한국 지방교육행정체제 분석 및 카자흐스탄에의 적용

국문 초록 (Abstract)

본 연구는 한국 지방교육행정의 조직, 과정을 및 형태를 분석해서 카자흐스탄 교육행정에 적용하기 위하여 실시되었다.
본 연구의 주요 내용을 보면, 먼저 지방교육행정의 개념 및 원리의 고찰; 외국의 지방교육행정의 분석 및 비교; 한국지방교육행정의 법적 근거 및 발전 과정, 한국 지방교육행정의 형태와 조직, 구성 및 제도, 지방교육재정, 지방교육행정의 주요 쟁점 및 문제 분석; 카자흐스탄 교육행정의 형태 및 지방교육행정의 조직, 법적 근거, 지방교육재정의 발전과정, 주요문제 및 제한을 분석하였으며, 카자흐스탄 지방교육행정의 발전을 위한 모델을 만들어 보았다.
한 나라의 자율적, 자주적 교육행정제도를 대표하는 교육행정의 하나는 지방교육행정이다. 한국은 많은 개혁을 겪으면서 지방교육자치제도를 제정하였고 현재 지방교육행정제도를 성공적으로 실시하고 있다. 한국 지방교육행정의 법적 근거는 헌법, 지방자치법, 교육기본법 및 지방교육자치에 관한 법률에 근거하며, 한국 지방교육행정의 주요 원리는 헌법 31조에서 표방하고 있는 자주적, 전문적 및 정치적 중립성이다. 한국 지방교육자치의 발전과정은 학자에 따라 다르지만 주로 3개의 발전 과정을 주장하고 있는데 다음과 같다: 제정기(1945~1960), 발전기(1960~1963), 부활기(1964~1990). 한국 지방교육행정은 시도의 교육 및 학술을 통제하는 의결기관인 교육위원회, 집행기관인 교육감을 두고 있다. 2010년부터 교육위원회가 지방의회의 상임위원회로 변경되었음에도 불구하고 교육의 자주성을 유지하며 외부적 영향으로부터 자율성을 가지고 있다.
카자흐스탄의 경우, 1991년에 독립을 얻은 후 교육행정의 분권화를 수행했지만 옛 소련의 매우 중앙집권적인 교육행정제도가 카자흐스탄의 교육행정에 아직도 많은 영향을 미치고 있기 때문에 중앙에서 통제하고 있는 지방교육행정은 자주적으로 실시되지 못하고 있다. 카자흐스탄의 교육행정은 중앙정부(교육과학부)와 지방정부에 의해 운영되고 있는데, 지방정부는 지방의회인 Maslikhat와 지방행정기관인 Akimat로 구성된다. Akimat에 소속된 교육부서의 구성원도 중앙에서 임명되기 때문에 교육의 자주성, 국민 의견의 고려 및 지방교육의 특수성을 살리지 못하고 있다. 지방교육의 운영 및 재정은 중앙정부와 지방행정이 나눠서 책임지고 있는데 중앙정부(교육과학부)의 영향이 더 큰 상태가 유지되고 있다.
카자흐스탄과 한국의 지방교육행정에서 비슷한 점은 Akimat과 지방의회 및 교육위원회이며, 두 나라에도 교육위원회가 지방의회에 소속되고 있지만, 카자흐스탄에는 교육감이 없다는 점이 다르다. 또 카자흐스탄 교육위원회가 심의기관이기 때문에 한국처럼 의결기관으로 개정해서 행정에 관한 의사를 결정할 수 있는 권한을 갖추어야 한다. 따라서 교육위원회의 위원 및 교육감도 각 도시에서 주민들이 선출해야 한다. 그리고 한 나라의 교육지방행정이 근거할 수 있는 법률이 있어야 되는데 카자흐스탄에는 아직 제정되어 있지 않다는 점이 한국과 다른 점이다.
하지만 두 나라의 여러 가지 제도적, 문화적, 지리적 및 재정적 차이를 인해서 한국의 지방교육행정제도가 카자흐스탄의 교육행정에 적용할 때 몇 가지 유의할 점이 있다는 결과가 나왔다. 두 나라의 가장 큰 차이점은 나라의 정치적 제도가 다르고 또한 도시군 등 광역, 기초자치 단체가 다르기 때문에 같은 제도를 적용하는 것은 어려운 점이다. 또는 카자흐스탄은 다문화 민족 나라이기 때문에 여러 가지 언어, 문화, 종교 등을 고려해야 하는 점도 있다는 것이다.
지방교육행정제도는 교육의 자주적, 전문적 및 정치적 중립성을 확보할 필요로 인해 제정되어야 한다. 즉, 지방교육행정제도는 카자흐스탄의 자율적인 교육행정을 확보하면서, 주민의 참여, 자주적 제도의 시행 등을 통하여 카자흐스탄의 지방교육행정과 교육행정제도를 발전시킬 것이다.

