초록 열기/닫기 버튼
우리나라 헌법은 근로자에게만 단결권, 단체교섭권 및 단체행동권을 보장하고, 공무원에 대하여는 법률이 정하는 자에 한하여 노동기본권을 인정한다. 이에 따라 국가공무원법 및 공무원노조법은 6급 이하의 공무원에게 단결권과 단체교섭권만을 제한적으로 보장한다. 단체행동권은 사실상 노무에 종사하는 자를 제외하고는 모든 공무원에게 전면 금지된다. ILO협약 제87호는 모든 노동자 및 사용자에게 결사의 자유를 보장하고 있다. 다만 협약 제87호, 협약 제98호 및 제151호가 모두 군인 및 경찰의 단결권에 대하여 국내법에 위임하고 있다. 공무직 종사자에 대하여 규정하고 있는 제151조는 고위직 공무원, 기밀업무 종사자에 대하여는 단결권 제한이 가능하다고 보고 있다. ILO협약이 파업권에 대하여는 자세히 규정하고 있지 않기 때문에 이 협약이 파업권까지 포함하는지 여부는 알 수 없다. 독일의 경우 단결권(Koalitionsfreiheit)은 기본법(Grundgesetz: GG)에 의해 모든 사람에게 보장되는 기본권이다. 따라서 공무원도 일반 근로자와 다름없이 노동기본권을 향유한다. 다만 이른바 직업공무원제도(Berufsbeamtentum)에 의하여 공무원에게는 파업이 금지된다. 직업공무원제도란 공무원에게는 충성의무(성실의무)에 따라 국가 전체에 봉사할 의무가 있고, 그에 따라 파업이 금지되는 반면, 신분이 보장되고 현직에 있을 때나 퇴직한 후나 적정한 생활이 보장되는 제도를 말한다. 영국의 경우는 불문법주의 국가이기 때문에 성문의 헌법이 없고 노동기본권에 대한 기본권도 당연히 존재하지 않는다. 다만 영국은 1998년 인권법(Human Rights Act)을 제정(2000년 발효)하면서 유럽인권협약(European Convention on Human Rights: ECHR)을 국내법에 적용하게 되었다. 유럽인권협약 제11조는 모든 사람은 평화로이 결사할 자유를 갖고 자신의 이익을 보호하기 위해 노동조합을 설립하거나 가입할 권리를 갖는다고 규정하고 있다. 이에 따라 모든 사람에게 단결권이 보장되고, 공무원에 대하여도 원칙적으로는 일반 근로자와 동일한 노동기본권이 보장된다. 다만 단결권의 제한을 규정하고 있는 유럽인권협약 제11조 제2항에 따라 성문의 노동관계법령이 파업권 등을 제한하고 있다. 영국의 경우 공무원과 일반 근로자에 대한 노동기본권 보장의 차이가 그리 크지 않고 공무원도 일정 요건을 갖춘 경우 파업을 할 수 있다. 이 논문에서는 우리나라의 공무원에 대한 노동기본권의 기본적인 내용을 기술한 후 공무원의 노동기본권과 관계가 깊은 ILO의 제87호 협약(결사의 자유와 단결권 보호 협약), 제98호 협약(단결권과 단체교섭권 협약) 및 제151호 협약(공공부문의 노사관계에 관한 협약)의 내용을 설명한다. 이어 독일과 영국의 공무원에 대한 노동기본권과 그 제한에 대하여 살펴본 후 각국의 내용을 간단히 비교 검토함으로써 결론을 맺는다.
This article compares the right of association, collective bargaining and collective action of public servants in Korea with the ILO Conventions, the systems in Germany and the United Kingdom. The role of ILO labour standards in promoting sound labour relations in the public service cannot be overemphasized. In particular, the Freedom of Association and Protection of the Right to Organize Convention, 1948 (No. 87), and the Right to Organize and Collective Bargaining Convention, 1949 (No. 98), have been ratified by Germany and the UK, but not by Korea. The ILO uses its supervisory mechanism to enforce compliance with these two core international labour standards across all sectors throughout the world. Special mention should be made of the Public Service Labour Relations Convention, 1978 (No. 151). This Convention complements national labour laws to provide the right of freedom of association and collective bargaining for public employees. In addition, it empowers public employees’ organizations to protect the interests of public employees. However the extent to which the guarantees provided for in these Conventions(No. 87, No. 98, and No. 151) shall apply to the armed forces and the police shall be determined by national laws or regulations. And the extent to which the guarantees provided for in the Convention of No. 151 shall apply to high-level employees whose functions are normally considered as policy-making or managerial, or to employees whose duties are of a highly confidential nature, shall be determined by national laws or regulations. The Constitution of Korea guarantees the right of employee to freely form associations, bargain and act collectively. However, the right of public servant can be restricted by the individual regulations. Korea applies a clear distinction between the legal status of public servants and the legal status of contractual employees in the public sector. The latter category is governed by private employment law, while the first is governed by public law. The difference between these is a consequence of the founding act. A public servant is unilaterally appointed, which implies directly that his legal status is governed by public law. The legal protection of public servants against unlawful acts by their public employer is guaranteed by the public law system. According Public Servant' Trade Union Act the right to associate is restricted for high-ranking officials and officials whose duties are of a highly confidential nature. The right to strike of public servant is strictly prohibited by this Act. The Constitution of Germany guarantees the right of both workers’ and employers’ organizations to freely form associations and bargain collectively. The Constitution (Article 9 III) guarantees the right to form associations, to safeguard and improve working and economic conditions to everyone and to all occupations. It further states that agreements which restrict or seek to impair this right shall be null and void. There is no legislation governing industrial conflicts and the right to strike. The area is mainly regulated through the jurisprudence of the Federal Labour Court, which has created principles and rights which limit the right to strike in order to preserve parity between the bargaining agents. Civil servants’ contracts of employment are based upon public law, rather than civil law and their working conditions are regulated by law or regulation rather than by collective agreements. As a strike by civil servants cannot be related to a collective agreement, it cannot be lawful. Generally civil servants, judges and soldiers are excluded from the right to strike. As the U.K. has no written constitution, any right to strike is not protected in any superior document but rather regulated by statute and common law. In terms of fundamental rights, the most significant legal instrument is the Human Rights Act 1998. This incorporated the European Convention on Human Rights (ECHR) into British domestic law. Article 11 I of the ECHR provides that ‘everyone has the right to freedom of peaceful assembly and to freedom of association with others, including the right to form and to join trade unions for the protection of his interests.’ In order for British law to be compliant with the European Convention any restriction on an individual’s ability to strike must be in accordance with Article 11 II. Collective bargaining can be described as the foundation of labour relations in both the public and the private sectors in the U.K. The Employment Relations Act of 1999 provides clear definition for recognizing and establishing bargaining units. English Common Law enshrines the right to strike of all workers regardless of sector. However, certain categories of employees working in enterprises considered essential services are denied the right to strike, e.g., the police and the army. There are stringent guidelines contained in English law statutes regarding procedures for a legal strike. Mandatory strike ballots were introduced by the Trade Unions Act(1984. lately revised in 2016) which made majority support in a ballot a precondition for immunity from liability in tort. However, most of the statutory provisions can be found in the Trade Union and Labour Relations (Consolidation) Act 1992.
키워드열기/닫기 버튼
public servant, fundamental labour rights, strike, freedom of association, ILO Conventions, Germany, the United Kingdom
