농업 고용환경 변화에 따른 외국인근로자 활용 정책 방안

Abstract

우리나라 농업인구 감소 및 고령자 비율의 증가는 농업 고용환경을 변화시키며 농업부문의 노동력 초과수요 문제로 이어졌다. 이에 정부는 농업부문 외국 고용인력 유입 정책을 국내 고용인력 유입 정책과 함께 중요한 과제로 다루고 있다.

대표적인 농업부문 외국 고용인력 유입 정책에는 고용허가제와 계절근로자제가 있다. 이를 통해 농가는 일손부족 문제를 일부 해결하고 있으나 여전히 현실적· 제도적 문제들이 지적되고 있다. 또한 농업 현장에서는 미등록 외국인력 고용이 등록 외국인력 고용을 앞서는 문제도 존재한다. 그러나 외국 고용인력 유입 정책과 미등록 외국인력 부문을 함께 검토한 연구는 부재하다. 따라서 현장과 제도 사이의 간극을 근본적으로 줄일 수 있는 농업부문 외국인근로자 제도의 제시가 필요한 시점이다.

이에 본 연구에서는 농업부문 미등록 외국인근로자를 포함한 외국인근로자 고용 실태를 조사·분석하였다. 통계청 자료 분석은 물론, 데이터가 부재한 부분은 농업인(작물재배업, 축산업), 사설인력소를 대상으로 한 설문조사로 보완하였다. 추가적으로 농업인 심층면담을 통해 현장의견을 담았다. 또한 미국, 호주, 일본 등 주요국의 농업부문 외국 고용인력 유입 정책 연구를 수행하고 우리나라에 주는 시사점을 도출하였다. 끝으로 조사·분석 결과 등을 바탕으로 현재 농업부문 외국인근로자 제도의 한계를 도출하고, 이를 풀어나갈 수 있는 정책 방향을 제시하였다.

Background and Purpose Although foreign workers are commonly seen in rural areas, newspapers still report that agricultural labor is in shortage. They say that it is not easy to find foreign workers in rural areas due to COVID-19. The decline in the number of farm households and aging in rural areas also affect the agricultural employment environment. The total amount of agricultural labor force has decreased and the characteristics have changed. Also, there has been a difference in the type of labor input depending on the size of farm households. In response, the central and local governments have implemented policies to increase domestic agricultural workforce, such as attracting returning farmers and fostering young farmers; and policies to induce foreign agricultural workers through the employment permit system and seasonal employment. Although several years have passed since the employment permit system and the seasonal labor program were implemented nationwide, excessive demand for agricultural labor continues, and the employment of undocumented foreign workers in illegal stay is prevalent. In order to precisely grasp the characteristics of the agricultural labor market, in which foreign workers are hired both legally and illegally, this study investigated and analyzed the employment status of foreign workers, including those undocumented in the agricultural sector. Based on the analysis results, this research presented problems of the current employment system for foreign workers in the agricultural sector and the mid- to long-term policy directions to tackle them.

Research Methodology We reviewed the issues and problems related to the employment of foreign workers and prepared improvement measures by referring to prior studies at home and abroad related to foreign worker employment in the agriculture sector. Using various secondary statistical data and quantitative models such as the Agricultural Census and Farmhouse Economy Survey, we analyzed the employment status and determinants of foreign workers and derived implications. In addition, in order to compensate for the shortcomings in the second statistical data and the 2018 survey data, and to reflect the characteristics of the recent agricultural employment market, we conducted a survey through local KREI correspondents and human resource agencies. In addition, through in-depth interviews with farmers currently hiring foreign workers and personnel in charge of the labor force management, we investigated the employment routes and conditions of undocumented foreign workers, which could not be identified through statistical data and surveys, and the gap between the actual situation and the system. In addition, the feasibility of applying it to Korea’s agricultural sector were examined based on the analysis of foreign workforce policies in other countries.

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Researchers: Eom Jinyoung , Park Daesik , Cho Seoungyeon , Kim Younjin Research period: 2020. 1. ~ 2020. 10. E-mail address: jeom@krei.re.kr