed people in Germany can receive 60% of wages(67% with children) of unemployment benefits regardless of their pre-unemployment income if they meet the 12-month insured period for the period of 30 months. In the case of Germany, the insured period is about twice as long as that of Korea (180 days), and there is no controversy over equity as there is no upper or lower limit system for wages as in Korea. The reasons for the restriction of unemployment benefits are similar to those of Korea, but the difference from Korea is that the period of the restriction varies from 1 week to 12 weeks. In Germany, the payment period of unemployment benefits are 6 months to 24 months depending on the insured period and age, whereas in Korea 120 days to 270 days, so the the payment period in Germany is twice as long as in Korea. The German citizen benefit is an unemployment assistance that took effect on January 1, 2023, replacing the unemployment benefit II, also referred to as Hartz IV, and is paid to people who have the ability and intention to work but cannot find a job and difficulty making a living. Citizen benefit is also paid to long-term unemployed people who cannot find a job even after the period of unemployment benefits expires, and unemployment benefit recipients who find it difficult to make a living on unemployment benefits alone. On the other hand, the job search promotion allowance, which is an unemployment assistance in Korea, is paid only to those who have passed 6 months period after the expiration of the unemployment benefit period, so it is not linked to unemployment benefits.

현행 실업급여 제도에 대한 재검토

노병호(Roh, Byoung-Ho),엄주천(Eom, Ju-Cheon) 원광대학교 법학연구소 2012 圓光法學 Vol.28 No.1

The unemployment benefit system proved effective in South Korea during the 1997 financial crisis and the global financial crisis, triggered by the bankruptcy of Lehman Brothers in 2008, as it proved income support for people who lost their job. The unemployment benefit system has been refined to serve an important role in preventing unemployment and accelerating reemployment, in addition to the core objective of providing income for unemployed people. Despite the effective role of the unemployment benefit system, it is necessary to assess the system as a key element of social safety net as originally intended and its effects on reemployment of people receiving unemployment benefit. The system still has downside as a social safety net given that approximately 5 million laborers are uninsured for the benefit and that people who are voluntarily unemployed due to irresistible reasons such as illness are not entitled to the benefit. In addition, people who are not eligible for the benefit include those who failed to find a new job after receiving the benefit, young people seeking a job, those aged 65 or older who want a job, those who have an irregular employment status, those who want to return to the job market after resigning from the previous job voluntarily and those who run a self-employed business. Thus the exclusion of many groups makes it hard to see the unemployment benefit system as an instrument of social protection. The level of unemployment benefit also stir debates. It is therefore needed to investigate the benefit level and effects of the system on reemployment of the unemployed. The job market was hit hard by the financial crisis in 1997 and 2008. The economic crisis that began to loom in the European region in 2011 also pose a potential threat to job security. Although the job market is highly vulnerable to economic slowdown, the unemployment benefit is the only social security available for Korean people. To expand the system as a complete social safety net, the introduction of unemployment allowance seems necessary. This study suggests the direction of the unemployment benefit system that can fulfill the all objectives; stabilize living situation of the unemployed, redistribute wealth and promote reemployment.

현행 실업급여 제도에 대한 재검토

노병호,엄주천 원광대학교 법학연구소 2012 法學硏究 Vol.28 No.1

The unemployment benefit system proved effective in South Korea during the 1997 financial crisis and the global financial crisis, triggered by the bankruptcy of Lehman Brothers in 2008, as it proved income support for people who lost their job. The unemployment benefit system has been refined to serve an important role in preventing unemployment and accelerating reemployment, in addition to the core objective of providing income for unemployed people. Despite the effective role of the unemployment benefit system, it is necessary to assess the system as a key element of social safety net as originally intended and its effects on reemployment of people receiving unemployment benefit. The system still has downside as a social safety net given that approximately 5 million laborers are uninsured for the benefit and that people who are voluntarily unemployed due to irresistible reasons such as illness are not entitled to the benefit. In addition, people who are not eligible for the benefit include those who failed to find a new job after receiving the benefit, young people seeking a job, those aged 65 or older who want a job, those who have an irregular employment status, those who want to return to the job market after resigning from the previous job voluntarily and those who run a self-employed business. Thus the exclusion of many groups makes it hard to see the unemployment benefit system as an instrument of social protection. The level of unemployment benefit also stir debates. It is therefore needed to investigate the benefit level and effects of the system on reemployment of the unemployed. The job market was hit hard by the financial crisis in 1997 and 2008. The economic crisis that began to loom in the European region in 2011 also pose a potential threat to job security. Although the job market is highly vulnerable to economic slowdown, the unemployment benefit is the only social security available for Korean people. To expand the system as a complete social safety net, the introduction of unemployment allowance seems necessary. This study suggests the direction of the unemployment benefit system that can fulfill the all objectives; stabilize living situation of the unemployed, redistribute wealth and promote reemployment.