다국어 초록 (Multilingual Abstract)

The local educational administration is one of the most important aspects to introduce democracy and autonomy to the country’s education system.
Korean local educational system has acquired the system of local educational autonomy and has been successfully established through many reforms and revivals from the establishment to the bloom of the current local educational administration. The legal foundations of the local educational administration system of Korea are based on such documents as Constitution, Basic Educational Act, Local Government Act and Local Educational Autonomy Act. Korean local educational administration has gone through several periods of establishment which includes: adoption period (1945~1960), when the release from the US Military Government has resulted in legalizing the ‘Educational Act’ in 1949; development period (1960~1963) and the revival period (1964~1990), during which the system had gone through many reformations. The reforms of the local educational administration system mainly concerned the Local Educational Autonomy Act, Boards of Education and the Superintendent of Offices of Education.
The local educational administration of Korea includes such organizations as the Board of Education as a legislative body, the Superintendent of Education as an executive body, and other subordinate organizations to assist their functions and responsibility. The Board of Education is a legislative body established in 16 city and province levels in order to guarantee independence of education and variedness of each region. Though the Board of Education has joined the Local Council, the local educational administration has still remained autonomous and free of outer influences. The Superintendent of Offices of Education is an executive body which represents city/province levels on the matters concerning education, art and sciences. Both the Board of Education and the Superintendent of Education are elected through public vote. The finance for the local educational administration are subsidized from the general budget and managed by the Ministry of Education, Science and Technology, the amount of which is dependent on the amount shift of the internal taxes. The local educational administration of Korea involves several problems concerning the cooperation between general local administration and local educational administration, centralized distribution of authority, relations of the local educational organizations, problems of local educational finance and other important issues which are being solved through the process of development.
The local educational development of Kazakhstan is in the process of establishment, which was highly centralized during the former Soviet Union and after gaining independence it has adopted the decentralized system, though the traces of the former system still reflect in the current educational administration. Though the decentralized educational administration was established in 2001, the system is still somehow centralized and requires control and management from the Central Government. Legal foundations of Kazakhstan local educational administration are included in Constitution, Law on Education and National Strategic Plans for Education issued by Presidential or Parliament Decrees. Educational system in Kazakhstan is currently managed by two levels: Ministry of Education and Science at the central level, and local Governments, which include Maslikhat and Akimats, where Maslikhats are local representative bodies, and Akimats are local executive bodies, the members of which are appointed or elected to office by the President of the Republic by the recommendation of the Prime Minister. Department of Education is the standing member of local Akimats, and is accordingly appointed by the latter. Local educational finance in Kazakhstan is subsidized by the Government, regional authorities and private sponsors. Higher education institutions are financed from the State’s budget, while the majority of colleges, technical training institutions and kindergartens are funded by regional authorities. In 2000, 86.5% of the financing secondary education was from regional budgets, and this level has been largely sustained in the following years. Problems of Kazakhstan local education include many issues, mainly concerning the lack of freedom of educational administration, highly centralized system and strong influence from the local and Central Governments.
Therefore the model of embedding the local educational system of Korea to Kazakhstan was the main purpose of the given research paper.
The model has shown that the Departments of Education can be substituted by the Board of Education in Korea; however the Superintendent of Education needs to be established as it doesn’t have original or similar organization in Kazakhstan. Accordingly, the subordinate organizations, such as educational organizations, Offices of Education and School Boards also have to be established from the first form. However the results have shown that there might be several hindrances and obstacles in the process of embedding the Korean system due to several differences of two countries, such as cultural, geographical and economic features.
The purpose to establish the local educational administration reflects the need to promote independent, professional and politically impartial education in Kazakhstan, therefore the establishment of the decentralized local educational administration would guarantee democracy in regions, and eventually in the whole country as well.

