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<머리말>

체류 외국인 250만, 가까운 미래의 저출산·고령화와 인구절벽으로 인해 이민정책의 중요성은 점점 더 커져가고 있습니다. 이에 따라 다문화사회전문가의 역할은 사회적으로 확장되고 있으며, 제도적으로도 변화가 시작되고 있습니다. 그러한 과정의 일환으로 다문화사회전문가 인정과목에 대한 개편이 있었고, 이민정책론은 일반계열과 교육계열 다문화사회전문가 인정과목 중 필수과목으로 지정되었습니다.

저자들은 다문화사회전문가 교육과정에 필요한 맞춤 이민정책론 교과서의 저술 필요성에 공감하게 되었습니다. 새로운 교과서를 위해 기존 교과서를 분석했습니다. 기존 교과서의 아쉬운 점을 찾아내고, 바람직한 이민정책론에 포함될 내용에 대해 탐색했습니다. 이를 통해 다문화사회전문가를 대상으로 하는 맞춤 이민정책론의 방향을 다음과 같이 정해 책을 만들었습니다.

첫째, 정책이론의 핵심 내용과 정책과정에 대한 내용을 이민정책과의 관련성 속에서 논의했습니다. 다문화사회전문가 인정 과목 소개에 포함되어 있는 이민정책의 형성, 집행, 평가 과정에 대해 좀 더 상세하게 논의하고자 했습니다.

둘째, 책을 읽고 학습하는 다문화사회전문가 지망자에 초점을 맞추고자 했습니다. 각 장의 주제와 내용이 다문화사회전문가와 어떠한 관련성을 갖고 있는지를 설명하고자 했습니다. 이러한 점은 특히 각론 부분을 다문화사회전문가이자 이민정책연구자들이 직접 저술함으로써 의미가 더해졌다고 생각됩니다.

셋째, 다양한 방식의 이민정책의 사례를 통해 이민정책의 현상에 대해 입체적으로 이해할 수 있도록 했습니다. 참고, 사례, 토론사례 등을 텍스트, 그림, 동영상으로 제시해 이해를 쉽게 하고자 했습니다.

넷째, 빠르게 변하는 이민정책의 특성에 맞춰, 변화된 통계나 제도 관련 내용을 즉시 반영해 교육 내용의 최신성을 확보하고자 했습니다. 각 장의 저자들은 변화가 예상되는 통계와 제도 목록을 만들어 변화가 있을 때마다 별도로 안내된 링크의 게시판을 통해 변화된 내용을 제공할 것입니다.

이 책이 나오는 순간은 완벽한 책의 마무리가 아니라 완벽한 책으로의 시작점이라고 생각합니다. 책을 읽는 많은 분의 제언이 그러한 시간을 줄여줄 것으로 생각합니다. 책의 내용에 대한 아이디어를 언제든 전해주시기 바랍니다.

마지막으로 다양한 저자들의 요구를 성실하게 반영해 책을 내는 과정을 즐기게 해주신 윤성사의 정재훈 대표, 그리고 공동저술이라는 지난한 과정을 즐겁게 참여해주신 저자들께 감사드립니다.

2021년 8월

저자 대표 남기범

<차례>

머리말 ····································································· 4

제1편 이민정책의 기초··················································· 13

제1장 이민정책의 개념과 유형············································· 15

제1절 이민정책의 의의················································ 16

1. 이민정책이란 무엇인가? ········································· 16

2. 이민이란 무엇인가? ············································· 20

제2절 이민정책의 유형················································ 20

1. 유형론의 실익(왜 유형으로 분류하는가?)···························· 20

2. 이민정책의 분류················································· 21

3. 이민정책의 이론적 분류: 로위의 분류를 중심으로 ··················· 22

제2장 이민정책의 모형····················································· 35

제1절 모형의 개념과 기능, 유형········································ 36

1. 모형의 개념과 기능 ·············································· 36

2. 모형의 유형····················································· 37

제2절 이민정책의 일반모형············································ 38

1. 제도모형: ‘제도의 결과물’로서 이민정책 ··························· 38

2. 과정모형: ‘과정의 산물’로서 이민정책 ····························· 39

3. 체계모형: ‘정치행정체계의 산출’로서 이민정책······················ 40

제3절 이민정책의 경쟁모형(1): 권력 기준································ 42

1. 집단이론모형: ‘집단 간 영향력의 균형’으로서 이민정책 ·············· 42

2. 엘리트모형: ‘엘리트집단의 선호’로서 이민정책 ····················· 44

제4절 이민정책의 경쟁모형(2): 합리성 기준······························ 46

1. 합리모형: ‘사회적 수익을 극대화한 결정’으로서 이민정책 ············ 47

2. 점증모형: ‘과거의 결정을 약간만 변화시킨 결정’으로서 이민정책······ 48

3. 게임이론모형: ‘경쟁자가 있는 상황에서 수익을 극대화한 결정’으로서 이민정책························································ 50

