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1 Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology Vol.7, No.2, February (2017), pp 방과후학교의실태와문제점및발전방안 김수동윤준영정영모 요약 본연구는방과후학교의정책적변화와연구동향을분석하고학습자와수요자중심의현장의견을조사하여방과후학교의문제점과발전방향을모색하고자하였다본연구를위해방과후학교의출발점으로볼수있는교육개혁에서현재에이르기까지교육부의방과후학교주요정책을분석하고정책결과보고서와보도자료등을검토하였다또한학술연구정보서비스검색을통해연구동향을분석하였다이를통해정부에서는그동안방과후학교를사교육비경감의수단으로인식하는경향이있음을발견할수있었으며학계에서는방과후학교의효과성과활성화방안에관심이있음을알수있었다이에비해학교현장에서는방과후학교운영결과파생된다양한문제와해결방안에관심이있었다단위학교교원의경우효과적인정규교육과정보완방안과교원업무정상화에관심이있었으며강사의경우불안한신분과처우문제개선등에관심이높았다단위학교교원과방과후학교강사가공통적으로제시하고있는문제점은방과후학교가공급자위주의정책수단으로왜곡되고있고이를해결하기위한근본적인해결방안이부족하다는점이다이와같은결과를통해방과후학교는표면적으로볼때높은참여율과만족도사교육비경감효과등을보이고있지만법제화되지못하고공급자중심의정책사업으로추진되면서한계점을노출하는제도적위기를겪고있는것으로분석되었다본연구에서는이러한문제를해결하는방안으로현장학교와지역의자율과책임을강조하고방과후학교관련법을제정해야함을제안하였다주제어방과후학교방과후학교정책방과후학교활성화사교육비수요자중심교육 Abstract This research intends to analyze the policy change and study trends for after-school and research the learner and user-centered opinions to search for the problems and development directions for after-school. For this study, the main policies of the Ministry of Education for after-school policies with the 5.31 Received (December 9, 2016), Review Result (December 23, 2016) Accepted (December 30, 2016), Published (February 28, 2017) ISSN: AJMAHS Copyright 2017 HSST 855

2 educational reform as the start point of the after-school policies and until now have been reviewed. Also, study trends have been analyzed through search into the RISS(Research Information Sharing Service). Through this, it could be known that there is trend of perceiving the after-school as a vehicle to reduce the private education cost and that academia is interested in the effectiveness and vitalization scheme for after-school. In comparison with this, school were interested in the various problems derived from the operation of after-school and solving schemes. In case of the teachers in unit schools, they were interested in effective regular education curriculum supplementation scheme and normalization of the teacher's tasks and in case of the instructors, they were highly interested in improvement of the way they are wages and the improvement of labor conditions. The problem that the teachers from unit schools and after-school proposed in common was the after-school policies are