목차 (Table of Contents)

• Chapter I Introduction 1
• 1.1 Statement of Problem 1
• 1.2 Research Questions 2
• 1.3 Research Methodology 3
• 1.4 Research Contents 4
• Chapter II Framework of Local Educational Administration 6
• 2.1 Concept of LEA System 6
• 2.2 Principles of LEA 10
• Chapter III Local Educational Administration in Other Countries 14
• 3.1 LEA in the USA 14
• 3.2 LEA in England 17
• 3.3 LEA in France 19
• 3.4 LEA in Japan 21
• 3.5 Comparison of LEA in Four Countries 25
• Chapter IV Development of Local Educational Administration System in Korea 29
• 4.1 Education System in Korea 29
• 4.2 Legal Foundations of the LEA 32
• 4.3 Brief History of Establishment of LEA 36
• 4.4 Reforms of the LEA System 40
• Chapter V Current Local Educational Administration System in Korea 45
• 5.1 Board of Education 45
• 5.2 Superintendent of Offices of Education 53
• 5.3 Subsidiary Organizations 56
• 5.4 Local Education Finance 62
• 5.5 Local Educational Administration and Local Government 66
• 5.6 Problems of LEA 68
• Chapter VI Educational Administration System in Kazakhstan 72
• 6.1 Educational System in Kazakhstan 72
• 6.2 Legal Foundations of LEA 75
• 6.3 Current Educational Administration System 80
• 6.4 Local Education Finance 89
• 6.5 Problems of LEA 91
• Chapter VII Model of Applying Korean LEA System to Kazakhstan EA 96
• 7.1 Model of Perspective Kazakhstan LEA 96
• 7.2 Implications and Considerations in Applying the Model 101
• Chapter VIII Conclusion 106
• 8.1 Results of the Research 106
• 8.2 Implications and Limitations of the Research 110
• References 112
• Korean Abstract 118
• List of Tables
• Table 3.1 The Comparison of the LEA Structure in Four Countries 25
• Table 3.2 Characteristics of LEA in Four Countries 28
• Table 4.1 Changing Process of Korean LEA (1948~1988) 36
• Table 5.1 The Board of Education Members in Each Region of Korea 47
• Table 5.2 Seoul Metropolitan City Election Districts 50
• Table 5.3 Total Expenditure of the Municipal and Provincial Education (2006, 2007) 65
• Table 6.1 Structure of Education System in Kazakhstan 73
• Table 6.2 Administrative-Territorial Units in Kazakhstan 85
• Table 6.3 Structure of Almaty City Education Department 89
• Table 7.1 The Comparison of the LEA Structure of South Korea and Kazakhstan 96
• Table 7.2 The Comparison of the Legal Bases of the LEA in South Korea and Kazakhstan 97
• Table 7.3 Perspective LEA of East Kazakhstan Region 101
• List of Figures
• Figure 3.1 The Relations of Educational Administration Institutions of the USA 15
• Figure 3.2 The Local Government Structure of England 18
• Figure 3.3 Central and Local Levels of Educational Administration in Japan 22
• Figure 5.1 Organization of the Board of Education in Korea 46
• Figure 5.2 Organization of Seoul Metropolitan Office of Education 58
• Figure 5.3 Structure of the Local Educational Finance 63
• Figure 6.1 Organizational Structure of the Ministry of Education and Science, Kazakhstan 82
• Figure 7.1 Model of Perspective Kazakhstan LEA 98