OECD 주요국 실업급여제도의 유형별 비교

채구묵(Chai Goo Mook) 한국사회학회 2011 韓國社會學 Vol.45 No.1

본 연구는 OECD 선진국들의 실업급여제도, 실업급여제도의 유형 및 유형별 사회보장적 측면을 살펴보고, 유형별 경제적 측면을 비교ㆍ분석해 본 후, 한국의 실업급여제도와 관련된 시사점을 탐색해 보고자 했다. 선진국의 실업급여제도는 단기간의 실업급여만 있는 제1유형 장기간의 실업급여만 있는 제2유형, 실업급여와 실업부조가 있는 제3유형으로 분류할 수 있다. 유형별 사회보장적 측면 비교분석 결과, 실업급여와 실업부조가 있는 제3유형, 장기간의 실업급여만 있는 제2유형, 단기간의 실업급여만 있는 제1유형 순으로 보편성, 적절성, 적기성이 높은 것으로 나타났다. 제3유형과 제2유형은 크게 차이가 없이 보편성, 적절성, 적기성이 높으나, 제1유형은 다른 두 유형에 비해 보편성, 적절성, 적기성이 매우 낮은 것으로 나타났다. 경제적 측면 비교분석 결과, 첫째 실업급여제도의 관대성은 실업률에는 정적인 영향을 미치지 않으나, 장기실업률에는 정적인 영향을 미치며, 둘째 경제활동참가율에 약하게 정적인 영향을 미치고, 셋째 경제성장률에 정적인 영향을 미치는 것으로 나타났다. 이는 실업급여제도의 관대성이 장기 실업률 증가에 영향을 미치나, 실업자들로 하여금 경제활동인구로 남아 있도록(비경제활동인구로 전락하지 않도록) 영향을 미치며, 경제성장에 긍정적인 영향을 미친다는 것을 의미한다. 선진국의 유형별 실업급여제도 비교ㆍ분석을 통해 얻을 수 있는 시사점은, 첫째 관대한 실업급여제도 도입을 검토해 볼 필요가 있으며, 둘째 관대한 실업급여제도 중 실업급여와 실업부조가 있는 제3유형이 한국에 더 적합하고, 셋째 관대한 실업급여제도 도입 시 나타할 수 있는 실업률, 특히 장기실업률 증가를 감소시킬 수 있는 방안이 마련되어야 하며, 넷째 관대한 실업급여제도가 경제활동 참가, 개인의 생산성 향상 및 경제성장으로 이어지도록 적극적 노동시장정책이 활성화되어야 한다는 것이다. This study examines unemployment benefit systems and types of unemployment benefit systems in OECD developed countries, comparatively analyzes social welfare aspects and economic aspects of unemployment benefit systems by type, and seeks implications for the Korean unemployment benefit system. Unemployment benefit systems in OECD developed countries can be classified into three types: the first type having only short-term unemployment insurance benefits, the second type having only long-term unemployment insurance benefits, and the third type having both unemployment insurance benefits and unemployment assistance benefits. An analysis of social welfare aspects by type is summarized as follows. Universalism, adequacy, and opportune time of unemployment benefit systems are high in the order of the third type, the second type, and the first type. The third type and the second type are similarly high in universalism, adequacy, and opportune time of unemployment benefit systems, but the first type is low in those of unemployment benefit systems. An analysis of economic aspects is summarized as follows. First, the generosity of unemployment benefit systems does not affect unemployment rates, but positively affects long-term unemployment rates. Second, the generosity of unemployment benefit systems has weakly positive effects on labour force participation rates. Third, the generosity of unemployment benefit systems positively affects economic growth rates. This means that generous unemployment benefit systems influence the increase of long-term unemployment, but influence the remaining of the unemployed in labour force participation, and affirmatively influence the economic growth. The implications for the Korean unemployment benefit system through comparatively analyzing unemployment benefit systems of developed countries are as follows. First, it is necessary to examine the introduction of generous unemployment benefit systems. Second, between generous unemployment benefit systems the third type having both unemployment insurance benefits and unemployment assistance benefits is more appropriate to Korea. Third, measures to reduce the increase of unemployment rates, especially long-term unemployment rates should be prepared in the introduction of a generous unemployment benefit system. Forth, in order to connect generous unemployment benefits with the participation of economic activities, improvement of individual productivities and economic growth, active labour market policies should be activated.

