B552146 - 국제협력팀 - 2022 - 0005 - 08

ISSN 2671-4833

2022

Minister Lee Jung Sik visiting employees of DSME on strike (Jul 2022)

Korea Labor Review

Publisher Chung, Hyoung-Woo

발행인 정형우

CONTENTS

LABOR & MANAGEMENT FOCUS

MAJOR ISSUES

SUSTAINABILITY MANAGEMENT

Korea Labor Review

Accurate Material Safety Data Sheet Preparation: The First Step toward Chemical Safety

Ministry of Employment and Labor

The Environment Minister Han Wha-jin on a field visit 한화진 환경부 장관 현장방문

from Ministry of Environment 출처C환경부

Last February, sixteen workers at a Gyeongnam-based manufacturer were accidentally poisoned after inhaling trichloromethane (chloroform) from a cleaning agent. The cleaning agent manufacturer had provided the company using the products with a false material safety data sheet (MSDS) which concealed the toxic material in the product. In addition, the company using the products did not take basic safety and health measures for workers when using the agent, such as wearing personal protective gear.

● What is an MSDS?

지난 2월, 경남 소재 제조업체에서 유독물질로 인해 근로자 16명이 중독되는 사고가 발생했다. 세척제에 함유된 유독물질인 트리클로로메탄(클로로포름)을 흡입하여 중독된 것이다. 세척제 제조사는 제품에 유독물질이 함유되어 있는 것을 숨긴 상태에서 물질안전보건자료(17(7)를 허위로 작성하여 하위 사용자에게 제공했고, 하위 사용업체는 세척제 사용 시 개인보호장구 착용 등 기본적인 근로자의 안전보건에 관한 조치를 이행하지 않았다. 고용노동부에서는 위와 같은 근로자 집단중독 사고가 잇따라 발생함에 따라, 화학물질 제조ㆍ수입ㆍ사용 사업장에 대해 물질안전보건자료(17(7)를 정확히 작성하고 이행할 것과, 특히 최근 신설된 물질안전보건자료 제출제도 및 비공개심사제도를 철저히 숙지하고 이행할 것을 당부한 바 있다.

● 물질안전보건자료란# 화학물질, 혼합물 또는 화학제품의 안전한 취급과 사용을 위해 산업안전보건 등에 관한 정보를 제공하는 일종의 화학물질 취급설명서로, 제품명, 구성성분의 명칭 및 함유량, 유해z위험성 분류 등 총 16개 항목으로 구성

※ When an overseas manufacturer appoints a Korean national agent and submits an MSDS, the importer shall be exempt from submission. (Subject materials) Chemical materials or mixture-in-mixture materials falling under Article 104 of the Occupational Safety and Health Act (OSHA) and attached Table 18 of the OSHA enforcement decree.

Chemical materials excluded from MSDS submission (Article 86 of the OSHA enforcement decree)

(Documents to submit)

 (대상물질) 산안법 제104조 및 동법 시행규칙 별표18에 의한 유해z위험성 분류기준에 해당하는 화학물질 또는 혼합물

 (제출서류) - 물질안전보건자료

(Submission of revised MSDS) When a major change in written items arises, this shall be reflected in the MSDS and a revised MSDS must be submitted immediately.

Chemical materials for which substitute data submission is not possible ① Materials prohibited for manufacturing under Article 117 of the OSHA

 (물질안전보건자료 변경 제출) 기재사항 중 주요한 변경사항이 생긴 때에는 이를 물질안전보건자료에 반영하고, 변경된 물질안전보건자료를 지체 없이 제출해야 함

대체자료 기재가 불가능한 화학물질 ① 산안법 제117조에 따른 제조등금지물질

- Trade secret evidence

Review procedure

Application Application for non-disclosure review

* An objection can be made within 30 days from the day that a notification is received.

(Term of validity and extension) An application for an MSDS non-disclosure extension must be submitted 30 days before the expiration of the term → up to a five-year extension is possible.

- 제 품의 물질안전보건자료 - 물질안전보건자료대상물질의 구성성분 중 유해z위험성 분류기준에 해당하지 않는 물질의 명칭 및 함유량 (또는 화학물질 확인서류)

심사절차

신청

* 승인 결과에 대해 이의가 있는 경우 통보를 받은 날부터 30일 이내에 이의신청 가능

 (유효기간 및 연장) 유효기간 만료 30일 전까지 17(7시스템의 “물질안전보건자료 비공개 연장승인 신청서”를 제출

● Grace periods for MSDS submission

When to prepare MSDSWhen to submit

● Appointment of an agent of overseas manufacturer (Conditions for agent) Korean national or corporation based (addressed) in Korea (Duties to perform) - To prepare and submit MSDS

● 물질안전보건자료 제출제도 유예기간 부여

물질안전보건자료 작성시기제출시기

● 국외제조자 대리인 선임

Obligations of Owners of Businesses Receiving MSDSs

04 To post management tips by work process treating chemical materials

물질안전보건자료를 제공받는 사업주의 의무01 화학물질을 취급하기 전 제조z수입자나 양도z제공자로부터 17(7를 제공받아 비치

05 화학물질 취급 노동자에게 17(7 내용에 대한 교육 실시

Achievements and Future of the MSDS Submission System

* Online explanatory meetings/forums (five times), contribution to KOSHA monthly magazine (Oct. 2020, Jan. 2021), Q&A distribution, guidance video, leaflets, and sticker distribution (over 20,000 establishments), and SNS events (2,289 people participated)

물질안전보건자료 제출제도의 성과와 미래

 (지도감독) 17(7 제출제도 자율점검(4b6월, 8,300개소) 및 불시감독(약 200여개소, 7.25b9.2.) 실시

Before revision

To recognize importer LoC for trade secret non-disclosure reviews (from Aug. 18, 2022)

Before revision

● Future plans

개정전

 영업비밀 비공개 심사 시 수입자 0S' 인정 (‘22.8.18.b)

개정전

● 향후 계획

Korea Labor Review

Special Interview 특별 인터뷰

Lee Jung Sik, Minister of Employment and Labor 이정식 고용노동부 장관

In May 2022, Mr. Lee Jung Sik was appointed as a new Minister of Employment and Labor, becoming the first head of the Ministry of Employment and Labor under the new Administration. Lee promised in his inaugural speech that he would build a safe, fair labor market in which the labor and the management could grow together and which would enable anyone with an intention to work to easily land a job. Below is an interview with the Minister, who has always found himself in the middle of the field for more than 20 years, the closest possible place to labor and employment policies.

2022년 5월, 새 정부 초대 고용노동부 장관으로 이정식 장관이 임명되었다. 윤석열 정부의 고용노동 정책을 추진할 첫 수장이 된 이정식 장관은 취임사에서 “안전하고 공정한, 노사 상생의 노동시장을 만들고, 일하고 싶은 사람 모두가 쉽게 일자리를 찾을 수 있는 고용시장을 만들겠다”고 약속했다. 20 년 넘게 고용노동 정책과 가장 밀접한 현장에서 활동해온 이정식 장관을 만나 이야기를 들어봤다.

What are some focal employment and labor policies of the new Administration?

status. The government is determined to rebuild labor-management and labor-labor trust and to realize a labor market that is undivided and ensures a level-playing field designed to promote mutual growth and prosperity. Second, outdated and anachronistic laws and systems will be innovated in a resolute manner. Some of the current systems were built 70 years ago in an age of industrialization. Our goal is to bring innovation to the rigid systems so that they are fit again for the rapidly changing labor environment. Third, the real vulnerable whose voices are rarely heard must be given full protection. The government will stay committed to its fundamental responsibility of protecting the life and safety of its people in order to reduce the number of industrial accidents to that of average advanced countries within 5 years. Blind spots in a social safety net will also be addressed. And more importantly, teaching the vulnerable workers how to catch a fish instead of catching a fish for them will be a direction in the government’s efforts to upgrade peomlipcileosy (mALeMntP )s. e rvice through active labor market

정부에서 가장 역점을 두고 추진하고 계시는 고용노동 정책은 어떤 것들이 있나요#

둘째로, 현 시대에 맞지 않는 낡은 법z제도는 과감하게 혁신할 것입니다. 70년 전 산업화 시대에 만들어진 과거의 경직적인 제도들을 급변하는 노동환경에 맞게 혁신해 나가겠습니다.

19

Meeting on employment and labor trends 노동동향 점검회의

At a press conference held on the 100th day of the Yoon Administration, the President mentioned Hartz Reforms of Germany in a context of the importance of pushing through policies for the future regardless of their popularity as a way of showing the determination of the government for reforms. Could you elaborate on the significance and objective of labor market reforms underway? Leaving the old way as it is would be like wearing clothes not fit for one’s body size. Labor market reforms are oriented towards a sustainable future. The objective of the reforms is to prepare for tomorrow in a preemptive manner so that our economy makes a leap forward again while providing a more adequate protection for the socially vulnerable population.

systems compatible with a need for utilizing elderly workers for production output also beg our attention at a demographic dead cross. To respond to these needs, the government would take its first step in wages and working hours systems with the biggest and most urgent calls from the field and intend to restructure them in accordance with “global standards.” Workweek or workload itself is important but what matters more to work smarter is flexible and efficient working hours management. Compensation schemes should also be revised to correspond to one’s jobs and performance as a way of ensuring objectivity and fairness. This is a key to attracting more core talents and achieving a shared growth beneficial to all. The government will do the best it could to add more flexibility to uniform and rigid systems and innovate outdated practices that are not relevant.