4. 기타 정책모형··················································· 55

5. 여러 가지 시각에서 얻을 수 있는 시사점: 책의 구성과의 연계·········· 56

제3장 이민정책의 제도: 이민법과 조직···································· 59

제1절 이민정책 관련 법규············································· 60

1. 한국의 이민 관련 법·············································· 60

2. 이민 관련 자치법규·············································· 65

3. 이민법제의 문제점과 개선 방안···································· 66

제2절 이민정책 관련 정부조직·········································· 67

1. 한국의 이민정책 추친체계········································ 67

2. 해외의 이민정책 추진조직········································ 74

3. 해외의 이민정책 추진조직의 시사점································ 81

제3절 지방자치단체의 이민정책 관련 조직 및 거버넌스···················· 84

제4장 이민정책의 체계: 참여자와 환경···································· 94

제1절 이민정책의 참여자와 환경········································ 95

1. 이민정책의 환경 ················································ 95

2. 이민정책의 참여자 ·············································· 95

3. 이민정책의 참여자와 환경 논의의 통합····························· 96

제2절 이민정책의 공식 참여자·········································· 97

1. 국가원수, 행정수반·············································· 97

2. 입법부 ························································· 98

3. 행정기관과 공무원··············································100

4. 사법부 ························································101

제3절 이민정책의 비공식 참여자·유형의 환경· ··························101

1. 이익집단 ······················································101

2. 정당 ··························································103

3. 일반 시민······················································104

4. 외부 전문가와 전문기관·········································104

5. 언론···························································105

제4절 이민정책의 무형의 환경·········································106

1. 국제환경 ······················································106

2. 정치환경·······················································107

3. 경제환경·······················································108

4. 사회문화환경···················································109

5. 자연환경·······················································111

제5절 환경관리전략··················································112

1. 전략적 운용····················································113

2. 독자전략 ······················································115

3. 협동전략 ·····················································117

제2편 이민정책의 과정·················································· 123

제5장 이민정책 과정과 문제 정의 단계· ·································· 125

제1절 정책과정의 개관···············································126

1. 정책과정과 단계에 대한 학자들의 견해 ····························126

2. 의사결정 과정의 사례의 개요: 교차로 사례 ························130

제2절 이민정책의 정책의제 설정·······································137

1. 개인문제로부터 정책의제로 ·····································137

2. 정책의제 설정의 하위 단계 ······································138

3. 의제 설정의 유형 ···············································142

4. 정책의제 설정에 영향을 미치는 요인 ······························144

제3절 이민정책의 문제 정의···········································146

1. 문제의 정의····················································147

2. 문제 인식의 중요성·············································148

3. 문제 인식과 정의의 양상·········································149

4. 정책문제 정의의 과정···········································151

5. 정책문제 정의에 포함되는 내용···································154

6. 정책문제 정의를 바르게 하기 위한 조건····························156

제4절 이민정책의 목표 설정···········································159

1. 정책 목표 설정의 의의···········································159

2. 정책 목표의 종류···············································159

3. 정책 목표의 기능···············································160

4. 정책 목표의 구조와 계층·········································161

5. 바람직한 정책 목표의 요건·······································163

제6장 이민정책의 대안 개발과 분석· ·····································167

제1절 이민정책의 대안 개발 ·········································168

1. 정책 대안의 의의···············································168

2. 정책 대안 개발의 방법과 근원····································168

3. 정책 대안 개발의 방법과 절차····································172

제2절 정책 대안분석과 선택···········································185

1. 정책 예비분석··················································186

2. 정책 대안분석의 기초 개념·······································186

3. 정책 대안의 비용과 결과 분석····································188