distorted as a provider-centered policy vehicle and the fundamental solving scheme for this lacks. Through this result, to see superficially, there are many good aspects such as high participation rate and satisfaction level and reduction effect of cost of private education, but have been promoted as the provider-centered policy and since they have not been legislated, schools are experiencing systematic crisis which exposes limitations. This study emphasizes freedom and responsibility of the regions and on-site schools and suggests that After-School related Law should be enacted. Key Words : after-school, after-school policy, vitalization of after-school, cost of private education, user-centered education. 연구의필요성및목적 우리나라에서방과후학교는정규교육과정이외의시간에학교에서학생들을대상으로다양한교과또는특기적성프로그램을제공하여학생들의긍정적인성장과발달을도모하는교육활동을제공하는것을의미한다방과후학교는년교육개혁의일환으로시작되어그동안지속적인양적성장을거듭하였다년현재전국의학교에서의학생이참여하는수준으로확대되었고개설된강좌수는천여개강사수는천명에이른다방과후학교프로그램을민간위탁하는사례도많아져전체학교의가위탁운영방식으로방과후학교를운영한다하지만최근방과후학교참여율은년를정점으로년년로감소하는추세로전환되고있다이에비해사교육참여율은년년년을유지하고있으며년에는증가하였다교육부에서는이와같은현상에대해방과후학교선행학습금지로인해중고등학교의방과후수요가사교육으로일부전환된결과로분석하고있으며학계에서는방과후학교가공교육사교육에이어제도화과정을겪고있다는주장방과과후학교의외형적성장과제도화를동일시하는것은바람직하지않으며성장세도둔화되고있다는주장등이제기되고있다방과후학교현장에서는교원업무과중방과후학교민간위탁에대한찬반논쟁불안한강사처우문제등방과후학교운영에대한우려의여론과새로운운영모델에대한요구등이나오고있다본논문은그동안추진된정부의방과후학교정책학계의연구결과현장학교의여론을개관하고정부학계현장학교의관점의차이를상호비교하여현재발생하고있는방과후학교의문제에대한진단과발전방안을모색하고자하였다특히최근의학습자중심교육트렌드를반영하 856 Copyright 2017 HSST

3 Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology Vol.7, No.2, February (2017) 여학교현장의의견을경청하고자한다본연구를위해년교육개혁부터현재까지추진된정부의주요정책학술연구정보서비스기타방과후학교관련학술지정책보고서보도자료등을검토하고분석하였다 방과후학교의실태 방과후학교라는용어가공식으로사용된것은년노무현정부시기이지만각급학교의핚교운영위원회는방과후학생의흥미취미및학교실정과지역특성에알맞은교육활동을수익자부담으로운영할수있다고명시한년교육개혁이그시초라할수있다방과후학교의취지를표시한교육개혁안에서도볼수있듯이방과후학교는수익자부담원칙에따라표면적으로수요자중심을강조하고있다하지만방과후학교의정책목표의변화과정을살펴볼때국가가주도하는인상을강하게보여주었다교육목표는정권에따라사교육비경감과교육격차완화사이에서흔들리는시계추와같았다운영방법측면에서보면학교내에서프로그램이운영되는것을원칙으로하였으며교원또는외부강사가프로그램을진행하도록하였으며프로그램에참여하는학생은일정금액의수강료를납부하도록하였다프로그램이완료되는시점에는만족도조사를진행하여그결과를차기프로그램개설에반영하도록하였다학계에서는방과후학교운영효과나활성화방안에대한관심이높다년부터년까지학술연구정보서비스정부정책연구물검색서비스국회전자도서관자료한국교육개발원전자도서관자료한국교육개발원소장자료등을종합하고방과후학교관련논문편과보고서편을대상으로연구동향을분석한김홍원의연구에의하면학술지에서는성과분석이운영실태와개선방안활성화방안국제비교등이높은비중을차지하였다박사학위논문에서는성과분석운영실태와개선방안활성화방안가높은비중을차지하였고석사학위논문에서는개별프로그램과관련된연구물이로높은비중을차지하였다보고서에서는운영실태와활성화방안성과분석등이높은비중을차지하였다년부터년까지학술연구정보서비스에서방과후학교를주제어로네트워크텍스트분석을실시한배상훈정영모김재형의연구를보면년부터년까지사교육초등학교특기적성프로그램방과후학교참여학업성취방과후보육등을중심으로연구가활발하게진행되었음을알수있다이연구는방과후학교를년부터년년년년이후로나누어연구동향을비교분석하였는데년년에는방과후보육을중심으로연구가진행되었고년년에는사교육을중심으로한연구와일부방과후보육학업성취등을중심으로연구가진행되고있음을보여주었다년이후에는연구주제가초등학교방과후학교참여등다양한연구주제들이다루어지고있음을보여주었다학교현장에서는방과후학교가사교육비경감아동보호기능다양한특기적성능력신장등긍정적인기능을수행하고있지만이면에는방과후학교담당교원의업무과중문제프로그램을진 ISSN: AJMAHS Copyright 2017 HSST 857