대통령께서 정부 출범 100일 기자회견을 통해, 과거 독일의 하르츠 개혁을 언급하면서, 인기가 없는 정책이라도 미래를 위한 정책은 꿋꿋하게 추진해 나가겠다고 하시며 노동시장 개혁 의지를 강조하셨습니다. 정부에서 추진하고 있는 노동시장 개혁의 의미와 목표에 대하여 설명 부탁드립니다.

이에, 현장의 개선요구가 가장 많고 시급한 임금, 근로시간 제도부터 “글로벌 스탠다드”에 맞게 개편해 나가려 합니다. 시간의 양도 중요한 문제지만, 더 똑똑하게 일하기 위해서는 유연하고 효율적인 근로시간 관리가 필요합니다. 보상체계도 직무와 성과에 부합하도록 바꿔 객관성과 공정성을 확보해야 합니다. 그래야 핵심 인재를 확보하고 동반 성장을 이룰 수 있습니다. 정부는 획일적이고 경직적인 제도의 유연성을 더하고, 낡은 관행을 혁신해 나가도록 할 수 있는 지원을 다하겠습니다.

Field discussions on working hours system reforms 근로시간 제도 개편 현장 간담회

What is the current progress of Future Labor Market Research Group? Do you plan to initiate a social dialogue engaging the labor and the management after the duration of the Research Group?

「미래 노동시장 연구회」의 진행 상황은 어떻습니까# 종료 이후 노z사 등 사회적 대화를 추진하실 계획이십니까#

Kick-off meeting for Future Labor Market Research Group 「미래 노동시장 연구회」 킥오프 회의

The recent DSME subcontractor workers’ strike caused by labor-management conflicts were worried by many to be a burden not just to the Korean economy but also to the global one. To everyone’s relief, the two sides reached an agreement in a peaceful manner, during which you played a significant role as a previous head of the KLES and a specialist for labor dialogue and coordination with 30 years of experience. What, in your opinion, would our labor market need to resolve conflicts through peaceful labor-management dialogues?

지난 대우조선해양 하청 노사갈등은 대한민국 경제는 물론, 글로벌 경제에 부담요인으로 작용하는 것이 아닌지 우려들이 많았습니다. 다행히 평화적으로 타결이 되었고, 그 과정에서 노사발전재단의 수장이기도 하셨고, 노동계 30여 년 경력의 대화z 조정 전문가이신 장관님의 역할이 컸다고 봅니다. 장관님께서 보시기에 노사가 평화적인 대화로 갈등을 해결하기 위해 우리 노동시장에 필요한 것들은 무엇이 있을까요#

by both sides within the law would be a shortcut to sustainable labor-management relations. Dialogues and compromises, engagement and cooperation, and solidarity and shared growth are the key to the problem. The recent DSME strike was a meaningful case in that it set an example where the conflict was resolved in a peaceful manner through dialogues and compromises within the law. President Yoon himself has shown a keen interest in this issue, too, and made sure that it should be a consistent position of the government that both the labor and the management will be held accountable in an impartial manner for any illegal conduct. In the meantime, he also emphasized the importance of field visits to facilitate dialogues and negotiations. The government will stay firmly committed to ensuring compliance with laws and principles while devotedly working as a mediator and conciliator to help the labor and the management engage in open dialogues and discussions. Korea Labor and Employment Service is also expected by many to play an active role in this regard as a leading organization that aims to build rmeulattuioanllsy -tbhernouegfichi ajol inant dpr coojeocptesr baetitvwe elaebn otrh-em tawnoa gpeamrtieenst.

South Korea is one of the world’s renowned leaders in shipbuilding, but the recent DSME strike has exposed an issue of multi-layered contractee/(sub) contractor structures and gaps in working conditions therein, which is worried to be “a fear factor“ to the future of the shipbuilding industry. Does the government have solutions for this? Multiple government departments and agencies are joining hands to come up with solutions for the dual structure of shipbuilding sectors. Some of the current issues, however, can be attributable to systemic obstacles caused by the nature of the industry, such as production volatility determined by a weather, work process, etc., and consequently, the government alone cannot solve all the problems. What is relieving is that the industry stakeholders that I have met in the field all see eye-to-eye on the ipnridouristyt royf raencodv eornin gth ceo mupregteitnivceyn eosfs sino ali dshairpibtuyi ldainndg

로는 현장을 방문해 대화와 협상을 지원토록 하셨습니다. 정부는 앞으로도 법과 원칙을 엄정하게 세우는 한편, 노사가 터놓고 대화해 해결할 수 있도록 중재z조정해 나가겠습니다. 노사 공동사업을 통해 상생과 협력의 노사관계를 지향하는 노사발전재단의 활발한 역할을 기대합니다.

대한민국은 세계적인 조선업 강국이지만, 대우조선해양 사태로 드러난 다단계 원하청 구조와 근로여건 격차의 문제는 조선업의 미래에 불안요인으로 작용하고 있습니다. 이 문제를 해결하기 위한 정부의 방안이 있을까요#

Visiting employees of DSME on strike 대우조선해양 농성현장 방문

cooperation between the labor and the management of both a contractee and (sub)contractors to help all those involved grow and prosper.

능합니다. 대–중소, 원–하청, 정규–비정규직 간 격차는 대한민국의 활력을 떨어뜨리고 불평등의 원인이 되고 있다고 3)'(도 지적했습니다.(‘22년 한국 경제보고서) 지속가능하고 상생하는 미래를 위해 이해관계자 간의 연대와 타협하려는 의지와 고민이 필요합니다. 「미래 노동시장 연구회」에서 이중구조 문제도 노사, 전문가 등 다양한 이해관계자로부터 폭넓게 의견을 듣고 소통하고 있습니다. 전 92 사무총장 코피 아난의 얘기처럼 ‘우리가 대화를 지속하는 한 진보를 성취’할 것입니다. 추후 경사노위에서도 이중구조 개선 과제에 대한 공론화와 사회적 논의가 이뤄질 수 있도록 적극 지원해 나가겠습니다.

Visiting and checking business establishments 사업장 방문 및 점검

Now, the reduction of serious industrial accidents is a major issue of labor market reforms. You mentioned that there would be an announcement of “a roadmap to reduce serious industrial accidents“ in late October. Could you elaborate on some of the major points?

노동시장 개혁의 주요 현안인 중대재해 감축에 대해서도 여쭤보겠습니다. 10월 말 「중대재해 감축 로드맵」을 발표하실 것이 라고 예고하셨는데 주요 내용이 무엇인지요#

K-digital Training Hackathon Award Ceremony /-디지털 트레이닝 해커톤 시상식

their opinions, to be followed by consultation within relevant ministries and agencies to determine a final version. In addition, the government is also planning promotion activities for its policy direction, e.g. debates and public campaigns to help form public consensus on the issue. A social safety net has served as a big support for vulnerable population throughout various disasters including the COVID pandemic last year and extreme heatwave and heavy rain this summer. Now there is a rising need to expand such a safety net to platform workers as a result of diversified labor forms. What is the future plan of the government?

지난 코로나 팬데믹을 비롯해, 올 여름 폭염z폭우 등 다양한 재난 상황에서 사회안전망은 취약계층에게 큰 버팀목으로 작용했습니다. 플랫폼노동 등 근로형태가 다양화되면서 이들에 대한 사회안전망 확대 필요성이 제기되고 있는데, 정부의 앞으로 의 계획은 어떠신지요#

more effective system capable of providing protection to these new job types, too, in order to build a sustainable employment and labor system.

계를 소득기반으로 전환하는 방안을 추진하고 내년 7월부터 산재보험의 전속성 요건을 폐지해 더 많은 노무제공자가 산재보험에 가입할 수 있도록 할 것입니다.

Korea Labor Review

Ealuation of the Wage and Working Hours Systems of South Korea and Recommendations for their Improement Going Forward

Hong Jong-sun Head of Labor Standards Policy Team, Korea Enterprises Federation 홍종선 한국경영자총협회 근로기준정책팀장

Meeting between the MOEL Minister and CEOs of European companies in Korea 고용노동부장관-주한 유럽기업 ')3 간담회

from Korea Labor and Employment Service 출처C노사발전재단

Radical Changes in the Labor Market Environment in an Age of Grand Transitions The world is currently going through an age of big transformation. With the digital transition characterized by the 4th Industrial Revolution, an industrial environment has become flexible and forms of employment more diverse. The labor market of South Korea has also experienced radical changes internally. As the country has entered a hyper-aged society in a rapid manner, a significant decrease in productive population and labor productivity has become a source of concern. The MZ generation known for its individualism and high sensitivity for fairness entering labor market has led to shift in awareness.

