Research on Developing a Model of Self-supporting Vocational Education and Training for North Korean Defectors

남한으로 입국하는 북한이탈주민의 수는 2000년을 기점으로 급상승하기 시작하여 2010년에 북한이탈주민 2만 명 시대가 도래하였고, 이제는 3만 명 시대가 눈앞에 와 있다. 국내에 입국한 북한이탈주민은 일정 기간 신원 조사와 함께 소정의 사회 교육을 이수하고, 이후 임대 주택을 비롯한 주거 시설 제공과 정착 지원금을 받고 사회에 정착하고 있다. 북한이탈주민에 대한 초기의 은혜적이고 온정적인 정착 제도는 2005년부터 자활 자립 정착 제도로 변경하고자 정부와 민간 차원의 인적· 물적 지원이 제공되고 있지만, 상당수 북한이탈주민들은 여전히 사회 적응에 어려움을 겪고 있으며, 특히 정착 기간이 일정 기간이 지났음에도 불구하고 남한 사회에서 자기 자리를 찾아가지 못하는 것이 현실이다. 현재 약 50% 이상의 북한이탈주민이 4대 보험에 등록된 직장에서 일하는 것으로 나타나고 있어 그나마 다행이나 상당수의 북한이탈주민들은 4대 보험의 사각 지대에서 아르바이트로 전전하고 있거나 실업 상태에 놓여 있다. 4대 보험이 적용되는 직장에서 일하고 있는 사람들도 북한의 작업 방식과 전혀 다른 생산 공정에서 일하고 있기 때문에 이들이 남한 직장에서 적응할 수 있도록 기초직업능력의 개발과 더불어 맞춤식 직업교육훈련 프로그램이 매우 필요하다. 정부는 북한이탈주민 보호 및 정착지원에 관한 법률로 정착 제도 개선을 위한 연구와 다양한 지원을 모색하고 있으나 북한이탈주민들이 사회에 적응하고 자립할 수 있는 초기 직업 상담, 직업교육훈련, 취업 등 실제 정착 지원은 체계적이지 못하다는 평가가 있다. 따라서 이 연구의 착안점은 현행 북한이탈주민을 대상으로 한 정착 지원 및 직업교육훈련제도 등을 파악하고, 자립형 직업교육훈련에 도움이 되거나 저해되는 요인을 분석하여 자립형 직업교육훈련 모형을 정착시켜 나가는 데 요구되는 정책 개발과 제도 개선 방안을 마련하는 데 있다.1. Research Background and Objectives The number of North Koreans defecting to South Korea began to increase sharply from the year 2000, and it reached the age of 20,000 in 2010 with 30,000 not very far away. They are supposed to complete some courses in social education along with their background checks for a certain period of time, and settle down in South Korean society after being provided with housing, including a rental house, and a resettlement stipend. The government proclaimed ‘The Laws on Protection of, and Resettlement Support for, North Korean Defectors’ in 1997, and has been doing research to improve their resettlement system and seeking various ways to support them. However, it is evaluated that the government’s practical resettlement support, such as a job connection and employment by which they can adapt themselves to South Korean society and be financially independent, has not been systematic. Accordingly, this report attempts to look into the resettlement support and vocational education and training system for current North Korean defectors, analyze the factors that help or hinder self-supporting vocational education and training, and develop the policies needed for establishing a self-supporting vocational education and training model and draw up measures to improve its system. In order to accomplish the goals of this research, it is crucial that the following five tasks be examined intensively, and in-depth research for the tasks will proceed through qualitative research with North Korean defectors. First, it is necessary to understand and evaluate their vocational education realities North Korean defectors received after entering South Korea. Second, we need to understand how much this kind of vocational education and training has an effect on the process of North Korean defectors’ employment. Third, the ultimate goal of vocational education and training provided for North Korean defectors is to make it stand on its own feet. Our research will analyze the effects of vocational education and training in the meantime as well as the exact meaning of self-supporting. Lastly, we would like to improve the system to establish a self-supporting vocational education and training model and seek the polices for it. The vocational education and training for North Korean defectors should be demand-oriented. Accordingly, the purpose of this research is to improve the system and propose the policies appropriate for them so that they can enhance their degree of self-supporting and adaptability to South Korean communities. 2. Research Contents and Methods North Korean defectors’ being financially independent can be operationally defined as the state where they are employed with four kinds of major insurance, or establish a business and are self-employed, without getting living expenses from the government. Thus, in the sphere of this research are included vocational education and training that can help North Korean defectors be financially independent and all its related resettlement system. The research methods included a review of literature, in-depth case studies of North Korean defectors, a conference with specialists, and an interview or forum with the focus group. We analyze the actual and current conditions of vocational education and training for the North Korean defectors through a review of the literature, the concept and contents of a self-supporting vocational education and training model, the present vocational education and training environment for the North Korean defectors, and today’s vocational education and training system for them. We conducted case studies of the self-supporting vocational education and training through an in-depth interview, one of the qualitative methods, analyzed the North Korean defectors who succeeded or try to stand on their own feet, and try to propose the vocational education and training strategies and self-supporting measures for them. The subjects for this research are 16 North Korean defectors who, as of February 2012, were successful in a self-supporting type of employment or in establishing a business, or are still trying to settle down. Only those people who had been staying in South Korea for three to five