4. 현금가치의 환산을 통한 미래 편익의 계산··························190

5. 비용·편익분석의 대안 선택······································194

6. 정책 대안의 선택과 정책집행의 준비······························196

제7장 이민정책의 집행과 평가············································199

제1절 이민정책의 집행···············································200

1. 이민정책 집행의 의의···········································200

2. 이민정책 집행의 중요성·········································201

3. 정책집행의 접근 방법···········································203

4. 정책집행의 유형················································205

5. 이민정책의 집행의 성공에 영향을 미치는 요인 · ····················207

제2절 이민정책의 평가···············································219

1. 이민정책 평가의 의의···········································219

2. 정책평가의 목적················································220

3. 정책평가의 유형················································222

4. 정책평가의 기준················································227

5. 정책평가의 방법 ···············································229

제3편 이민 단계별 이민정책· ··········································· 235

제8장 출입국 관리와 체류관리············································ 237

제1절 외국인의 입국 정책·············································238

1. 외국인 입국····················································238

2. 사증···························································242

3. 입국심사·······················································245

4. 입국 금지와 입국 거부···········································248

5. 지문 및 얼굴에 관한 정보의 제공 등·······························249

제2절 외국인의 출국·················································251

1. 외국인의 출국 절차·············································251

2. 외국인의 출국 제한·············································252

3. 재입국 허가····················································254

4. 강제퇴거 등····················································255

제3절 외국인의 체류관리·············································261

1. 외국인의 체류 및 활동 범위······································261

2. 외국인의 등록··················································262

3. 외국인의 취업과 체류 자격·······································264

4. 체류 자격 부여와 변경···········································268

5. 각종 허가 등···················································269

6. 불법체류 관리··················································271

제4절 나가면서······················································275

제9장 이민과 사회통합··················································· 277

제1절 사회통합정책의 의의···········································278

1. 사회통합정책의 개념············································278

2. 사회통합정책의 법적 근거, 내용, 대상·····························282

제2절 사회통합정책의 이론···········································286

1. 사회통합정책 이론의 유형과 특징·································286

2. 사회통합정책 이론의 변화 경향···································291

제3절 사회통합정책 평가 지표·········································293

1. MIPEX························································294

2. MGI··························································294

3. 상호문화도시지수···············································295

제4절 사회통합정책 및 제도···········································301

1. 표준화된 사회통합 교육정책·····································301

2. 기타 사회통합정책··············································303

제5절 지방자치단체의 사회통합정책···································306

1. 사회통합정책 추진 과정에서 지방자치단체 역할의 중요성············306

2. 지방자치단체 외국인 주민 사회통합정책의 추진 구조················307

3. 지방자치단체 외국인 주민 사회통합정책의 방향····················308

제6절 사회통합정책의 목표와 과제·····································310

1. 사회통합정책의 목표············································310

2. 사회통합정책의 향후 과제·······································312

제4편 대상별 이민정책··················································319

제10장 외국인근로자와 외국인력정책 ··································· 321

제1절 외국인근로자의 범위와 법적 지위· ·······························322

제2절 외국인력정책의 발전 경로 ······································328

1. 단순기능 인력정책의 발전 경로 ··································328

2. 전문인력정책의 발전 경로 ·······································330

제3절 외국인근로자의 정책 및 제도 ···································332

1. 외국인근로자의 정책 유형 및 활용 원칙 ···························332

2. 외국인근로자 관련 제도 ·········································334

제4절 외국인력정책의 전망과 쟁점 ···································346

1. 외국인력정책의 전망과 과제 ·····································346

2. 외국인력정책의 쟁점 ···········································347

제11장 다문화가족정책···················································351