Uniform regulation on working hours and wages would likely dampen the enthusiasm and passion of a young generation that attaches significant importance to individuality and diversity. Rigid working hours would fail to meet the needs of workers and employers alike for freedom of choosing working hours, and a wage system heavily oriented towards seniority would discourage workers in need of fair compensation while at the same time giving companies excessive, unnecessary burdens. A Need to Increase Labor Market Flexibility In an age of grand transformation in which everything surrounding our economy is changing, laws and regulations need to be streamlined and improved in a manner that allows more flexible responses in line with changes in a business environment in order to ultimately sharpen the competitive edge of companies and help expand the basis for job creation. With the temporal and spatial limit of working getting blurred, in particular, along with the urgent need for labor responsiveness and agility in the 4th Industrial Revolution era, labor market flexibility is a quintessential element. A survey

대전환기 노동시장 환경 급변

공정한 보상을 요구하는 근로자들의 의욕을 저하시키고 기업에는 과도한 부담을 지우게 된다.

conducted by Korea Enterprises Federation last June shows that 44.7% of the respondents chose “Promoting flexibility to create jobs” as the number one priority among many labor reform tasks of the new government of South Korea, which can also be understood in the same context. Ensuring flexibility to working hours and wage systems, the two most fundamental conditions of labor and the most urgent issues that cannot wait to be attended to later. The rigid labor market of Korea has repeatedly been subject to domestic and international criticism including the World Economic Forum (WEF). For example, the 2019 WEF Global Competitiveness Report put Korea at 97 among 147 countries in terms labor market flexibility. However, Korea has failed to show enough commitment to streamline its labor market. The previous government rather gave the business community heavier burden by means of radical reduction of workweek and a minimum wage increase. It explains the huge expectation of Korean people towards the new policy of Yoon Administration aimed at streamlining the labor market of Korea. The Yoon Administration announced 120 national policy tasks in

July, a set of focal policy tasks of the new government during 5 years. As part of such commitment, companies and workers would be allowed to have a wider scope of right to choose working hours and an improved wage system based on tasks and performance that promotes cross-generational benefits would also be promoted. More specifically, the extension of the settlement period for a customized working hours system, a working hours savings account system as part of managing the aggregate overtime labor, and easement of regulation of working hours of startups and professional workers are few examples of such new policy lines. In addition, a wage and task information system would be built to provide accurate information regarding task- and job-specific wages. More support would be given to companies for improving their wage systems that corresponds to their unique needs. The Yoon Administration launched future labor market research group comprising experts and specialists including the academia as a way of promoting in-depth discussions on these issues. The Institute plans to spend 4 months to have discussions before publishing recommendations for the government on improving the relevant systems.

로조건이면서 시급히 해결해야 할 과제인 근로시간 제도와 임금체계의 유연성 확보는 더 이상 미룰 수 없는 시대적 과제이다. 과거 정부나 ;)* 등 국제 평가에서도 우리 노동시장의 경직성에 대한 지적이 계속됐다. ;)*가 발표한 2019년 국가경쟁력 보고서에서도 우리 노동시장의 유연성 경쟁력은 조사대상 147개국 중 97위에 그쳤다. 그러나 우리의 노동시장 개선 발검음은 더디기만 했다. 오히려 지난 정부에서는 급격한 근로시간 단축과 최저임금 인상 등 기업부담을 강화하는 방향으로 노동정책이 추진됐다. 이번 윤석열 정부의 노동시장 개선 정책에 거는 국민의 기대가 큰 이유가 여기에 있다. 윤석열 정부는 5년 임기 동안 추진할 핵심정책을 모은 ‘윤석열 정부 120대 국정과제’를 지난 7월에 발표했다. 그 일환으로 근로시간 제도의 노사 선택권을 확대하고 직무‧성과 중심의 세대상생형 임금체계를 확산하겠다는 정책방향을 밝혔다. 구체적으로는 근로시간 제도와 관련해서는 선택적 근로시간제 정산기간 확대 등 활성화 방안, 근로시간 저축계좌제 등 연장근로시간 총량관리 방안, 스타트업 전문직의 근로시간 규제완화 등 지원방안을 마련하겠다고 밝혔다. 또한 임금체계와 관련해서는 임금직무정보시스템을 통해 직무z직업별 임금정보 제공을

강화하고, 기업 수요에 맞는 임금체계 개편에 대한 지원을 확대하겠다는 방침이다. 정부는 이러한 근로시간 제도 및 임금체계 개편 방안을 집중적으로 논의하기 위해 학계 등 전문가로 ‘미래노동시장 연구회’를 발족했다. 연구회는 우선 4개월간의 논의를 거쳐 정부에 관련 제도개선 방안을 권고한다는 계획이다.

Directions of a Wage System Improvement Compensation that corresponds to workload and performance constitutes most natural economic principle as well as the narrative of fairness and common sense. Unlike major developed countries, however, whose wage systems are operated on the basis of job value or performance, Korea is dominated by a seniority-based wage system built upon pay steps adopted by 54.9% of workplaces hiring 100 employees or more. A pay raise is mostly determined by continuous service years, giving much more weight to the seniority element within the Korean wage system compared to that of advanced countries. As of 2020, the wage gap between employees of 30 years of service continuation and those of less than 1 year is 2.95 times, exceeding that of Japan (x2.27) and 15 EU members average (x1.65). Admittedly, the seniority-based wage system established and deployed during the period of rapid economic development in the past did have a positive function in incentivizing workers for staying longer at the companies and promoting their workmanship. But it has been linked with more negative impacts in a modern society going through rapid changes in the industrial

environment due to low growth, aging population, and the 4th Industrial Revolution. The automatic pay raise dictated by the system regardless of job ability or performance could easily deprive high performers of significant share of compensation they deserve, compromising worker motivation and productivity. It deepens the awareness of younger generations on unfair compensation while heightening job insecurity and damaging the capacity for new employment of companies. Considering the reality of Korean labor market where globally unprecedented rate of population aging is being observed, shocks likely to be brought by such a rigid wage system on our labor market are worried to be more serious and critical.

임금체계 개편 방향

유례없이 빠른 속도로 고령화가 진행되고 있는 우리 노동시장의 현실을 감안할 때 경직된 임금체계가 우리 노동시장에 가져올 충격은 더욱 심각할 것으로 우려된다. 새로운 정부가 출범할 때마다 연공서열에 기초한 호봉제를 직무가치와 성과를 반영하는 임금체계로 바꾸려는 정책을 추진했으나 연공급 중심의 임금체계 개선은 더디기만 해 온 것이 사실이 다. 오히려 지난 정부에서는 공공기관 성과연봉제 추진에 제동이 걸리기도 했다. 게다가 최근 대법원의 임금피크제 무효 판결로 임금체계 합리화 필요성은 더욱 커졌다. 비록 특정 회사의 정년유지형 임금피크제에 한정된 판결이기는 하나 산업현장에서 연공급 임금체계의 폐해를 완화하기 위한 과도기적 조치로서 도입z운용돼 온 임금피크제가 노사 갈등과 혼란으로 제 기능을 다하지 못할 가능성이 높아졌기 때문이다. 변화하는 산업z노동시장의 구조를 따라가지 못하고 세계적으로 유례가 드문 연공급 임금체계를 그대로 유지해서는 경쟁력을 유지하기 어렵다. 과거에 머물러 있는 연공급 임금체계를 하루 빨리 직무가치와 성과를 반영한 임금체계로 개편해야 한다. 이와 같이 공정하고 유연한 임금체계로의 전환을 통해 청년 채용 여력을 확대하고 주된 일자리에서 보다 더 오래 일할 수 있는 노동시장

the system of a specific company, enough confusion and labor-management conflict has already been created to challenge the intended function of the peak wage system that had been introduced and operated as a transitional and provisional measure to alleviate the harmful effect of the existing seniority-based system. Holding onto the seniority-based wage system, which now can barely seen around the world, and failing to keep track of the rapidly evolving industrial and labor market structure would result in a significant loss in national competitiveness. The current outdated seniority-based wage system must be streamlined as soon as possible. It would generate more room for youth job creation and create labor market environment that allows workers to stay longer in their main jobs. To this end, the government must take the lead in restructuring the current system into a job- and performance-oriented wage system. Such a structural change requires a labor-management agreement, which would definitely complicate matters along the way. The initiative taken by the government in the public sector would help expand the trend into a private sector. On top of that, active policy support from the

side of the government including consulting service would be needed for an obligation to allow stronger impacts to a wage system improvement efforts under the Elderly Employment Promotion Act. Legal and institutional assistance should also be available for the business community to establish a fair and reasonable compensation scheme. Directions of a Working Hours System Improvement The grand transition towards a digital economy requires changes in the way people work with growing demands for autonomous selection of working hours and flextime. As a further complicating matter, the 52-hour workweek adopted from Jul 1, 2018 has been burdening many companies, with extended working being allowed only on a weekly basis and the adoption of flexible working not being wide enough due to its tight requirements of a need to obtain an agreement from the workers representative. An anachronistic, rigid working hours system and radical workweek reduction would have negative

환경을 만들어야 한다. 이를 위해서는 연공급제 임금체계를 직무z성과중심 임금체계로 개편해 나가는데 정부가 앞장서 주어야 한다. 임금체계 개편을 하려면 노사가 합의를 해야 하는 만큼 어려움이 많다. 정부가 공공부문을 먼저 선도해 주면 민간부문에 확산되는데 도움이 될 것이 다. 또한 현행 고령자고용촉진법상 임금체계 개편 의무가 실효성 있게 추진될 수 있도록 컨설팅 강화 등 정부의 적극적 정책지원이 필요하다. 그리고 기업이 공정하고 합리적인 보상체계를 마련하는데 어려움이 없도록 법제도적 지원 방안도 강구되어야 한다.

