지방분권형 교육자치제도의 발전 방안

국문 초록 (Abstract)

지방교육자치제는 중앙정부로부터 교육행정의 수직적 지방분권화와 지방의 일반행정으로부터 역할 분담이라는 수평적 교육분권화를 도모하고자 교육 · 학예에 관한 사무의 의결기관으로서 교육위원회를 두고, 그 집행기관으로서 교육감제를 설치하여 지방교육의 다양한 발전을 위한 교육의 자주성 · 전문성 · 정치적 중립성과 그 지역의 특수성을 살려나가는 기본적인 교육제도이다.
이 연구는 교육행정의 민주화와 교육자치의 본질 및 기본원리에 바탕을 둔 한국 실정에 맞는 ‘지방분권형 교육자치제도의 발전 방안’을 모색하고자, 교육자치제도의 핵심 이론, 관련 선행연구, 우리나라의 지방교육자치제도 변천 과정, 외국의 지방교육 자치제도, 국회에 상정되었던 지방교육자치에관한법률개정(안) 등을 비교 · 분석하였으며, 지방교육자치 현안 · 쟁점사항을 중심으로 실시한 설문 조사, 인천광역시교육위원회의 교육자치 백서와 전국교육위원협의회의 활동 기록물들을 분석한 결과와 요약된 논의를 종합하여 얻은 결론으로 ‘지방분권형 교육자치제도의 발전 모형’을 다음과 같이 제시하였다.
첫째, 최선안으로 ‘독립형’을 제시하였다.
지방교육자치제도의 본질에 가장 근접한 최선안은 교육위원회를 ‘독립형 의결기관’으로 하여 교육 · 학예에 관한 의결권과 교육행정 사무감사 및 조사권을 갖게 하고, 교육감은 교육 · 학예사무의 ‘독임제 집행기관’으로 하는 이상적인 발전 모형이다.
둘째, 차선안으로 ‘절충형’을 제시하였다.
1991년부터 시행해온 현행 지방교육자치제도를 일부 보완한 ‘절충형’ 발전 모형을 차선안으로 제시하였다.
이 모형은 교육행정과 일반행정의 갈등을 완화하고, 상호 연계 · 협력하는 방안을 모색하며, 교육위원회를 ‘위임형 의결기관’으로 하여 주민의 재정 부담과 의무 부담, 지방자치단체의 일반회계와 관련된 교육 · 학예에 관한 예산 · 결산 조례안은 시· 도의회에 제출하고, 기타 각급학교 용지 수용, 사회교육 시설 지원 예산 등은 상호 협의해나간다.
셋째, 권고안으로 ‘통합형’을 제시하였다.
현 참여정부에서 내세운 ‘지방교육에 대한 지방자치단체의 권한과 책임을 강화하기 위한 방안’으로 제주특별자치도가 시범 운영하고 있는 ‘통합형’ 발전 모형을 권고안으로 제시하였다.
이 모형은 교육위원회를 지방의회내 상임위원회로 통합하여 이중심의와 중복감사의 모순을 극복함으로써 교육행정의 효율화를 도모하고, 지방교육재정의 안정적 확보에 긍정적 효과를 기대할 수 있다.
이상의 독립형 · 절충형 · 통합형 지방교육자치제도 발전 모형은 어떤 경우라도 지방교육재정의 안정적 확보가 전제되어야 하며, 우리나라 16개 시 · 도가 똑같이 채택하는 방안과 시 · 도의 재정자립도 등 여건을 고려하여 지방자치단체의 특성에 맞는 모형을 조례로 채택하는 방안이 있다.
결국 교육위원회와 교육감은 교육 수혜자들을 위한 교육자치를 실현함으로써 교육행정의 민주화와 학교자치의 활성화 방안을 강구해나가야 하겠다.

다국어 초록 (Multilingual Abstract)