한국과 미국의 연장실업급여제도 비교를 통해 본 우리나라 특별연장급여제도의 개편 방향

허재준(Jai Joon Hur),김동헌(Dong Heon Kim) 한국사회정책학회 2011 한국사회정책 Vol.18 No.1

본 연구는 한국의 특별연장급여와 미국의 연장실업급여를 비교하고, 이러한 비교 분석을 바탕으로 우리나라 특별연장급여제도의 개편 방향을 제시한다. 우리나라와 미국의 실업급여는 유사하고 실업급여의 관대성도 비슷한 수준이지만, 미국의 연장실업급여는 우리나라의 특별연장급여에 비해 훨씬 관대하게 제도가 운영되고 있다. 구직급여에 비해 특별연장급여의 지급이 재취업 동기를 더 약화시킬 것이라는 주장은 경험적 근거를 두고 있지 않기에, 재취업을 촉진시키기 위해 특별연장급여의 지급액을 하향 조정하여 지급하는 정책보다는 장기실업에 처한 근로자의 생활안정을 도모하기 위해 특별연장급여를 구직급여와 동일하게 지급하는 정책을 시행하는 것이 타당하다. 우리나라의 실업급여 소진율은 미국과 비교하여 훨씬 높은 수준이다. 이는 구직급여 소정급여일수의 적정성에 대한 연구가 시급함을 보여준다. 특별연장급여의 촉발조건을 살펴보면 제도 운영상의 별다른 문제가 없어 보이지만, 최근의 노동시장 현실을 반영하여 조만간 촉발조건의 미시적 조정이 필요하다고 본다. 특별연장급여에 소요되는 비용은 전액 혹은 절반 정도 정부에서 부담하는 방식을 채택하는 것이 바람직하다고 판단되기에, 향후 발생할 가능성이 있는 고용위기에 대응하여 특별연장급여 재원조달방식에 대한 노사정의 협의가 요구된다. In this paper we compare extended unemployment benefits programs between Korea and the USA with a comparative perspective and, based on the comparative analysis, suggest institutional reform of Korea`s extended unemployment benefits in the employment insurance system. Although Korea and the USA have similar unemployment benefits systems, institutional arrangements of extended unemployment benefits are much more generous in the USA than in Korea. Based on the U.S. empirical studies and policy experiences of extended unemployment benefits, we suggest the extended benefit amount should be the same as the regular benefit amount to support the livelihood of the long-term unemployed. Our study shows that Korea`s exhaustion rates are much higher than those of the USA. This implies that it is imperative to review general adequacy of regular benefit duration and the duration of extended benefits. Current triggers used to activate extended benefits need some fine-tuning in the near future to adapt to the changing labor market situations. Finally we argue that extended benefits should be financed by the general tax or at least 50 percent of the expenditure costs shared by the government.

실업급여 지급기간의 일자리 매칭 효과

이병희 ( Byung Hee Lee ) 한국산업노동학회 2015 산업노동연구 Vol.21 No.1

이 글은 지급기간 측면에서 실업급여가 미취업기간, 재취업 일자리의 안정성, 반복수급에 미치는 효과를 평가하였다. 고용보험DB를 이용하여 분석한 결과에 따르면, 소정급여일수가 짧을수록 신속하게 재취업하는 반면 재취업 일자리의 근속기간이 짧으며, 3년내 실업급여의 반복수급 비율이 높게 나타난다. 이는 단기 수급이 신속한 재취업을 촉진하지만 일자리 매치의 적합도가 낮아서 노동시장의 불안정성을 억제하는 효과가 낮으며, 반복적인 수급을 통해 실업급여 재정에도 부담을 주고 있음을 의미한다. 소정급여일수가 90일인 단기 수급자의 지급기간을 우선적으로 확대할 필요가 있음을 제안한다. Korea has a very short duration of unemployment benefits. Using administrative data of unemployment insurance, this paper analyzes the effect of benefit durations on non-employment duration, re-employment stability and repeat use of unemployment benefits. Empirical findings show that recipients with shorter duration of benefit have a high level of re-employment hazard. However they experience less stable jobs and more repeat use of unemployment benefits. They implies that a matching effect of unemployment insurance is low. This paper suggests the extension of benefit duration for those who have shorter of benefit than average unemployment duration.