근로시간제도 개편 방향

impacts on corporate competitive edge and job creation. Labor productivity must be increased in proportion to the decreased working hours to prevent the weakening of corporate competitiveness, which is not happening anywhere. The hourly labor productivity of Korea stands at USD 41.8 as of 2020, far below an OECD average of USD 54.0. Additionally, working hours of Korea marked a decrease of 109 hours from 2014, five times more radical than an OECD average reduction of 20 hours. Employment rate in the same period, however, dropped from 60.5% to 60.1%.

ensured within a working hours system to promote competitiveness of both the management and the labor. The current 52 hour workweek should at least be streamlined to allow more efficient and flexible utilization of working hours. 2018 OECD Jobs Strategy also recommended that working hours be flexible to enable businesses to swiftly respond to demand changes while helping workers to pursue a work-life balance.

응한 노동생산성 향상이 뒷받침되어야 하나 그렇지 못한 실정이 다. 2020년 기준 우리나라 시간당 노동생산성은 41.8달러로, 3)'( 평균 54.0달러에 크게 못 미치고 있다. 또한 2019년 우리나라 근로시간은 2014년에 비해 109시간이 감소하여 3)'( 평균 20시간 감소보다 5배이상 가파르게 줄어들었으나 같은 기간 동안 고용율은 60.5%에서 60.1%로 오히려 하락했다. 지난 정부에서도 정부 인가를 받아 주52시간을 초과하여 연장근로를 추가로 할 수 있는 특별연장근로 인가대상이나 재량근로 대상 업무를 소폭 확대하고, 탄력적 근로시간제나 선택적 근로시간제의 단위기간을 확대하는 등 근로시간의 유연성을 일부 보완하려는 노력이 있었다. 그러나 일부 근로자를 대상으로 유연근무제를 도입하려 해도 사업장 전체 근로자대표의 동의를 받도록 하거나 11시간 연속휴식시간제를 새로이 도입하는 등 제약 요건이 많아 유연근무제 활용이 제약되고 있다.

할 수 있게 하고, 근로자가 일과 생활의 균형을 도모할 수 있게 하라고 권고한 바 있다.

Conclusion Yoon Administration seems quite poised to engage in a labor market reform starting from working hours and wage systems, an ambitious attempt much delayed so far by the previous governments. However, the responsibility to come up with detailed action plans has been shifted on future labor market research group sat by private specialists, failing to meet the actual expectation and practical needs of the management and the labor both in terms of the implementation and speed of the policy. Furthermore, with the opposition party being a majority at the National Assembly, it would be too a convenient and complacent approach to predict that the politicians would somehow reach an agreement. But one thing that is clear and absolute is that changes would never wait for us. In an age of cruel, cut-throat competition for survival across the globe, revamping the fundamental of our labor market to support economic recovery and resilience is one of the most urgent calls facing Korea in order to sharpen the competitive edge of its companies and help them add and maintain more jobs.

마무리

Assessment of and New Approach to the Wage System and Working Hours of Korea

Lee Sang-yoon Deputy Director, Policy Bureau 2, Federation of Korean Trade Unions 이상윤 한국노동조합총연맹 정책2본부 부장

Roundtable discussion on responding to flexible working hours policies of the Yoon Administration

from Federation of Korean Trade Unions 출처C한국노동조합총연맹

1. Introduction: Korea’s Long-standing Low Wages and Long Work Hours

１) Koreans worked 1,915 hours a year per employee in 2021, which is 200 hours more than the OECD average. It is the fourth-longest following Mexico, Costa Rica and Chile, among the OECD member countries. Judging by the current trends in work hours, Korea is not expected to achieve the OECD average until 2035.

1. 들어가며: 우리나라의 고질적 저임금-장시간 노동체제

아의 우크라이나 침공, 기후위기 등에 따른 전세계적인 경제성장 둔화, 물가폭등 현상으로 저임금 직종의 근무시간이 고임금 직종보다 2배 이상 증가하는 등 사회적z경제적 격차가 더욱 심화되고 있는 중이다.３) 부족한 소득을 보충하기 위해 야간, 휴일근무 등 비사회적 시간의 저임금 노동 역시 증가하는 추세에 있다. 현재 우리나라가 직면하고 있는 국내외적 위기상황을 타개하기 위해서 뚜렷한 정책목표 하에 관련 국가정책이 수립되고 흔들림없이 시행되어야 한다. 정부도 밝히고 있는 바와 같이, 노동시간과 임금이 노동자의 삶과 생명에 직결되는 문제로서 노동시장의 핵심요소이다. 그렇다면 정책내용에는 반드시 이 저임금-장시간노동을 유발하고 있는 수많은 법z제도상 구조적 요인들을 억제하는 내용이 담겨있어야 한다. 과연 정부가 발표한 임금체계 개

１) 2021년 기준 우리나라의 연간 노동시간은 1,915시간으로서, 3)'( 회원국 중 멕시코, 코스타리카, 칠레에 이어 네 번째로 긴 시간을 기록하고 있다. 이 수치는 3)'( 평균보다 약 200시간 이상 높은 것인데, 지금까지 노동시간 감소추세로 볼 때 2035년쯤이나 되어야 3)'( 평균 수준을 따라갈 것으로 예측된다.

The government should establish and fully implement related government policies while setting clear policy goals to tackle the global crisis Korea is faced with. As the government has already announced, work hours and wages are the essential elements of the labor market, which have a direct bearing on the life and livelihood of workers. Thus, such policies must state ways to curb legal and regulatory factors that lead to low wages and long hours. The government announcement raises some suspicion that the government policies on reforming the wage system and introducing flexible work hours accommodate the needs of our times and society. Contrary to our expectations, the policies are headed in the opposite direction. To make matters worse, the policies are believed to have been poorly drafted and have too many faults. We are going to look into them in detail as follows. 2. Analysis and Assessment of Yoon Sukyeol Administration’s Direction of Labor Market Reforms

Restructuring the Wage System

편, 노동시간 유연화 정책이 이와 같은 시대적z사회적 요구에 부합하는 내용인가# 오히려 정책방향이 정반대를 향하고 있고, 더 큰 문제는 정책내용 자체가 이처럼 중요한 사회구조적 문제를 해결하기에는 지나치게 부실하거나 많은 흠결을 지니고 있다고 판단된다. 이하에서 구체적으로 살펴보기로 한다. 2. 윤석열 정부 노동시장 개혁방향 분석 및 평가

임금체계 개편

problem-solving, the government should explore ways to fundamentally improve the enterprise-level bargaining structure, promote fair subcontracting practices between conglomerates and SMEs, eliminate discrimination against irregular workers and improve low-pay schemes.  It is safe to say that restructuring a wage system of individual businesses alone can never resolve the structural problem of polarized labor market resulting from pay gaps. The introduction of job and performance based wage system will end up widening pay gaps among workers in different enterprises in the same manner the wage peak system was abused as a means of cutting the wages of long-term employees. Moreover, most enterprises have already incorporated all or part of wages into the annual wage system. Therefore, it is questionable how much enforcing a performance-based pay scheme on enterprises can contribute to the creation of new jobs for the youth.

2) The limitation found in uniformly restructuring the wage system

 개별 사업장 단위의 문제라고 할 수 있는 임금체계 개편으로 임금격차에 따른 노동시장 양극화라는 구조적 문제를 해결한다는 것은 사실상 불가능에 가깝다고 할 수 있다. 직무성과 중심의 임금체계 도입 추진은 과거 임금피크제가 단순히 장기근속 노동자의 임금삭감 수단으로 악용되거나 기업에 따라 임금이 크게 벌어져 노동자간 임금격차가 더욱 심해지는 결과만 초래할 뿐이다. 나아가, 이미 대다수 대기업에서 임금의 전부 또는 일부를 연봉제로 전환한 상태에서 추가적인 직무성과급을 강제하는 것이 과연 얼마나 청년고용 창출에 기여할 것인지도 의문이다.

2) 임금체계 개편의 일률적 적용상 한계

structure that determines salaries; ② comprehensive labor market policy on employment, wage level, wage structure and wage system; ③ provision of a safety net including education, housing and healthcare coupled with government’s responsibilities. 3) A false argument: seniority-based pay widens pay gaps and lowers productivity  In Korea, accession and turnover rates are high, and the average job duration of Koreans is the shortest among the OECD member countries despite population aging. The idea of jobs for life has become outdated, and workers, once they enter the 40s, are subject to layoff. With little regard for these factors, the government points out that pays are highly seniority４) based as workers with 30 years or more of tenure with their current employer earn 2.87 times more than those with a year or less of tenure.

 In addition, the government and the association of employers blame low productivity on wage systems, claiming that a performance-based pay program should be introduced. However, in reality, a comparison between lifetime earnings and lifetime labor productivity shows that the program is a loss for workers. For instance, workers who are hired in their late 20s have high productivity in low-paying jobs until they turn 49. From then on, they are paid more than their productivity. From a lifetime perspective, the earnings are roughly equal to or less than the productivity.  Meanwhile, as a matter of fact, most workers, once they turn 49.3 years old, have to leave their long-time job in the face of layoffs such as early retirement, which is now part of everyday life. This suggests an approach to reforming the highly seniority-based pay scheme. In other words, starting salaries and job osef cwuorritkye rssh owuitldh jboeb htiegnhuerre i nosf t3e0a dy eoaf rcsu otrti nlogn tgheer. wages

４) The monthly employment accession and separation rates of wage workers in Korea are over 5% respectively. In addition, the rate of workers with an average of less than 1 service year in Korea is 30.4% compared to 10.6% in Japan, 13.4% in France, 14.2% in Germany, and 15.2% in the UK. The rate of workers with an average of 5 service years in Korea is 36.5% tchoem UpKar.ed to 64.3% in Japan, 65% in France, 59% in Germany, and 48.2% in

3) 연공급으로 인한 임금격차 심화 및 생산성 저하 주장의 허구

４) 임금노동자의 월간 입직률과 이직률은 각각 5%를 넘으며 평균 근속1년 미만 노동자 비중이 일본 10.6%, 프랑스, 독일, 영국이 각각 13.4%, 14.2%, 15.2%인데 비해 한국은 30.4%. 평균 근속 5년 이상 비중은 일본 64.3%, 프랑스, 독일, 영국이 각각 65%, 59%, 48.2%에 비해 한국은 36.5%에 달하고 있다.