4 행하는교사의정규수업준비시간부족충분하지못한방과후학교전용교실과돌봄전용교실사교육에비해저렴한수강료정책등이맞물리면서질높은방과후학교운영에대한우려의목소리가나오고있다년국회입법조사처조사결과돌봄교실이확대되면서학교내유휴교실이부족하여일반교실을돌봄교실로활용하는겸용교실이를차지하고있는것으로나타나고있다이러한현실은방과후학교질이저하되는문제가발생하는원인이되고있다특히불안한방과후학교강사처우문제는민간위탁방과후학교법제화문제가서로맞물리면서방과후학교전반에걸쳐제도적위기로인식되고있다 방과후학교정책의역사적변천과동향 방과후학교정책추진과정을최태호는도입기확산기변용기로분류하였으며임연기는태동기확산기조정기로분류하기도하였다하지만방과후학교정책변천은중요한전환점이발생했던시기를중심으로나누어볼수도있다이러한관점에서보면도입기년교육개혁년방과후학교용어도입이전발전기년방과후학교용어도입이후년학교자율화조치에의해시도교육청으로방과후학교가이양되기이전까지의시기확산기년학교자율화조치이후로나누어볼수있다방과후학교도입기는김영삼정부에서노무현정부초기까지의시기로방과후학교정책에서는수요자중심특기적성교육활동사교육비경감등이주요키워드로사용되었다방과후학교도입초기에는특기적성교육이강조되었으나년전면금지됐던정부의과외금지조치가년월헌법재판소에서위헌판결을받으면서방과후학교에서사육비경감이라는키워드가강조되었다년에는사교육비경감을위한특기적성교육활성화방안이발표되었고년에는공교육정상화를통한사교육비경감대책이발표되기도하였다방과후학교발전기는노무현정부중후기인년부터년학교자율화조치가이루어지기이전까지의시기로기존에특기적성교육초등보육수준별보충학습등으로다양하게사용되던용어가방과후학교라는용어로통합되었으며전국초중고등학교로확대된시기이다이시기에는교육부에서방과후학교운영계획을수립하고시도교육청에서이를수용하여정책을집행하였다방과후학교참여활성화를위한다양한정책들이발표되었으며시도교육청평가지표에방과후학교활성화가반영되었다또한다양한특기적성프로그램이강조되었으며방과후학교특별법을제정하려는시도가국회에서의원발의되었으나소관위원회에서민간위탁에대한찬반논쟁등이대두되면서본회의에상정되지못한채임기만료로법안이폐기되었다방과후학교확산기는년학교자율화조치가이루어진이명박정부이후이다이시기에는방과후학교의주요성과로사교육비경감라는키워드가부각되었다학교자율화조치에의해방과후학교가시도교육청으로이양되고학교장의권한이강화되었으나시도교육청평가지표에방과후학교활성화지표가반영되고교육부를중심으로방과후학교운영가이드라인이만들어지는 858 Copyright 2017 HSST

5 Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology Vol.7, No.2, February (2017) 등방과후학교운영주도권은여전히중앙에존재하였다년이후에는방과후학교내실화방안이발표되는등방과후학교의질적성장에도관심을기울이고지역사회와연계한다양한방과후학교운영이강조되었다박근혜정부에서는국민이안심하고자녀를양육할수있게한다는국정과제를제시하였다즉국정과제초등방과후돌봄기능강화를제시하면서오후시까지초등학생방과후돌봄프로그램무료제공추가돌봄대상학생을위해저녁시까지초등돌봄교실운영한다고제시하고있다이과제를추진하기위한한가지주요정책으로학교내돌봄강화가제시되었다방과후학교정책의역사적변천은다음의표과같다 표 방과후학교정책의역사적변천 도입기 발전기 확산기 시기 주요사건수요자중심특기적성교육활동사교육비경감강조년사교육비경감을위한특기적성교육활성화방안년공교육정상화를통한사교육비경감대책교육부에서방과후학교운영계획수립전국모든학교로방과후학교확대시도교육청평가지표에방과후학교활성화반영방과후학교특별법제정추진되었으나민간위탁에대한찬반논쟁등이대두되면서본회의에상정되지못함시도교육청으로방과후학교이양방과후학교운영가이드라인제작배포방과후학교내실화방안발표초등방과후돌봄기능강화를국정과제로채택방과후학교활성화방안 방과후학교의문제점 학습자와수요자중심의교육현장의입장에서문제점을짚어보고발전방안을모색하고자한다방과후학교에서발생하고있는문제점은다음과같다첫째교원의업무부담문제이다전반적으로초중등학교는본연의임무인정규교육과정의충실한운영이있는데방과후학교가현장에도입되면서정규교육과정운영에많은부담을주고있다단위학교의방과후학교담당교원은본인이담당해야하는정규교육과정이외에도방과후학교업무를담당하는경우가많은데방과후학교업무가가중되면서정규교육과정을정상적으로운영하기어려운경우가발생하는것이다방과후학교의경우연초에전교생을대상으로하는수요조사학부모안내문발송강사구인위탁계약서작성수업공개및학부모참관만족도조사강사급여지급자유수강권대상자관리만족도조 ISSN: AJMAHS Copyright 2017 HSST 859