years, were chosen, if possible. We moved from open questions to specific ones for the in-depth interview. The questions were designed to figure out why it was hard to adapt themselves to South Korean society, what their previous occupations were, whether the vocational education and training was difficult or helpful, and whether the job training system has any problems or needs to be improved. The conferences and forums with the specialists we held to examine North Korean defectors’ resettlement and employment, and the measures related to their basic job skills and development of a self-supporting vocational education and training model were discussed. Especially, we tried to find out their realities and sought the measures to support them through brain-storming in the specialists’ conferences and focus group interviews. Finally, the examples of North Korean defectors’ successful resettlement and vocational education and training, who were successful in being financially independent or who still can’t stand on their own feet at present were analyzed, and their implications were presented. 3. Case studies Those who are financially independent are positive, willing, and highly motivated for learning. Their network, including their family, shows that, in case they had their family support or were admitted alone, they tend to be independent, excellent in self-control, and good at utilizing the network surrounding them. Their education and work experience in North Korea show that the majority of them graduated from junior college or above, working for a company or school for over a year or serving in the military for 10 years. Their third-world experience is varied and hard to say in connection with South Korea, but they can be said to have stayed and worked for over six months. They are usually positive about living expenses support and stipends for a rental house, resettlement, and employment, but are both positive and negative about the education in Hanawon, and are asking to use resettlement assistants. In case of vocational education and training, many of them visited the Hanawon personnel or job training c enters and got the training by their own will, having a high tendency to work in the same kind of occupation. In general, the North Korean defectors who failed to be financially independent are lacking in a positive attitude, complacent about life, depressed and unhealthy, and frequently suffering from loneliness at the beginning of resettlement, while some had a strong will to stand by themselves. Even though they have their family, children, and the Hanawon network, their education and work experience in North Korea do not play a big role compared to those in the successful cases. They are subject to physical diseases or emotional difficulties from having a hard time when they go through the third world. They are highly dependent on government subsidies or support funds, and fail to get job training due to broker or living expenses or health problems. As a result, they tend to work part-time at restaurants or other places; otherwise, they have a hard time finding a job owing to prejudice in workplace or their health. 4. A self-supporting vocational education and training model We proposed a job training model necessary for establishing a self-supporting type of vocational education and training model through a review of literature, case studies of self-supporting vocational education and training, and conferences and forums with the specialists. We have developed (1) a self-supporting vocational education and training model for those at the beginning stage of entrance, (2) a self-supporting vocational education and training model for those who stayed for 3-5 years, and (3) a self-supporting vocational education and training model by job classification. First, they can be classified into the following eight categories on the basis of their physical health, positive consciousness, and basic job skills at their beginning stage. (1) physical health, positive consciousness, basic job skills (2) physical health, positive consciousness, no basic job skills (3) physical health, negative consciousness, basic job skills (4) physical health, negative consciousness, no basic job skills (5) physical disease, positive consciousness, basic job skills (6) physical disease, positive consciousness, no basic job skills (7) physical disease, negative consciousness, basic job skills (8) physical disease, negative consciousness, no basic job skills Second, those who stayed for 3-5 years after entrance need to be reexamined after getting customized support through a diagnosis at the beginning of resettlement. Because there is a big adaptability deviation among North Korean defectors, support is needed depending on their job training, employment and self-supporting types as follows. a. Cases where they got their job training, were employed in the same business, and are financially independent b. Cases where they got their job training, were employed in the same business, but are not financially independent c. Cases where they got their job training, were employed in a different business, and are financially independent d. Cases where they got their job training, were employed in a different business, but are not financially independent e. Cases where they got their job training, were not employed, and are not financially independent f. Cases where they did not get their job training, but are financially independent g. Cases where they did not get their job training, were employed, but are not financially independent h. Cases where they did not get their job training, lost their jobs, are not employed, or work part-time, and are not financially independent By job classification, a variety of different job models which include self-employment, public offices, production, sales and services, agriculture and fishery, a community model, and a professional model can be proposed. 