Flexible Working Hours

 Moreover, if work hours are tracked on a monthly basis, the maximum allowable work week will be up to 92 hours as multiple media outlets have already reported. That is to say, it is not illegal to clock on at 7:00 a.m. and clock out at midnight６). That translates to a 15-hour workday for 6 days a week excluding a paid holiday. The new government’s labor policy ultimately aims to allow extremely compressed work schedules for workdays and workweeks and track them on a monthly basis. That has a direct bearing on the lives of workers. What we need now to shorten actual work hours and protect workers’ right to health is a cap on the maximum allowable work hours a day.  Meanwhile, some specially exempted lines of business are granted 11-straight hours of recess when they have flex hours for a period of 3-6 months. However, the 11-straight hours of recess do not mean a continuous recess within the same 24-hour day, but a continuous 11-hour recess from clock out to clock in the following

５) On May 1, 1886, American workers staged a full strike in Chicago calling for an 8-hour daily working hours (Haymarket affair). The International Workingmen's Association decided to celebrate this day in commemoration of the historic international workers' struggles and call it May Day or Labor Day. ６) One month can be divided into 4.345 weeks. And 4.345 weeks multiplied by 52 hours equal 92.12 hours (40 regular work hours + 52 hours of overtime worked in a week).

노동시간 유연화

 또한 월 단위로 노동시간을 관리하게 될 경우, 이미 많은 언론매체에서 보도한 바와 같이 1주에 최대 92시간까지 근무하는 것이 가능하게 된다. 즉, 일주일에 1일의 유급휴가를 제외한 6일 동안 매일 15시간, 쉽게 설명하면 월요일부터 토요일까지 오전 7시에 출근해서 저녁 12시에 퇴근해도 위법이 아니다.６) 새정부의 노동정책은 결국 1일z1주 단위 살인적 ‘압축노동’을 월 단위로 환산하여 가능하게 한다는 것으로서 이는 노동자 생명과 직결되는 문제이다. 실노동시간을 단축하고 노동자 건강권을 지키기 위해서 지금 필요한 것은 바로 ‘1일’ 최장 노동시간을 제한하는 것이다.

５) 1886년 5월 1일 미국 노동자들이 8시간 노동제 시행을 요구하며 시카고 전역에서 총파업을 벌였다(미국 시카고 헤이마켓 사건). 국제노동자협회는 이날을 기념해 메이데이를 국제노동자투쟁의 날로 지정하게 되었는데 이날이 바로‘노동절’이다. ６) 1달을 정확히‘4.345주’이므로 4.345주×52시간!52.12시간을 1주에 몰아서 사용할 수 있게 되므로, 법정노동시간인 40시간에서 52.12시간을 더하여 92.12시간이 나오게 된다.

day. That does not mean the maximum workday７) is limited to 13 hours. For instance, with six-month period flexible hours in place, there is high possibility that an 18-hour workday could be followed by an 11-hour recess, and then, the following day, 19 hours of work followed by 11 hours of recess. 2) Widespread adoption of customized working hours across the board

 This clearly shows that what President Yoon said was not empty talk. He said in his presidential campaign, “workers should be allowed to work 120 hours a week”. As such, unlike its primary purpose of respecting workers’ right to decide work hours, a strong possibility exists that the customized working hours will lead to unlimited work hours. It is feared that businesses with the blanket wage system in place may especially take advantage of the customized working hours to not pay for overtime work, holiday work and nighttime work. If businesses are allowed to extend the period of customized working hours up to one year from the current 1-3 month periods, we will inevitably be confronted with labor conflicts arising from the infringement on workers’ right to health and unpaid overtime work, holiday work and nighttime work.

７) It is evidenced by the MOEL’s administrative interpretation (when employees work through the end of their workday and into the next, the continuous overtime work counts as the extended hours of the same workday despite provisions on the start and end of the workday under the Rules of Employment.

상한이 생기는 것이 아니다.７) 예를 들어 6개월 단위 탄력적 근로시간제를 실시하면서 1일 18시간 근무후 11시간 휴식, 다음날 19시간 근무후 11시간 휴식을 부여하는 식으로 운용될 가능성이 높다.

 윤석열 대통령이 대선후보 시절 “주 120시간 노동이 가능해야 한다”는 발언이 단순한 허언(虛言)이 아님을 알 수 있는 대목이다. 이와 같이 선택적 근로시간제는 ‘노동시간에 대한 노동자의 자율적 선택 존중’이라는 본연의 의도와는 달리 이른바 ‘무제한 노동’을 초래할 개연성이 매우 높다. 특히, 포괄임금약정 도입 사업장의 경우, 선택적 근로시간제로 전환되어 연장z휴일z야간임금 미지급 수단으로 악용될 우려가 있다. 선택적 근로시간제 정산기간을 현행 1b3개월에서 ‘1년’으로 확대하여 자율적으로 설정하게 할 경우, 노동자 건강권 침해, 연장z휴일z야간노동에 대한 가산임금 미지급 등에 따른 노사분쟁은 피할 수 없을 것이다.

７) 이는 고용노동부 행정해석에서도(연장근로가 역일을 달리해 익일에 미치는 경우 취업규칙 등에 1일 근로시간에 대한 시업 및 종업시간 규정이 있더라도 계속되는 연장근로는 1근무로 취급해 시업시간이 속하는 날의 근로의 연속으로 봐야 한다) 확인할 수 있다.

3) Introduction of time-savings account system  To reduce long work hours, legal and institutional complementary measures need to be prepared, which are designed to reduce extended, night or holiday works themselves. The time-savings account system８) is far from solving an issue of long work hours through reduction in actual work hours since the system is designed to compensate for extended, night or holiday work by providing holidays or leave as a substitute for paying allowances. Given a situation where employees cannot fully use up paid annual leave in time and are even forced to take annual leave for mandatory self-quarantine due to COVID-19, saving the overtime work hours and using them up in forms of leave, when needed, seems to be practically impossible. The time-savings account system is highly likely to be misused as a tool to “force” employees to use “leave” at the request of employers for managerial reasons in ways that employees involuntarily use up the saved leave.  Furthermore, Article 57 of the Labor Standards Act already stipulates the compensatory leave system, similar to the time-savings account system. However, it needs to be kept in mind that the compensatory leave system creates a lot of confusion including, but not limited to, how to grant leave, criteria of granting leave, the right to claim wages and the deadline to use leave, and is even misused as a substitute for paying overtime allowances.

８) “Time-savings account system” or “vacation savings account system” is a system in which employees can save up their gap between the actual work hours and the contractual work hours or paid annual leave days in time-savings (vacation-savings) account or work hour account. Employees are exempted from work for the amount of time credited to the account and use the time saved as holidays or leave.

3) 근로시간저축계좌제 도입

８) ‘근로시간(저축)계좌제’또는‘근로시간저축휴가제’란 원칙적으로 노동자의 실노동시간과 소정노동시간의 차이 또는 연차휴가를 근로시간저축휴가계좌 또는 근로시간계좌에 적립하여, 계좌에 적립된 근로시간에 대해 노동자의 노동을 면제하고 이를 휴일 또는 휴가로 사용하도록 하는 제도를 의미한다.

4) Startups and professional employees exempt from statutory work hours

 The Labor Standards Act already stipulates “discretionary working hour system” which is similar to the “white collar exemption”. Similar to the discretionary working hour system, employees can manage their work hours but cannot decide and control their workload under the “white collar exemption”, which could lead to excessive work with employers assigning unlimited workloads to employees. Importantly, the white collar exemption apparently conflicts with the right to rest and health, part of the right to pursuit of happiness guaranteed by the Constitution of the Republic of Korea (likewise, exempting businesses with fewer than five employees from applicable targets of the “Act on Public Holidays” could be a case in point). Given that the two-tier system in the labor market is aggravated due to growing income disparity, it can cause social distrust ianm hoignhg- winocrokmeres .earners, causing divisions and conflicts

９) Unlike this move, the U.S., which introduced this exemption for the first time, is currently working to supplement the system by narrowing the targets subject to overtime pay exemption. Referring to the case of the U.S., Japan adopted this exemption in 2019 (“professional exemption for highly skilled workers”) but public attitude to this system is surveyed to be negative.