제1절 다문화가족의 개념 및 다문화가족정책의 범주······················352

1. 다문화가족의 개념 ·············································352

2. 다문화가족정책의 범주· ·········································353

제2절 다문화가족정책의 추진체계 ····································356

제3절 다문화가족 지원사업···········································360

1. 국내 정착 분야·················································361

2. 자녀 양육 분야·················································368

3. 가족 간 법률문제 분야···········································371

4. 그 밖의 다문화가족 지원제도 ····································373

제4절 다문화가족정책의 쟁점과 과제 · ·································374

제12장 재외동포정책 ····················································380

제1절 재외동포의 범위와 관련 법령 및 제도·····························381

1. 재외동포의 범위················································381

2. 재외동포 관련 법령 및 제도······································384

제2절 재외동포에 대한 추진체계·······································387

1. 해외 거주 재외동포에 대한 추진체계······························388

2. 국내 거주 외국 국적 동포에 대한 추진체계·························390

제3절 재외동포의 현황···············································392

1. 해외 거주 재외동포 현황·········································392

2. 국내 거주 외국 국적 동포 현황····································393

제4절 재외동포정책의 쟁점과 과제·····································397

제13장 외국인 유학생 및 우수인력 유치정책····························· 408

제1절 한국의 외국인 유학생 유치정책· ·································409

1. 외국인 유학생 정책의 변화·······································409

2. 외국인 유학생 유치·관리역량 인증제 ·····························412

제2절 외국인 유학생 유치 현황········································416

1. 외국인 유학생의 고등교육기관 재학 현황··························416

2. 학위과정 및 전공 계열별 외국인 유학생 현황· ······················420

제3절 외국의 유학생 유치 및 관리정책·································426

1. 미국···························································426

2. 영국···························································427

3. 캐나다·························································429

제4절 외국인 유학생 유치·관리 개선 방안······························431

1. 제도적 개선 방안···············································431

2. 교육기관 차원의 개선 방안·······································434

3. 외국인 유학생의 학업과 생활에 대한 지원··························436

제14장 난민정책·························································· 442

제1절 난민의 정의와 글로벌 환경 변화·································443

1. 난민의 정의····················································443

2. 글로벌 환경 변화···············································445

제2절 해외 주요국의 난민정책·········································452

1. 미국···························································452

2. 캐나다·························································453

3. 독일···························································454

4. 호주···························································455

제3절 한국의 난민정책···············································456

1. 난민 보호의 역사···············································456

2. 난민정책의 변화················································458

3. 난민 보호와 정착 지원 ··········································464

제4절 한국 난민정책의 쟁점과 과제····································469

참고 문헌································································ 475

찾아보기································································· 493

<저자 소개>

남기범 (성결대학교 교수) nkb@sungkyul.ac.kr

연세대학교에서 행정학 박사학위를 받고, 성결대행정학과 교수, 다문화평화연구소장, 사회과학대학장으로 재직 중이다. 한국지방공기업학회장, 한국행정학회 부회장, 한국정책분석평가학회 연구위원장, 한국국정관리학회 편집위원장, 한국이민정책학회 이사를 역임했다. 국무총리실 정부업무평가, 국토부 자체평가, 방통위 자체평가, 지방공기업평가, 출자출연기관 평가 등의 평가위원으로 정책평가

활동에 참여했다. 법무부와 관련해서는 법무연수원에서 정책형성론을 강의하였으며, 법무부 사회통합프로그램 자문위원, 법무부 다문화사회전문가인정과목 심의위원, 법무부 특별승급심사위원 등으로 활동했다. 이민정책과 관련해서 불법체류자, 다문화사회전문가 관련 연구를 수행했다.

정노화 (군포이주와다문화센터 대표) pmf@naver.com

성결대학교에서 이민정책 전공으로 행정학 박사학위를 받았으며, 건양사이버대학에서 겸임교수, 다문화평화연구소 부소장, 한국이민행정학회 회원, 정부연구용역 수행 등으로 연구에 참여하고 있는 이론과 현장을 섭렵하는 활동가이다. 1996년부터 현장에서 외국인근로자들을 지원해 오며 부산외국인근로자선교회 대표, 군포이주와다문화센터 대표를 맡고 있으며, 경찰외국인인권위원, 법무부 외국

인권익증진협의회 지방 및 중앙위원을 역임하는 등으로 시민단체와 정부기관 관계에서 가교역할을 담당하고 있다.

이혜경 (이민정책연구원 연구위원) tgyshk@mju.ac.kr

성결대학교에서 이민정책 전공으로 행정학 박사학위를 받았으며, 이민정책연구원 연구위원, 명지대학교 객원교수로 정책분석론, 조사방법론, 계량분석론을 강의 중이다. 한국행정학회 총무이사, 한국이민정책학회 편집부위원장, 한국지방공기업학회 편집위원, 지자체 외국인주민정책연구 자문위원으로 활동 중이다. 한국연구재단에서 “이민정책 수용도 제고를 위한 사회통합모델의 개발”, “제도화

된 인종주의 고찰과 정책 및 행정의 관리방안” 연구책임을 수행하였다. 주요 연구로 “지역사회통합지표 및 지수연구: 북한이탈주민과 외국인주민을 중심으로”, “경계분석을 활용한 이민정책 구조화에 관한 연구: 이민정책 연구에 나타난 정책문제 및 정책과제를 중심으로” 등이 있다.