6 사등평가각종현황요구자료작성등부가적인업무가발생하고있기때문이다이러한방과후학교업무를보조하는인력을활용하여운영하는학교도있지만방과후학교예산부족문제와무기계약에전환에대한부담문제로보조인력채용을기피하는현상도발생하고있다년에교육부에서방과후학교내실화방안을발표하면서방과후학교의질을제고하는다양한방안을제시하였다구체적으로살펴보면민간위탁을확대하여방과후학교의질을높이고학교의업무도줄여주자는취지로시작된언론참여방과후학교사업과대학주도방과후학교사회적기업육성사업이추진되었다이사업은년월특별교부금사업이중단되고단위학교에서자율적으로운영하는사업으로일반화되었다둘째방과후학교강사수급에관한문제이다교육활동이이루어지기위해서는교수자가반드시필요하다교육부의년방과후학교운영현황을보면방과후학교프로그램을직접운영하고있는교원은초등학교중학교고등학교수준으로높아지고있다이는중등교원의경우정규수업이외에도방과후학교프로그램을운영하기위해상당한에너지를소진해야함을의미하는것이다특히학생참여율이에이르고있는고등학교에서외부강사는수준에머물고있는반면의교원이방과후학교에참여하고있다는점은교원의수업준비시간이그만큼줄어들고정규교육과정이침해받을수있음을암시한다교원의방과후학교참여가법적으로보장되고있는가하는점도문제시된다일본의경우는교원의방과후학교참여를엄격하게금지하고있다우리나라의경우에는교원이방과후학교에참여할수있다는법조항이없다공무원보수규정제조에서는공무원에게는예산의범위에서봉급외에필요한수당을지급할수있으며수당의종류지급범위지급액그밖에수당지급에관한사항은대통령령으로정한다라고명시하고있다공무원수당등에관한규정에서는교원이받는방과후학교강사료에대한부분은별도로규정되어있지않다즉공무원신분의교원은법적으로시간외수당을받을수있을뿐이다하지만현실적으로단위학교교원은강사료를받고있다는점이다또한방과후학교운영가이드라인은국세청의연말정산요령을반영하여소속교원이강사로활동할경우연말정산시합산하여정산하고타교현직교원또는타기관단체에근무하는자가방과후학교강사로일시적으로활동할경우에는기타소득세를원천징수한다라고안내하고있으나김수성윤성만은년부터특수직연금공무원연금사학연금군인연금제도에서부담금의산정기준을실제소득을기준으로산정하도록하였기때문에교원간의위화감이발생할수있다고지적하였다초중고학교급별로방과후학교참여율과강사현황을제시하면표와같다 860 Copyright 2017 HSST

7 표 방과후학교참여율과강사현황 Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology Vol.7, No.2, February (2017) 방과후학교참여율인원수명현직교원비율인원수명외부강사비율인원수명계비율 출처교육부 초등학교중학교고등학교계 방과후학교운영현황 셋째저렴한수강료정책이다방과후학교운영가이드라인에서는수강료는수익자부담을최소화하기이하여사교육기관보다저렴하게책정하고학교알리미와홈페이지등을통해수강료정보를공개한다라고제시하고있다하지만남수경김태영은도교육청관내학년부터학년학생을전수조사하였는데조사결과교원당학생수가적을수록학생인당직접교육비가많을수록방과후학교참여율이높은학교일수록학생만족도가높은것으로나타났다이러한연구결과는저렴한수강료를유지하는것만이바람직한것이아니라는것을보여준다넷째불안한방과후학교강사처우문제와민간위탁문제이다방과후학교가운영되기위해외부강사는반드시필요한필수요소가되고있다하지만방과후학교가수익자부담운영이원칙이기때문에방과후학교프로그램운영을위한재원이정부에서안정적으로마련되지않는다다만자유수강권농어촌활성화사업등에의해저소득층지원사업에제한적으로지원되고있을뿐이다따라서수요가있을때에는프로그램이개설되지만수요가없으면프로그램도개설되지않는논리가성립된다기간제및단시간근로자보호등에관한법률제조에의하면사용자는년을초과하지아니하는범위안에서기간제근로계약의반복갱신등의경우에는그계속근로한총기간이년을초과하지아니하는범위안에서기간제근로자를사용할수있으며년을초과하여기간제근로자로사용하는경우에는그기간제근로자는기간의정함이없는근로계약을체결한근로자로본다라고규정하고있다따라서방과후학교강사를근로자로본다면년이상근로한경우무기계약근로자로볼수있지만방과후학교강사를근로자로볼수있는지에대해서는아직충분한연구가진행되지못했으며법원에서의판단을지켜봐야하는상황이다민간위탁문제도최근화두가되고있다민간위탁은학교밖의다양한자원을학교안으로끌어들이고교원의업무를어느정도경감시킬수있다는점에서주목을받고있으나민간위탁위탁업체의영리화와과도한수수료문제로인해어려움을겪고있다 ISSN: AJMAHS Copyright 2017 HSST 861