4) 스타트업z전문직 노동시간 예외적용

 ‘화이트칼라 이그젬션제도’과 유사한 제도로서 이미 근기법상 ‘재량근로제’가 규정되어 있다. 재량근로제와 마찬가지로 ‘화이트칼라 이그젬션제도’ 역시 노동자가 노동시간을 관리하게 되지만, 업무량을 자신이 결정할 권한이 없다는 면에서 사용자가 무제한의 업무할당량이 주어지는 식으로 과잉노동이 발생할 수 있다. 무엇보다 화이트칼라 이그젬션 제도는 헌법상 보장된 행복추구권의 하나인 국민의 휴식권z건강권 보장과 명백히 상반되는 제도이며(마찬가지로 ‘공휴일에 관한 법률’ 적용대상에서 5인 미만 사업장이 제외된 점을 생각해 볼 수 있다), 임금양극화에 따른 노동시장 이중구조가 심각해지는 상황에서 고소득 노동자에 대한 사회적 불신을 야기하여 노동자간 분열과 갈등을 조장할 수 있다.

９) 정작 이 제도를 최초로 도입한 미국은 현재 초과근무수당 지급제외 대상의 축소 등 제도보완에 나서고 있는 중이다. 미국의 제도를 참고하여 2019년 제도를 도입(고도 프로페셔널(高度プロフェッショナル)제도)한 일본에서 역시 현재 제도에 대한 국민의 인식은 부정적 측면이 강한 것으로 조사되고 있다. １０) ‘크런치 모드’란 -8업계에서 신작 출시나 업데이트 시즌을 앞두고 야근과 연장근무가 포함된 집중 업무 기간이 늘어나는 것을 의미함. 대부분의 근무 외 시간을 희생하며 수면과 위생, 기타 사회활동까지 포기하고 회사에서 숙식하며 연장 근무를 하는 식을 표현한 말이다.

3. Proposals for Policies on Restructuring Wage System and Flex Hours

- Stipulate the principle of equal pay for equal work in compliance with the Labor Standards Act

3. 임금체계 개편과 노동시간 유연화 정책에 대한 제언

- 사회임금과 시장임금간 조화를 위한 사회안전망의 획기적 강화

For example, it extended the period of flexible work hours to six months, settlement period of customized working hours system to three months and the scope of jobs under the discretionary work system.  Importantly, the government recently included labor shortages caused by confirmed COVID-19 cases in the “reasons for approving special overtime work”, posing itself as a “preacher of special overtime work”. As a result, the approval cases surged in just four years by more than 400 times.１１) For companies, special overtime work scheme is an easy and convenient choice to approve extra extended work, in most cases, for managerial reasons. Meanwhile, it is harder to opt for flexible and customized working hours due to complicated introduction procedures or a cap on extended work hours.

- Provide all possible support so that the “52-hour workweek” is fully established faster in businesses

１１) Number of cases approved as special overtime work increased to 15 in 2017, 204 in 2018, 908 in 2019, 4204 in 2020 and even 6477 in 2021, recording new high each year.

사실상 근기법상 모든 유형의 유연근무제를 확대하였다.

- ‘1주 52시간 상한제’의 현장 조기적응을 위한 적극 지원

１１) 특별연장근로 인가 건수는 2017년 15건, 2018년 204건에서 2019년 908건, 2020년 4204건, 2021년 6477건으로 늘어나며, 매년 최대치를 갱신하고 있는 중이다.

Korea Labor Review

Current Status and Characteristics of Recent Employment Trends

Lee Si-kyon Head of Center for Employment Information and Analysis, Korea Employment Information Service 이시균 한국고용정보원 고용정보분석센터장

Post-COVID Employment Trends The employment trend of South Korea in the first half of 2022 could be characterized by unprecedentedly unique phenomena. The number of added jobs far exceeding an increase in population had continued for over a year. As of July 2022, the population group aged 15 and more saw a rise of 168,000 while the number of those economically active and newly employed increased by 743,000 and 827,000 respectively. Such a reverse has continued for a year and 4 months since March 2021 with its gap becoming greater. The past job trend shows that such a phenomenon coincided with a radical increase in labor demands. And the recent changes in employment trend are also understood to be the result of an exponential increase in labor demands, too. Structural changes in demography and accelerating digitization have also been contributing to the current situation, along with the type of a“rollover” demand increase realized in the post-COVID period. The latter is expected to stabilize over time while the former, rather a structural cause is likely to continue for some time.

코로나19 이후 고용동향 2022년 상반기의 우리나라 고용동향은 이전까지 한번도 경험하지 못한 특이한 현상이 관찰되고 있다. 취업자 수의 증가가 인구 증가를 훨씬 초월하는 현상이 1년 이상 지속적으로 발생하고 있다. 22년 7월 현재 15세 이상 인구는 16만 8천 명이 증가한 반면 경제활동인구는 74만 3천 명, 취업자 수는 82만 7천 명이나 증가하였다. 21년 3월 이후 1년 4개월 기간 동안 이러한 역전 현상이 지속되고 있으며, 그 격차도 더욱 커지고 있다. 과거의 고용동향 추이를 살펴보면 이러한 현상은 노동수요가 급증하는 경우에 발생하였다. 최근의 고용동향의 변화도 동일하게 노동수요 급증 현상으로 이해된다. 코로나 위기 이후 이연된 노동수요의 증가 와 더불어 인구구조변화와 디지털 전환 가속화라는 구조적 요인에 의해서도 설명될 수 있다. 이연된 노동수요 증가에 따른 영향은 일정 기간이 경과하면서 안정화될 것으로 보이나 인구구조변화와 디지털 전환 가속화에 따른 구조적 요인의 영향은 앞으로도 지속될 가능성이 있다.

Source: Economically Active Population Survey

[Figure 1] Changes in the number of jobs added?그림 1A 취업자 수 증감 변동 추이

A Big Decline in an Unemployment Rate The current unemployment rate as of July 2022 stands at 2.85%, a figure bordering upon a level of complete employment. A radical increase of added jobs as compared to the economically active population has brought down the unemployment rate: YOY 0.7%p down to 3.2% in the first half of 2022, having marked 2.9% in the second half of 2021. Assuming the trend remains on the similar trajectory, 2H 2022 is also forecast to likely show an unemployment rate staying slightly under 3%. Sector-specific rates also reveal the same downward trend in all age groups and all levels of education. Such a phenomenon would normally accompany an increase in shares of economically active population, and thus can reasonably be explained by a rise of workforce demand.

A Radical Gain in Workforce Demand and a Rise of Employment of Baby-boomers Following the trend in the increase in the added jobs, the number of employers has also greatly increased since the second quarter of 2021. Those who landed on new jobs shows a YOY rise of 924,000 on average as of July 2022. Employers also have been on the rise in number since the early 2021, marking an average of 918,000 in the first half of 2022. In addition, the number of job vacancies has also been going up since 2021 along with the increase of employers. Such a result is unprecedented, and even unimaginably unique considering the current economic situation. One of the reasons behind this would be a radical hike in workforce demand. Contrary to cutbacks in the number of jobseekers during the COVID age, corporate investment increased rather dramatically. Production grew starting from the second half of 2021, driving with it workforce demand. However, a need to respond to the COVID crisis has caused such a demand increase to be rolled over on an indefinite basis. As a result, it is understood that this post-COVID demand rollover added to the base effect has led to the explosive hike in employment. The result of factor analysis of the fluctuations in recently added jobs shows that the huge increase in the number of the newly employed can be almost wholly explained by employment effect. The employment effect that overrides the population effect after the

큰 폭의 실업률 하락

구인 노동수요의 급증과 베이비 붐 세대의 고용 증가

Source: Economically Active Population Survey

[Figure 2] Analysis of factors of changes in the number of the newly employed ?그림 2A 취업자 수 변동요인 분해 추이

second quarter of 2021 would be the result of base effect, where the reduced employment effect during the pandemic recovers, and the effect of workforce demand growth. Particularly, even though major working population groups (workers in their 20s through 40s) went through a decrease in numbers, a bigger employment effect stemming from workforce growth has either boosted or maintained the number of the newly employed and employment rate. In other words, the effect of inflow of non-working population as a result of such a rise in workforce demand has offset reduction in the number of economically active groups. If such a structural factor continues, jobseekers in the main working population age groups are likely to have mid- to long-term difficulties landing jobs.

최근의 취업자 수 변동을 요인분해한 결과를 보면 취업자 수의 급격한 증가는 고용률 효과에 의해서 대부분 설명된다. 2021 년 2분기 이후 인구효과를 압도하는 고용률 효과는 코로나 위기 시기의 고용률 효과의 감소분이 회복되는 기저효과와 노동수요 증가에 따른 효과로 설명된다. 특히 주근로연령대(20b40대) 의 경우 인구가 감소함에도 불구하고 노동수요 증대에 따른 고용률 효과가 커지면서 취업자 수와 고용률을 높이거나 유지시키고 있다. 노동수요 증대에 따른 비경제활동인구의 유입효과가 인구감소에 따른 경제활동참가인구의 감소효과를 상쇄하고 있는 것이 다. 이러한 구조적 요인이 지속되면 주근로연령대에서 구인난 현상이 중장기적으로 계속될 가능성이 있다.