Blame for unemployment and support for unemployment benefits

Yoon Soo Lee 한국행정학회 2019 International Review of Public Administration Vol.24 No.1

It is necessary to expand the literature on social insurance preferences and examine how perceptions on the causes of staying unemployed influence preferences for unemployment benefits. First, this paper argues that people have lower support for unemployment benefits if they attribute unemployment to individual characteristics. Second, it is argued that the effect of individual attribution of unemployment on support for unemployment benefits is larger for people with low risk of unemployment. People who are less likely to receive future benefits are more sensitive to the possibility that receivers are free-riders who do not deserve benefits. Supporting individual level evidence is provided by statistical analysis using the European Social Survey (ESS).

실업급여 지급기간 변화의 효과 분석

문외솔 한국개발연구원 2010 KDI Journal of Economic Policy (KDI JEP) Vol.32 No.1

I develop a matching model in which risk-averse workers face borrowing constraints and make a labor force participation decision as well as a job search decision. A sharp distinction between unemployment and out of the labor force is made: those who look for work for a certain period but find no job are classified as the unemployed and those who do not look for work are classified as those out of the labor force. In the model, the job search decision consists of two steps. First, each individual who is not working obtains information about employment opportunities. Second, each individual who decides to search has to take costly actions to find a job. Since individuals differ with respect to asset holdings, they have different reservation job-finding probabilities at which an individual is indifferent between searching and not searching. Individuals, who have large asset holdings and thereby are less likely to participate in the labor market, have high reservation job-finding probability, and they are less likely to search if they have less quality of information. In other words, if individuals with large asset holdings search for job, they must have very high quality of information and face very high actual job-finding probability. On the other hand, individuals with small asset holdings have low reservation job-finding probability and they are likely to search for less quality of information. They face very low actual job-finding probability and seem to remain unemployed for a long time. Therefore, differences in the quality of information explain heterogeneous job search decisions among individuals as well as higher job finding probability for those who reenter the labor market than for those who remain in the labor force. The effect of the extended maximum duration of unemployment insurance benefits on the aggregate labor market and the labor market flows is investigated. The benchmark benefit duration is set to three months. As maximum benefit duration is extended up to six months, the employment-population ratio decreases while the unemployment rate increases because individuals who are eligible for benefits have strong incentives to remain unemployed and decide to search even if they obtain less quality of information, which leads to low job-finding probability and then high unemployment rate. Then, the vacancy-unemployment ratio decreases and, in turn, the job-finding probability for both the unemployed and those out of the labor force decrease. Finally, the outflow from nonparticipation decreases with benefit duration because the equilibrium job-finding probability decreases. As the job-finding probability decreases, those who are out of the labor force are less likely to search for the same quality of information. I also consider the matching model with two states of employment and unemployment. Compared to the results of the two-state model, the simulated effects of changes in benefit duration on the aggregate labor market and the labor market flows are quite large and significant. 본고에서는 노동자들이 위험 기피적이고 차입제약을 갖는 Mortensen-Pissarides (1994) 매칭모형에 경제활동참여 의사결정을 내생화하여 실업급여 지급기간 변화가 노동시장에 미치는 영향을 분석하였다. 모형의 실업은 구직활동을 하였으나 일자리를 찾지 못한 상태로 정의하고, 비경제활동은 비구직활동으로 정의한다. 경제활동참여 의사결정을 내생화하기 위하여 개별 노동자들이 노동시장으로부터 서로 다른 정확성을 갖는 정보를 관찰하고, 이러한 정보가 개별 구직확률에 영향을 준다고 가정한다. 개별 경제주체들의 자산보유규모가 서로 다르기 때문에 구직활동을 하는 것과 하지 않는 것을 무차별하게 만드는 의중구직확률 또한 서로 다르다. 따라서 자신이 관찰한 정보의 정확성이 충분히 높아서 실제 구직확률이 자신의 의중구직확률보다 높은 사람들은 구직활동을 선택하게 된다. 이러한 모형을 바탕으로 실업급여 지급기간 3개월을 벤치마크로 하여 지급기간을 각각 4개월부터 6개월까지 연장할 때 전체 노동시장 및 경제활동상태 간 노동자들의 이동비율에 미치는 효과는 다음과 같다. 첫째, 실업급여 지급기간의 연장은 취업자들의 근속기간을 늘리는데, 근속기간이 늘어나면 취업자들의 예비적 동기에 의한 저축이 늘어나고, 저축에 따른 자산보유규모의 증가는 노동의 한계비용을 증가시켜 노동시장에서 이탈할 유인을 제공한다. 따라서 경제활동참가율을 떨어뜨린다. 둘째, 실업급여 지급기간이 늘어날 때 실업급여 수급자격을 갖춘 경제주체들의 의중구직확률은 떨어지고 실업상태에 남을 확률은 높아져 실업자 수가 증가한다. 따라서 실업률이 상승한다. 셋째, 실업자 수의 증가는 균형 공석-실업비율을 감소시켜 경제 전체의 구직확률을 낮추게 되며, 이는 차례로 비경제활동상태에 있는 사람들의 경제활동참여를 저해하는 효과를 야기한다. 이러한 결과는 비경제활동을 고려하지 않았을 때에는 나타나지 않는 현상이다.