8 결론및제언발전방안모색 본연구는정부의방과후학교정책의역사적변천학계의연구결과단위학교현장의의견을조사하여현재발생하고있는방과후학교의문제를진단하고발전방안을제시하는데있다조사결과한국에서방과후학교는출발점이되었던교육개혁부터년현재까지수요자중심을표면적으로강조하였다하지만실질적인측면을보면정부주도로정책이추진되면서사교육비경감의관점양극화해소방안학교교육의연장등서로다른요구들이정책목표에기계적으로결합되었고수요자의교육에대한본질적인요구와학생의균형있는성장과발달학생의건강과행복등에는상대적으로소홀하였음을발견할수있었다방과후학교의성과는사교육비경감이라는공식이성립되는이미지도보여주었다년이후방과후학교내실화방안을발표하거나시도교육청평가에만족도조사결과를반영하는등방과후학교질적인수준에도정책적관심을보였지만학부모들사이에서불고있는교육에대한고급화바람을충족시켜주지못하고있다앞서언급한교원의업무부담방과후학교강사수급저렴한수강료정책불안한방과후학교강사처우문제와민간위탁문제에대한발전방안은다음과같이제시될수있다첫째교원업무부담문제와강사수급문제는교원의방과후학교참여에대한법적근거를마련함으로써해소할수있다방과후학교프로그램참여가능한시간을정규교육과정을침해하지않는수준으로제한하고방과후학교에서실질적으로지급되고있는교원의수당에대한법적근거를마련해야한다또한단위학교별로방과후학교행정업무를담당하는전문가를명이상배치하도록하고교원이방과후학교행정업무를담당하지않도록의무화하고관련예산을확보하여단위학교에지원함으로써해결할수있다둘째저렴한수강료정책은단위학교에서학교운영위원회에서자율적으로결정할수있도록해야한다초중등교육법제조에서는학교운영위원회는정규학습시간종료후또는방학기간중의교육활동및수련활동에대해서는심의한다라고명시하고있다따라서수강료는학교운영위원회에서자율적으로결정할수있도록결정권을넘겨주는것이바람직하다셋째불안한강사처우문제와민간위탁문제는관련법을개정하는작업이시급하다방과후학교의특성상학생들에게징수하는수강료수입으로대부분의재원이마련되고있다따라서재원이안정적이지않으며단위학교는단순히학생과강사를매개해주는역할을하고있을뿐이다이에반해기간제및단시간근로자보호등에관한법률에서는근로자와년이상계약을유지하는경우무기계약직으로전환하도록하고있으며최저임금법에의해최저임금을보장해야한다이러한상황에서방과후학교강사를근로자라고해석하면단위학교에서는근로계약기간을년이내로한정하는경향이나타날수밖에없으며강사의처우가더욱불안해지는딜레마가나타난다따라서정부에서는기간제및단시간근로자보호등에관한법률제조제항전문적지식기술의활용이필요한경우와정부의복지정책실업대책등에따라일자리를제공하는경우로 862 Copyright 2017 HSST

9 Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology Vol.7, No.2, February (2017) 서대통령령이정하는경우에방과후학교강사가적용되는것으로해석하여기간제및단시간근로자보호등에관한법률시행령제조제항에초중등학교에서방과후학교강사를포함하도록시행령을개정하여방과후학교강사의신분을보장해주는것이바람직하다민간위탁문제는민간위탁에관한규정을각시도의조례로제정하여방과후학교민간위탁의과도한영리화와수수료문제의해결을모색할수있다결국현재제기되고있는많은문제는방과후학교를직접적으로규제하는법이마련되어있지않은데에서발생하고있는문제이다특히법이제정되지않고서는더이상해결하기어려운문제들이라할수있다이러한현실은관련법규부재에따른방과후학교의제도적위기로해석할수있다향후제도적위기를해소하기위해서는단위학교와시도교육청의자율과책임을강조하고관련법을조속히제정하는것이필요하다 References [1] Ministry of Education, 2015 After-school Implementation Current Status, Ministry of Education, Sejong(2016a) [2] Statistics Korea, Private Tuition Survey Results of Elementary, Middle, High school in 2015, 2.26 in 2016 Press Release, (2016). [3] Ministry of Education, After-School Activation Strategies Which are tailored to students to raise their dreams and meals are announced, 5.3 in 2016 Press Release, (2016b). [4] Sang-Hoon Bae, Philosophical Foundations, Policy Goals, and Future Prospect of After-school programs, The Journal of After-School Research. (2014), Vol. 1, No. 1, pp [5] Ki-Oh Jeong, Institution Building and Education Policy Development for After-school Activities, The Journal of After-School Research. (2014), Vol. 