Promoting and Controlling Labor Migration = 한국 정부의 이주노동 관리체제 : 단기체류 이주노동 프로그램 통제를 위한 정부의 개입과 그 결과

국문 초록 (Abstract)

한국 정부는 최근 고용허가제(EPS)로 불리는 단기체류 이주노동 프로그램을 국내 비숙련 부문 노동수급대책으로 운영해 왔다. 대부분의 논의는 한국의 사례를 비롯한 동아시아 이주노동 정책이 20세기 중반 유럽과 미국에서 시행되어 온 게스트노동자 정책의 전철을 밟아 실패의 길로 접어들 것인지에 집중되어 왔다. 이 논문은 ‘강한 국가’로 간주되는 한국정부가 이주노동자들뿐만 아니라 이주노동 송출국과 고용주에 대한 통제를 획득하고 유지해 온 방식을 검토함으로써 고용허가제의 쿼터제와 세분화된 분류체제를 통해 한국 정부가 효율적이지만 착취적인 단기체류 이주노동 관리 양식을 조율해 왔음을 주장한다. 중앙정부의 이주노동에 대한 강력한 개입은 이주노동자 구성에 있어서 인종적·성별 불균형을 낳았을 뿐만 아니라 서울 외곽의 산업도시에 외국인 남성 노동자의 공간적 밀집현상을 초래했다. 본 논문은 기존의 아시아 이주노동 정책의 성공/실패 이분법을 넘어서 한국의 고용허가제를 사례로 하여 아시아 모델의 구체적 양상을 조명하고 이처럼 강력한 통제가 야기한 예상된, 그리고 예상치 못한 결과에 대해 탐색하고자 한다.

다국어 초록 (Multilingual Abstract)

South Korea has recently implemented a temporary migrant worker program, called the Employment Permit System (EPS), to meet the needs of domestic businesses for low-skilled workers. Much discussion has focused on whether this and other East Asian migration programs would fail like European and American guest worker programs did decades earlier. By examining the ways in which the strong South Korean state has gained and maintained control over not only migrant workers but also employers and labor-sending governments, this research argues that the EPS quota management and classification systems are essential to the effective, but exploitative, enforcement of temporary migrant rules. The government’s heavy-handed intervention in labor migration has also produced an extreme ethnic and gender imbalance in the composition of the migrant workforce and a geographical clustering of “non-Korean” male migrant workers in traditional industrial cities in outer parts of Seoul. This research extends our understanding of temporary migrant worker programs by looking beyond the success/failure dichotomy and the Asian model of migration to address how specific programs are actually administered and what are the intended and unintended outcomes of such tight control.

목차 (Table of Contents)

• Abstract
• 요약
• 1. Introduction
• 2. The Strong State and Temporary Migrant Workers in East Asia
• 3. South Korea’s Rapid but Uneasy Transition in Labor Migration
• 4. The Employment Permit System : Gaining Control over Migrant Workers, Employers and Laborsending Governments
• 5. Classification for Control in Labor Migration
• 6. (Un)intended Consequences of Tight Control Measures
• 7. Conclusion
• References

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