공공고용서비스와 실업급여의 ‘역사제도적’ 동학

이덕재 한국노동연구원 2021 노동정책연구 Vol.21 No.4

The various introductions of public employment services(PESs) in foreign countries are not satisfied due to the lack of explanations about the relationship with unemployment benefits. With this in mind, this paper attempts to explain the historical institutionalization processes by comparative studies, deviding the processes into an integrated type and a separate one. For example, PESs are mostly run by state with the principle of the ILO's public monopoly on job brokerage in 1919, whereas unemployment insurance based on the Ghent system mainly operates with various forms. Meanwhile, in the countries such as the UK and Korea run in a way of compulsory unemployment insurance, PESs and unemplyment insurance become centrally-integrated forms. While the relationship between unemployment insurance and PESs has been maintained stable, the connection between PESs and unemployment assistance has become unstable. The rapid and radical innovations of PESs over the past 20~30 years have continued for unemployment assistance benefit recipients, appearing in two forms of decentralization types, one-stop, and marketization types, gateway. The demonstrations indicate that the institutional systems of PESs need to be modified to align with the unemployment benefit program. 그동안 각국의 공공고용서비스에 대한 다양한 소개들은 실업급여와의 연관성에 대한 해명의 결여로 체계적 설명으로 이어지지 못했다. 이러한 문제의식에서 본 논문은 공공고용서비스와 실업급여(실업보험 및 실업부조) 간의 역사적 제도화 과정을 비교연구적 관점에서 특히, 국가와 노사 혹은 지역을 중심으로 각각 통합형과 분리형으로 나누어 설명하였다. 예컨대 1차 대전 직후 1919년 설립된 ILO의 직업소개에 대한 공공독점 원칙과 함께 공공고용서비스의 경우 대부분 국가가 운영한 반면 겐트시스템에 기반한 실업보험은 주로 노조가 운영하는 코포라티즘적 형태를 띠면서 다양한 변용을 나타내었다. 대체로 국가가 강제보험으로 실업보험을 관리한 영국, 한국, 일본과 같은 나라는 중앙집중적 통합형으로 나타났다. 실업보험과 공공고용서비스의 안정성이 오랫동안 유지된 반면 실업부조와 공공고용서비스의 관계는 불안정했다. 지난 20~30년간 공공고용서비스의 급격한 혁신은 바로 이 실업부조 급여 수급자, 즉 장기실업자 등 비경활 대상자들을 중심으로 진행되었고, 크게 원스톱 형태의 ‘분권화’와 게이트웨이 형태의 ‘시장화’라는 두 가지 형태로 나타났다. 이상의 분석을 통해 우리는 공공고용서비스가 각국들의 주어진 사회경제적 맥락 속에서 실업급여 프로그램에 정합적인 방식으로 제도화될 필요가 있음을 주장하였다.

실업급여가 고용성과에 미치는 효과

윤정향 ( Jeong Hyang Yoon ),이시균 ( Si Kyoon Lee ) 한국사회보장학회 2010 사회보장연구 Vol.26 No.2

This paper analyzes the effect of unemployment benefit on employment performance, using the data of the Regional Employment Statistics and the administrative data of unemployment benefit. To assess the effect of unemployment benefit, the authors introduce the method of Cox Proportional Hazard at micro level and multilevel logit model at macro level. By micro analysis, we found that unemployment benefit increases reemployment hazard of recipients, but reemployment hazard decreases with unemployment benefit duration, level, replacement rate. Also unemployment benefit promotes possibility of labor market participation and employment at macro analysis. These results suggest that more improvement of unemployment benefit enhances employment performance.