A local educational autonomy system is a basic education system which aims at vitalizing educational autonomy, professionalism, political neutrality and each local's characteristics for multi-development of local education. This system consists of an education committee as a legislative organ for affairs on education · art and science, and a educational superintendent system as its executive organ. Such system enables vertical decentralization of education from the main government, and horizontal decentralization from local administration by separating the educational administrative power from the local government.
This study aims to find 'a developmental plan for decentralized educational autonomy system' for Korea, based on democratization of educational administration, and the nature and basic principle of educational autonomy, consideration of the preceding research related to this topic and the core theories about educational autonomy, and operated comparison analyses about the transition of local educational autonomy system in Korea and foreign countries, and the amendment bill about the law of local educational autonomy laying before the National Assembly.
In addition, this study conducted a questionnaire survey for subjects concerned in education, focusing on integration of educational autonomy and decentralization which current President Roh, Moo-Hyun's government is promoting, and analysed white books about educational autonomy by education committee, and records about the national council of members of school boards' activities. As a conclusion after considering all the research results and summarized discussions, it was suggested 'developmental models of decentralized educational autonomy system' as the following.
First, it was suggested an 'independent model' as the most ideal plan. The plan that is closest to the nature of local educational autonomy, is a model that designates independent powers to both education committee and superintendents. The education committee should act as an 'independent legislative organ' to have voting rights on education · art, and science, as well as rights for inspecting and investigating educational administration affairs. The superintendent of schools should act as the 'single-authority executive organ.'
In this model, a quorum of education committee is 7~15 members, and both a superintendent of schools and education committee members are directly elected by residents in the area. The term of the office for a superintendent of schools should last for 4 years with only one-reappointment, and a education committee member should be able to serve for 4 years, eligible for continuous-reappointment.
To ensure that the education system is run by intellectual people with high moral standards, the candidates for a education committee member or a superintendent of schools should have a Bachelor's degree or higher, and should have more than 10 years of experience in education or educational administration, and should not belong in any political party. Qualifications of a vice-superintendent of schools, as a subsidiary organ for superintendent of schools, should be the same as the ones for superintendents. Vice-superintendents should be appointed by the President, with an approval of the education committee and through multi-recommendations by superintendent of schools.
Second, it was suggested a 'compromise plan' as the second best plan.
It was suggested a 'compromised developmental model' which partially complements current local educational autonomy system that has been operated since 1991.
This model eases discord between educational administration and general administration, and seeks a solution for mutual connection and cooperation. In this model, the education committee as a 'trusted legislative organ,' carrying on duties such as submitting bills to the city ·province assembly. These bills consist of budget and settlement on education · art and science that takes into account related to residents' financial burden, the general account of a local autonomous entity, etc. Other budget for functions such as expropriating land required for each school, and supporting social education facilities are also taken into consideration in cooperation with city · province assemblies. Also, the education committee operates independently to excercise rights for inspection and investigation of educational administration affairs. The responsibility of the superintendent of schools is the same as the 'independent model.'
Election of a education committee member and a superintendent of schools adopts a direct election or a quasi-direct election, and a half of a quorum of education committee should be taken by people with educational career background. The qualifications and terms of office of the superintendents are the same as an 'independent model'. In addition, a vice superintendent of schools can be appointed by the President upon the request of the Minister of Education that is originated from multi-recommendations by superintendents among school inspectors or general public officials.
Third, it was suggested an 'integrated model' as a recommended plan.
An integrated model is a 'plan for reenforcing rights and responsibilities of local autonomous entities about local education.' This model, presented by current government, is the one which Jeju Special Self-Governing Province has currently adopted for testing.
This model integrates an education committee into a standing committee within a local assembly. It promotes efficiency of educational administration by overcoming contradiction of double deliberation and overlapping inspection, which also results in stability of guaranteed local educational funds. Jeju Special Self-Governing Province composes the education committee of the province assembly with 5 people with education career(majority of total members 9), and 4 province assembly members. The 'integrated model' of this study, however, suggest that the entire education committee(7~15 members) should be composed of people with education career backgrounds. The qualifications and terms of office for education committee members and the superintendent of schools are the same as the 'independent model.'
The superintendents act as a single-authority executive organ, and the rights and responsibilities are the same as the 'independent model' and the 'compromise plan.' The authority of education committee, qualifications, and the appointment system for vice-superintendent of schools are same as the 'compromise plan.' However, in this plan, the superintendents and the head of local autonomous entity should establish a system for cooperations and exchanges, tentatively named as the 'educational administration council.'
These 'independent, compromise, and integrated local educational autonomy system developmental model' are should be supported by stable educational funds at all times. Korea can either adopt one suitable model that fits all 16 cities and provinces, or each city · province can adopt individual models, considering its circumstances such as degree of financial independency.
The development of local educational autonomy system could not be accomplished without constructing mutual harmony, connection · cooperation. It should be free from chronic conflict and antagonism between educational administration and general administration that has existed over the years until now. In addition, a local government should secure its educational funds, rather than exercising its rights, to improve educational circumstances, which results in enhancing its residents' satisfaction. Also, education committees and superintendents should ultimately find a plan for democratization of educational administration and revitalization of school's autonomy, through realizing educational autonomy for beneficiaries of education.

목차 (Table of Contents)

• Ⅰ. 序論 = 1
• 1. 硏究의 必要性 = 1
• 2. 硏究의 目的 = 4
• 3. 硏究의 內容 = 4
• 4. 用語의 定義 = 6
• Ⅱ. 理論的 背景 = 8
• 1. 地方自治制의 槪念과 本質 = 8
• 2. 敎育自治制의 槪念과 基本原理 = 10
• 3. 先行硏究의 考察 = 13
• 4. 理論的 背景에 대한 論議 = 19
• Ⅲ. 硏究方法 = 21
• 1. 比較硏究 = 21
• 2. 調査硏究 = 22
• 3. 記錄物 分析 = 24
• Ⅳ. 比較硏究의 結果 = 25
• 1. 韓國의 地方敎育自治制度 變遷 過程 = 25
• 2. 外國의 地方敎育自治制度 比較·分析 = 28
• 3. 地方敎育自治에관한法律改定(案) 比較·分析 = 34
• 4. 比較硏究에 대한 論議 = 40
• Ⅴ. 調査硏究 結果 및 解釋 = 46
• 1. 地方敎育自治에 대한 一般的인 觀點 = 46
• 2. 地方敎育自治 爭點事項에 대한 認識 = 53
• 3. 地方分權ㆍ其他 = 87
• 4. 調査硏究에 대한 論議 = 91
• Ⅵ. 記錄物 分析의 結果 = 95
• 1. 仁川廣域市敎育委員會 敎育自治 白書 = 95
• 2. 全國敎育委員協議會 活動 記錄物 分析 = 101
• 3. 敎育行政과 地方行政의 葛藤關係 = 106
• 4. 記錄物 分析의 結果 論議 = 109
• Ⅶ. 要約 및 結論 = 112
• 1. 要約 = 112
• 2. 結論 = 117
• 3. 提言 = 123
• 참고문헌 = 124
• ABSTRACT = 137
• 부록 = 142
• 부록 1 지방교육자치제도에 대한 설문지 = 143
• 부록 2 인천광역시교육위원회 제4기 조례 심의·의결 현황 = 158
• 부록 3 제4기 시·도교육위원회 교육자치특별위원회 회의록 분석 = 159
• 부록 4 제4기 전국교육위원협의회 토론회 등 현황 = 161