강정향 (고려사이버대 이민·다문화현장 실습지도교수) besti00@sookmyung.ac.kr

성결대학교에서 이민정책 전공으로 행정학 박사학위를 받았다. 법무부 이민자 사회통합프로그램, 이민자 조기적응프로그램 강사, 여성가족부 다문화 이해전문교육 강사활동으로 이민통합 관련 교육을 담당하고 있다. 또한 2013~2015년 민간귀화면접관 활동을 겸하면서 한국사회의 이민정책 현장을 이해하게 되었다. 이후 2017년부터 고려사이버대학교에서 다문화사회교육론, 이민정책론 강의와

이민다문화현장 실습지도교수로 활동하면서 다문화사회전문가를 양성하고 있고, 또한 숙명여자대학교 다문화정책전공 객원교수로 다문화사회전문가를 양성하고 있다. 이민정책 관련 여러 정부 부처의 연구용역의 책임연구원 및 공동연구원으로 참여했다.

박미정 (건양사이버대학교 다문화한국어학과) pmj@kycu.ac.kr

성결대학교에서 이민정책 전공으로 행정학 박사학위를 받았다. 현재 건양사이버대학교 다문화한국어학과 교수, 평생교육원장으로 재직 중이며, 주요 관심 분야는 이민정책, 다문화교육, 한국어교육, 사회통합교육 등이다. 최근 논문으로는 “외국인의 안전의식에 영향을 미치는 요인에 관한 연구(2020)”, “경기도 다문화사업 담당 교사의 다문화 감수성이 다문화교육 역량에 미치는 영향에 관한 연구(2018)” 등이 있다.

진현경 (성결대 다문화평화연구소/시흥시-서울대 교육협력사업 디딤돌학교 운영진)tokki9489@naver.com

대구대학교 교육학 석사, 성결대학교 행정학 박사(이민정책전공)로서 군포시다문화가족지원센터 언어발달지도사, 호원초, 군서초 다문화특별반(한국어교육) 외부강사, 성결대다문화평화연구소, (사)한국이주민복지회, 안양시비산사회복지관, 군포이주와다문화센터 사회통합프로그램 강사를 역임하였으며 성결대학교 다문화평화연구소 연구원, 시흥시-서울대 교육협력사업 디딤돌학교 운영진으로 재직하고 있다. 외국국적동포에 대한 정책과 관련한 연구를 진행하고 있다.

손병덕 (사단법인 한국이주민복지회 대표) smyrnaq@hanmail.net

성결대학교에서 이민정책 전공으로 행정학 박사학위를 받았다. 현재 사단법인 한국이주민복지회 대표로 재직 중이며, 한국이민정책학회 연구위원 및 한국이민행정학회 이사를 맡고 있다. 이민정책, 가족이민, 난민, 이민자통합과 인구변동에 따른 지역사회의 역할 등에 관한 연구를 수행하고 있다. 최근 연구로는 “경기도 외국인주민 정책 기본 계획 연구(2020)”, 「출입국관리법」과 「난민법」의 정책 유형별 입법과정(2020) 등이 있다.

손주희 (대구사이버대학교 한국어다문화학과) awesomejh@hanmail.net

성결대학교에서 이민정책 전공으로 행정학 박사학위를 받았다. 성결대학교 다문화연구소 연구원을 거쳐 현재 대구사이버대학교 한국어다문화학과에서 다문화트랙 전공과목을 강의를 하고 있다. 한국이민정책학회 학술위원회 부위원장, 이사를 역임하였고 현재 한국이민행정학회 이사, 수원출입국·외국인청 사회통합위원으로 활동하고 있다. 관심분야는 사회통합, 다문화교육, 한국어교육 등 이민자의 한국사회 적응과 사회통합이다. 주요 연구는 “한국 체류 난민의 사회적응을 위한 정책적 방향 탐색(2018)”, “경기도 외국인 주민정책 기본계획수립연구(공동연구, 2020)” 등이 있다.

김민주 (부산 경성대학교) rain7120@naver.com

계명대학교 사회학 석사(이민다문화사회학 전공)로서, 성결대학교에서 행정학 박사과정에 재학 중이다. 경성대학교와 대구 영남이공대학교, 계명문화대학교에서 강의하고 있다. 계명대학교, 성결대학교에서 사회통합프로그램(KIIP) 강사로 활동하고 있으며, 대구출입국·외국인사무소 사회통합위원 활동을 하고 있다.

이성미 (성결대 다문화평화연구소) remnant4@sungkyul.ac.kr

경희대학교 교육대학원에서 한국어교육학을 전공하고, 성결대학교 행정학과 이민정책 전공 박사과정에 재학중이며, 현재 성결대다문화평화연구소 간사로 재직 중이다. 경희대학교 국제교육원, 성결대학교 언어교육원, 안산시 글로벌다문화센터, 성결대다문화평화연구소 등에서 국내 유학생, 결혼이민자, 외국인근로자들을 대상으로 약 10년간 강의했다.