Worsened Labor Shortage

employed used to be in a trade-off relationship before the COVID, the numbers of both added jobs and vacancies are increasing simultaneously, an unprecedented coupling movement never to be seen before the pandemic. One such industry displaying such a coupling phenomenon is manufacturing, particularly electric equipment and other machinery / equipment. Sectors directly related to digital transition, such as electronic parts, and computer, imaging, sound, and communication devices manufacturing industries, also show the same trend. And an extended list goes on to include ICT and specialized science and technology service industries. ICT industry added 52,500 jobs and 2,200 vacancies in the first six months of 2022. Specialized science and technology service industry added 66,300 and 2,600 vacancies in the same period. This coupling trend is observed mainly in ICT-related industries, which could possibly be interpreted to be the result of digitization on an accelerating path. Labor shortage as a result of digitization that has been speeding up is likely to be stay on a more persistent basis. Normally, the fluctuation in vacancies and nominal wages is said to be on a trade-off dynamic, but the two have been observed to be on the same line. Wage

구인난 현상 심화

기타 기계 및 장비 제조업에서 취업자 수와 빈일자리 동반 증가 가 확인된다. 디지털 전환에 직접적 관련성이 높은 전자부품, 컴퓨터, 영상, 음향 및 통신장비 제조업도 취업자 수와 빈일자리 수가 증가하는 양상을 확인할 수 있다. 정보통신업과 전문,과학 및 기술서비스업에서도 종사자 수가 크게 증가하면서도 빈일자리도 증가세를 유지한다. 정보통신업은 2022년 상반기에 종사자 수가 52.5천 명 증가하고 빈일자리도 2.2천 명 증가하였다. 또한 전문,과학 및 기술서비스업은 2022년 상반기 종사자 수가 66.3천 명이 증가하였고 빈일자리도 2.6천 명 증가한 것으로 확인된다. 종사자 수가 증가함에도 빈일자리 수도 동시에 증가하는 양태를 보인 업종은 주로 -'8 관련 업종에서 주로 나타나고 있어 디지털 전환의 가속화에 따른 현상으로 이해된다. 디지털 전환 가속화에 따른 구인난의 경우는 지속적으로 나타날 가능성이 높을 것이다. 일반적으로 빈일자리는 명목임금변동과 상충관계를 갖지만 코로나 시기 이후 빈일자리와 임금변동은 동일한 변동 추이를 보이는 것으로 나타났다. 21년 12월과 22년 1월에 7.2%, 19.7% 의 높은 임금상승률을 기록하였고 3월 이후 5% 전후의 임금상승률을 보였으나 19년과 20년의 동기간에 비해 임금상승률이 크게 높아졌다. 임금상승률이 높아지면 빈일자리가 채워지면서 감소세를 보여야 하지만 코로나 이후 임금상승률이 높아지면서도 빈일

increases were unusually high at 7.2% and 19.7% in December 2021 and January 2022 respectively, and later marked around 5% in March 2022. A higher wage growth rate would generally mean a downward trend of vacancies that are to be filled, but this has not been the case in the post-COVID period: bigger wage increase rates translated into a rising number of vacancies. That said, however, on the basis of real wages, the number of job postings rather decreased starting from 2022. The growth in job vacancies despite a rise in nominal wages is also understood to be attributable to labor shortage. Diagnosis of Labor Market 2022

has to increase amid heightening economic uncertainty is never easy to be understood. An increasing number of businesses struggling with labor shortage, the level of which is unheard of, is also a mystery. One important logic that can justify a rapid surge in the number of the newly employed is the “rollover” workforce demand being realized. Even amid the situation in which the number of those who landed on jobs was on a decline during the COVID period, investment was gradually transitioning to a trend of increase. Industrial production also flipped to the positive in the second half of 2021, turning the number of jobs added also to a growing trend. And with the start of 2022, the base effect added by the workforce demand rolled over from the pandemic months greatly lifted the number of the newly employed.

자리는 증가하는 양상을 보인다. 다만 실질임금 기준으로 2022 년에 들어서 오히려 낮아지는 추이를 보인다. 명목임금 상승에도 빈일자리가 증가하는 현상도 구인난에 따른 현상으로 이해된다. 2022년 노동시장 진단

소하는 사업체가 늘어나는 것도 마찬가지로 설명하기 쉽지 않다. 급격한 취업자 수의 증가를 설명하는 중요한 논리 중 하나는 이연된 노동수요의 실현이다. 코로나 시기에 취업자 수가 감소하는 상황속에서도 투자는 증가세로 전환하고 있었다. 생산은 2021년 하반기부터 증가세로 반전되면서 취업자수도 증가세로 전환되었다. 2022년 들어서면서 기저효과와 더불어 이연된 노동수요가 더해지면서 취업자 수가 더 크게 증가하는 양상을 보인 것이다. 취업자 수의 급격한 증가를 설명하는 중요한 요인 중 하나는 디지털 전환의 가속화 영향이다. 코로나 위기는 역설적으로 디지털 전환을 가속화시키는 동력으로 작용하였고, 디지털 전환 관련 부문의 투자가 크게 증가하였다. 그 결과, -'8 제조업과 -'8 서비스업에서 노동수요가 크게 증가하였고, 취업자 수도 증가세가 유지되고 있다.

first half of 2022 could be justified by a base effect, workforce demand rollover, and accelerating digital transition. The first two elements are rather temporary in nature and not likely to last for a long time. On the contrary, the last one is likely to persist in a mid- to longer term, forecast to serve as a factor that brings the number of jobs added to one step further. Admittedly, it would depend on how much longer the investment in digital transition could be sustained going forward. As of July 2022, the number of jobs added to our economy already stands at 900,000, an unprecedented situation in the history of South Korea’s labor market. Trends in the number of job postings that serve as a leading indicator of employment changes show that the explosive hike in the number of the newly employed is likely to continue in a foreseeable future. Of course, an increase in the number of those landing jobs in the second half of 2022 would be much smaller due to economic uncertainty expected to be intensified going forward. Nevertheless, a likely growth in the number of new jobs added to the economy is expected to reach 7h0ea0r,0d 0o0f bteof o8r0e0. ,000, once again a level never seen or

South Korea has fared relatively well in overcoming the global pandemic of COVID crisis while succeeding to keep the growth potential of its economy almost intact. Amid the threat of the corona virus, investment grew and production switched to the positive. These are the two most important factors supporting the recent employment expansion. However, a possibility of bigger global economic uncertainty and a following slowdown still lingers with disruption of global supply chains and high interest rates due to inflation. Once a drop in workforce demand is brought by a sluggish economy, a downward trend likely to be caused could be as immense and impactful as the recent upward one in the employment. Labor shortage regarding digital transition is likely to continue but more active job policies are still needed as a way of bracing for employment shocks in dseecmtoarnsd ws.i t h forecasts of potential decrease in workforce

마나 디지털 전환에 대한 투자가 지속될 수 있는가에 따라 영향을 받을 것이다. 최근의 취업자 수 증가는 이미 7월까지 90만명이 추가로 증가 하는 초유의 상황이다. 고용변동의 선행지표 기능을 하는 구인자 수 추이를 보면 이러한 폭발적인 취업자 수 증가는 당분간 유지될 가능성이 높다. 물론 하반기 취업자 수는 경제불확실성의 심화의 영향으로 상반기보다 덜 증가할 것이다. 그럼에도 불구하고 이전에 관찰하기 어려운 70만명b80만명 수준까지 증가할 것으로 예상된다.

Korea Labor Review

Understanding and Ealuation of a Peak-wage System

Kwon Hyuk Professor, Busan National University Law School 권 혁 부산대학교 법학전문대학원 교수

Ⅰ Introduction

Ⅱ Definition of a Peak-wage System and Its Types Depending on an Intended Objective

Ⅰ 문제의 소재

Ⅱ 임금피크제의 개념과 목적별 유형

The second type is where no changes are made to an original retirement age, which could be broken down into different categories depending on intended objectives.

of the prohibition of discrimination in accordance with Article 4-5 Subparagraph 4 of Elderly Employment Promotion Act, as it guarantees/extends the retirement age of elderly employees while aiming to create jobs for the youth.１)

１) Incheon District Court, Decided Jan 13, 2022, 2019 Gahap 61600 Decision

두 번째는 정년유지형 임금피크제이다. 이러한 정년유지형 임

고령자고용법 제4조의5 제4호에 따라 차별금지의 예외사유에 해당한다고 판시한 바가 있다.１) 같은 맥락에서 정년 이후 고령자에 대한 고용촉진 목적 하에서 적용되는 ‘고령자재고용형’ 임금피크제도 있다. 이러한 임금피크제는 정년퇴직 후에 재고용을 하는 방식으로 고용을 연장하는 경우에 임금을 삭감하는 것을 내용으로 하는데 임금삭감에 대응하여 주당 소정근로시간을 단축하는 보상조치를 전제로 하고 있다.

１) 인천지법 2022. 1. 13. 선고 2019가합61600 판결

Ⅲ Legal Issues Involved 1. Introduction of a Wage Peak System and Its Relevance to the Disadvantageous Alteration of the Rules of Employment

(2) Judgment of disadvantageous alteration

２) See Supreme Court, Decided Sept 24, 1991, 91Da17542 Decision and many others

III 임금피크제 도입을 둘러싼 법적 쟁점

(2) 불이익 여부에 대한 판단

２) 대법원 1991. 9. 24. 선고 91다17542 판결 등 참조

to be suffered by employees, the lack of consent of employees subject to the existing working conditions or rules of employment needed to be obtained through a process of collective decision-making cannot serve as a ground for denying the validity or effectiveness of the newly established or amended rules or conditions. To recognize the above-mentioned socially acceptable reasonableness, the established or amended rules must not violate the legislative rationale of Labor Standards Act, which is to protect employees, by proving to be not disadvantageous in substance. In addition, socially accepted reasonableness must be judged in consideration of various factors in a comprehensive manner, such as the level of direct disadvantage likely to be suffered by employees, the specifics and scope of a need for alteration from the perspective of an employer, reasonability of the altered rules of employment, an overall status of improvement of working conditions including the rules at hand, the corporate practice of a defendant company regarding whether its employees are also entitled to share likely benefit increases (e.g. better corporate competitiveness) or loss reduction in the future, particulars of negotiation with a trade union and responses of a trade union and other workers, and general situations in which similar cases have been debated.