5. Policy proposals Based on the above models, the policies necessary for North Korean defectors’ self-supporting job training model have been proposed, as follows: Self-supporting vocational education and training policies at the beginning stage of entrance: First, it is required that a team able to diagnose both physical and mental health be formed so that a diagnostic tool that can check North Korean defectors’ health and positive sense be developed. Second, it is urgent to develop a diagnostic tool that can check North Korean defectors’ basic job skills, through which a program that can develop their weak basic job skills should be developed. Third, based on the program, it is desired that professional consultants be cultivated so that North Korean defectors’ career guidance can be strengthened. Above all, we can use a primary successful employment package for a diagnosis of their career paths, but need to use the career path program developed for them later. Self-supporting vocational education and training policies for those who have stayed for 3-5 years: a new diagnostic tool different from that for the beginning stage of entrance needs to be developed. Because there are also cases where basic job skills were developed through various channels as they began to settle down in Korea, we need to do in-depth research on the development of basic job skills needed by job classification. As seen in the cases above, a differentiation in the degree of self-supporting among North Korean defectors can be significant 3-5 years after their entrance. Those who became financially stable through employment and employment grants continue their career development through in-house job training, and it is necessary to strengthen consultation about their career guidance and career development so that they can remove the causes in case they keep quitting a job or transferring to another job. It is also desirable to create a cooperative project with the Ministry of Unification, the Ministry of Employment and Labor, and the Ministry of Education, Science and Technology in connection with the second Hanawon in Hwacheon, the purpose of which is to reeducate and which will be completed in December 2012 Vocational education and training policies by job classification: training about the system and knowledge needed for business methods, public relations, accounting, etc. should be provided for North Korean defectors free of charge before support funds for establishing a business. The following job training is needed in order to bring them up to be in charge of carrying out a business, not as an intern to take care of simple counseling or a survey in public offices. In other words, there needs to be education in basic bills related to computers, word processing, and administration and secondary in-house job training that enables them to be responsible for their department and make it expand. Although many North Korean defectors take job training courses connected to production now, few people advance to the same kind of business after getting job training and acquiring a certificate. Thus, professional job consultation is required so that they can learn the job skills they want. The job training in the same kind of business for North Korean defectors is necessary for settling down in South Korea and for understanding capitalism. Furthermore, in case they want to be self-employed, it is imperative that they get vocational education in marketing. In case of North Korean defectors, many of them experienced agriculture on North Korea''''s collective farms. If they settle down in farming and fishing villages with their experience in North Korea, they can get better results than being employed in a unfamiliar business. They can even contribute to the development of farming villages by implementing the job training for learning agricultural skills demanded for their resettlement and by leasing farmland.요약 제1장 서 론_1 제1절 연구의 배경과 목적3 제2절 연구의 내용과 방법5 제3절 연구의 정의, 범위 및 모형개발 과정9 제2장 이론적 배경과 선행 연구_11 제1절 이주 및 노동 시장13 제2절 북한이탈주민들의 특성16 제3절 북한이탈주민의 직업교육훈련22 제4절 북한이탈주민의 자립28 제5절 시사점37 제3장 북한이탈주민 대상 현행 직업교육훈련 환경 분석_39 제1절 북한이탈주민 정착 지원 체계41 제2절 북한이탈주민 취업 지원 체계52 제3절 북한이탈주민의 직업교육훈련시스템 분석60 제4절 북한이탈주민 대상 직업교육훈련의 문제점과 시사점72 제4장 북한이탈주민 직업교육훈련 관련 심층 면담 사례_77 제1절 사례 조사의 개요79 제2절 심층 면담 사례 조사 결과84 제3절 사례 분석 및 논의126 제5장 북한이탈주민의 자립형 직업교육훈련 모형 개발_135 제1절 모형 개발의 의의137 제2절 자립형 직업교육훈련 모형 개발138 제3절 자립형 직업교육훈련 모형 구축을 위한 제도 개선167 제6장 결론 및 정책 제안_185 제1절 결론187 제2절 직업교육훈련 정책 제안191 Summary_205 참고문헌_217 부 록_229 1. 심층 면접을 위한 준비 사항231 2. 자립형 직업교육훈련 모형을 위한 심층 면접지(안)232 3. 북한이탈주민 사례 면담 적용 요약23