1, No. 1, pp [6] Hong-Won, Kim, Research Trend and Tasks in After-School Studies, The Journal of After-School Research. (2015), Vol. 2, No. 1, pp [7] Sang-Hoon Bae, Yeong-Mo Jeong, Je-hyung kim, After-school Research Movement Analysis: Network Text Analysis Korea Educational Research Association Annual Academic Conference Proceedings. (2016) June; Daegu, Korea. [8] Su-Jeung Jeung. The current status and future s tasks of the elementary care classroom. Assembly legislative survey department, (2014). [9] Rights Realization Center for Nation Wide After-school Lecturers Federation for Nation Wide After-school Lecturers New Politics Alliance Euljiro Commission for Democracy, After School is Public Education. Policy debating society materials for the presentation of after-school lectures labour status and the preparation of law institutionalization improvement strategies, (2015). [10] Tae-Ho Choi, After-school Policies of Korea: Perspectives of Policy Changes. After-school Policies and administrative support system: Evaluation and Development Direction, 2015 The Korean After-School Study ISSN: AJMAHS Copyright 2017 HSST 863

10 Association Annual Academic Conference Proceedings. (2015), December, 9-34; Seoul, Korea. [11] Youn-Kee Im, The Characteristics of After-School Policy in Korea, Korean Journal of Educational Administration. (2015), Vol. 33, No. 4, pp [12] Soo-Dong Kim, A study on the improvement strategies of the saturday after school program implementation- focused on community educational capabilities-, Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology. (2016), Vol. 6, No. 7, pp [13] Soo Kyong Nam, Tae-Young Kim Affects of School Characteristics and Educational Activities on Student Satisfaction in Elementary School, The Journal of economics and finance of education. (2013), Vol 22, No. 3, pp [14] Su-Sung Kim, Sung-Man Yoon, A Study on Taxation for Income from After School Program. Korean Journal of Taxation Research. (2012), Vol 29, No. 4, pp Copyright 2017 HSST

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인문사회과학기술융합학회 Asia-pacific Journal of Multimedia Services Convergent with Art, Humanities, and Sociology Vol.5, No.4, August (2015), pp.631-648 http://dx.doi.org/10.14257/ajmahs.2015.08.77 보육의 위기적 현상과 재난안전관리의 문제점 조망