(3) Summary

이때 취업규칙의 작성 또는 변경에 사회통념상 합리성이 있다 고 인정되려면 실질적으로는 근로자에게 불리하지 아니하는 등 근로자를 보호하려는 근로기준법의 입법 취지에 어긋나지 않아야 하므로, 여기에서 말하는 사회통념상 합리성의 유무는 취업규칙의 변경 전후를 비교하여 취업규칙의 변경 내용 자체로 인하여 근로자가 입게 되는 불이익의 정도, 사용자 측의 변경 필요성의 내용과 정도, 변경 후의 취업규칙 내용의 상당성, 대상조치 등을 포함한 다른 근로조건의 개선상황, 취업규칙 변경에 따라 발생할 경쟁력 강화 등 사용자 측의 이익 증대 또는 손실 감소를 장기적으로 근로자들도 함께 향유할 수 있는지에 관한 해당 기업의 경영행태, 노동조합 등과의 교섭 경위 및 노동조합이나 다른 근로자의 대응, 동종 사항에 관한 국내의 일반적인 상황 등을 종합적으로 고려하여 판단하여야 한다.

(3) 평가

2. Whether a Peak-wage System Violates the Prohibition of Age Discrimination (1) Legal principles of a ban on age discrimination Article 4-4 of Elderly Employment Promotion Act provides that no discrimination is allowed by an employer against employees (or aspired employees) in areas of 1. recruit and employment, 2. salaries, money and valuables other than salaries, and compensation and welfare, 3. education and training, 4. deployment, transference, and promotion, and 5. retirement and dismissal. Discriminatory treatment is treating the essentially same things differently, and the essentially different things identically. Treating different things differently would not constitute discrimination.３) Furthermore, not only direct discrimination based on an age or sex but also indirect one should be prohibited. The latter is where a system itself provides no source of discrimination but gaps occur and the determining criteria are related to a gender difference.４)

Discrimination based on reasonable grounds is not prohibited by law. Article 4-5 of Elderly Employment Promotion Act provide exceptions to the ban on age discrimination. They are (i) cases where a certain age limit is inevitably required in view of the nature of the relevant duties; (ii) cases where wages or money and valuables other than wages, and welfare benefits are offered commensurate with length of service; (iii) cases where retirement age is set under labor contracts, rules of employment, collective agreements, etc. pursuant to this Act or other Acts; and (iv) cases where supportive measures are taken for maintaining and promoting the employment of a certain age group pursuant to this Act or other Acts.

３) Supreme Court, Decided Oct 29, 2015, 2013 Da 1051 Decision

2. 임금피크제의 연령차별 금지 원칙 위배 여부

차별은 합리적 이유가 존재하는 경우에는 법상 금지되지 아니한다. 고령자고용법 제4조의 5에서는 연령차별 금지의 예외에 대해 규정해 두고 있다. 이에 따르면, (M) 직무의 성격에 비추어 특정 연령 기준이 불가피하게 요구되는 경우 (MM) 근속기간의 차이를 고려하여 임금이나 임금 외의 금품과 복리후생에서 합리적인 차등을 두는 경우 (MMM) 이 법이나 다른 법률에 따라 근로계약, 취업규칙, 단체협약 등에서 정년을 설정하는 경우 (MZ) 이 법이나 다른 법률에 따라 특정 연령집단의 고용유지z촉진을 위한 지원조치를 하는 경우를 명시적으로 열거해 두고 있다.

３) 대법원 2015. 10. 29., 선고, 2013다1051 판결

(2) Relationship between a peak-wage system and age discrimination A peak-wage system that reduces wages based on an age is highly likely to be in violation of ban on age discrimination as it is. However, reasonable circumstances are required not to constitute such violation. (3) Evaluation criteria for reasonableness of grounds for age discrimination under a peak-wage system

① The legitimacy of an intended objective of introducing a system

(2) 임금피크제와 연령차별과의 관계

① 도입 목적의 타당성

③ Whether complementary measures were also introduced for wage reduction and their appropriateness

As important as the initial objective of introducing a peak-wage system is whether the implementation of such a purpose has been on the right track. For instance, if reduced labor cost as a result of the system introduction was not invested in the expansion of youth employment in line with the initial objective, it would only prove that the announced purpose of extending a retirement age or hiring more youths was just a nominal and empty slogan while what really happened was that elderly employees had to go through wages reduction in the name of a peak-wage system, which is discrimination based on an age. In sum, whether financial resources saved from the system were rightfully used for its intended purpose must be judged in a comprehensive manner with various circumstances taken into consideration. Ⅳ Conclusion A peak-wage system could be utilized as a strategy for extending a retirement age in an aged society with low birth rates or as a tool for expanding youth employment. As a wage system applying to every

③ 임금피크제에 따른 임금삭감 대상 조치의 도입 여부 및 그 적정성 비록 임금피크제가 – 정년연장이나 보장 등을 목적으로 - 일정한 연령에 달한 근로자의 임금삭감을 내용으로 하는 것이지만, 단순히 삭감하는 데 그치지 않고 그 삭감에 따른 부담을 최소화하기 위한 대상적 조치가 수반되어야 한다. 또한 임금삭감에 따른 불이익을 감수해야 하는 근로자에게 이에 상응하는 다른 선택의 여지가 부여될 수 있어야 한다는 것이 대법원의 입장이다. 예컨대 임금피크제 적용대상이 된 근로자에 대해, 임금삭감에 상응하는 직무, 직급, 근로시간 등의 조정을 취하는 것이 필요하다. 그러한 대상 조치가 형식적으로만 존재할 뿐이고 그 실질에 있어서는 사실상 대상 조치가 형식에 그칠 경우에는 임금피크제가 연령에 따른 차별에 해당할 수 있다. ④ 임금피크제 도입 목적의 충실한 이행 여부

크제를 도입하는 과정에서 단지 명목만 정년연장이나 청년고용의 확대로 제시하였을 뿐이고, 실제로는 임금피크제 시행으로 절감된 인건비 등을 청년고용확대 등 당초 도입 목적에 부합하도록 지출하지 아니하였다면, 이는 사용자가 임금피크제의 형식과 명목으로 연령에 따른 임금삭감조치를 취함으로써, 인건비만 절감한 꼴이 되고 만다. 이러한 경우 임금피크제는 단지 연령에 따른 임금삭감 등 차별에 해당한다고 볼 수밖에 없다. 요컨대 임금피크제로 감액된 재원이 임금피크제 도입의 본래 목적을 위해 사용되었는지 등 여러 사정을 종합적으로 고려하여 판단하여야 한다.

employee within a business or workplace, its ex post facto changes would inevitably accompany the revision of rules of employment. And when such a change constitutes alteration to the disadvantage of employees, consent of the majority of employees must be obtained in principle through a procedure of collective decision-making. In the meantime, a peak-wage system causes the reduction of wages for some workers based on their ages, which is why it could be contradictory to the principle of prohibition of age discrimination. In case reasonable circumstances exist, however, it would not be in violation of the principle. Therefore, the introduction of a wage peak system for the purpose of extending a retirement age, ensuring elderly employment with a fixed retirement age, or promoting youth employment should be valid as long as it was within a reasonable scope.

에게 적용되는 임금체계로서 그 사후적 변경은 취업규칙 변경을 수반한다. 이때 취업규칙의 불이익 변경에 해당한다면 근로기준법에 따라 근로자과반수 이상의 집단적 동의 절차를 거쳐야 함이 원칙이다. 다른 한편 임금피크제는 그 내용상 일정연령을 기준으로 하여 임금삭감을 초래한다. 임금피크제가 연령차별 금지 원칙과 상충될 수 있는 이유가 바로 여기에 있다. 다만 연령차별에 합리적 사유가 있는 경우에는 그러하지 아니한데, 임금피크제가 정년을 연장하기 위한 것이거나, 또는 정년을 유지하더라도 고용보장이나 청년고용 확대를 위해 합리적 범위 내에서 도입된 경우에 는 유효하다고 보아야 한다.

Changes in Awareness of the Youth and Youth Employment

Kim Se-um Research Fellow, Korea Labor Institute 김세움 한국노동연구원 연구위원

Young Farmers Talk Show 청년 농업인 토크쇼

from Rural Development Administration 출처C농촌진흥청

1. Introduction

recent phenomenon is a testament to the avid aspiration of the youth for fair opportunities and recognition of performance. In order to establish strategies for youth jobs in response to the current situation, a strict scrutiny would be required regarding how changes of Korea’s economic and social structures would impact corporate practice of managing human resources, set of values held by the youth, and factors related to a trade union while potential shifts that would occur in the youth labor market within years being closely tracked. In other words, elements including technological advancement, changes in industrial structure, demographic shifts, and communicable diseases pandemic would affect the way businesses hire, people work, workers are paid, and ultimately, directly impact the way youth jobs are structured and operated.