해외출장 결과 보고서

보고자 : 김영옥 (노동통계연구부 연구위원)

1. 회의(또는 연수과정) 명 : 성인지 예산에 대한 아태지역 훈련가 훈련웍삽 (Regional Workshop on Gender Responsive Budgeting)

2. 회의(또는 연수과정) 배경 및 목적

가. 본 웍삽의 주 목적은 성주류화의 주요도구인 “성인지 예산”을 더욱 확산하기 위해, 이를 충분히 이해하여 국내에서 다른 사람을 훈련시킬 수 있는 훈련가를 육성하려는 것임. 

나. UNDP본부는 “성인지 예산”의 잠재력에 주목하고 있으며, 이의 발전과 확산에 많은 노력을 기울이고 있음. Japan Women's Fund의 도움을 받아 2003년에 모스크바에서 1차 훈련가 훈련을 실시하였고, 이번 웍삽은 2차 훈련가 훈련인 셈.

다. 훈련가는 Debbie Budlender임. Debbie는 남아공 출신으로 1990년대 남아공의 성인지 예산시도에 참여한 경험을 갖고 있음. GRB의 선도적 인물로서 많은 저서가 있고 훈련가 훈련을 인도하였으며, 아시아와 아프리카등 20여개국의 GRB에 참여함. 

라. 본 훈련은 훈련가 훈련으로서, 컨퍼런스가 아닌 웍삽의 형태로 진행시킴. 젠더분석이나 기술적 방법 등에 대해서는 제한적으로 다룸. 왜냐하면 대부분의 참가자들이 경력자들로서 이미 상당부분 알고 있고, 또 부족한 부분은 저서 등을 통해 배울 수 있기 때문임.

마. GRB를 가장 빨리 배우는 방법은 직접 해보는 것임. 따라서 발표는 가급적 짧게 하고, 실습과 집단작업을 주로 함. 훈련매뉴얼은 한달이내 완성되어 송부될 것이며 참고자료는 리스트로 배포함. 

-  GRB는 매우 다양한 형태로 진행되고 있음. 

◦주체의 다양성(지위, 학력, 소속 등) 

◦다양한 목적 

◦다양한 전략

◦정부(중앙, 기초 등) 수준의 다양성

◦국가별 다양한 상황

◦단독 사업으로 진행되기도 하지만, 큰 사업의 하위부분으로 진행되기도

-  따라서 요리재료가 다양하며, 하나의 요리법이 있는 것이 아님.

-  집단작업을 중시하는 이유: GRB는 다양한 지식과 기술을 필요로 함. 연구, 경제학, 정책학, 성인교육, 재료생산, 홍보활동 등. 누구도 이 모든 기술을 갖고 있지 않음. 집단작업은 서로에서 배울 수 있는 기회를 주고, 특히 참가자의 배경이 다양할 때 잘 작동할 수 있음. 

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3. 참가자 규모

-  아프가니스탄, 방글라데시, 인도, 인도네지아, 일본, 몽고, 네팔, 파키스탄, 파프아뉴기니, 필리핀, 한국, 사모아, 솔로몬군도, 스리랑카, 베트남, UNDP 본부 등 아태지역 15개국에서 총 32명 참가

4. 일정 : 2004년 7월 12- 15일

	일자	주제/내용
첫째날 (7.12, 월)	09:00- 10:00	개회식
	10:00- 13:00	전체프로그램 소개, 아태지역에서 왜 성인지예산(GRB)이 중요한가, 각각의 성인지예산(GRB) 시도 소개
	14:00- 17:00	GRB란?, 각국의 GRB 사례
둘째날 (7.13, 화)	09:00- 13:00	예산과정, 문제- 결과- 해결
	14:00- 17:30	예산읽기, 성과주의 예산(group work)
셋째날 (7.14, 수)	09:00- 13:00	성과주의 예산(집단사례 보고, 각국 형편에 맞추기), 예산편성지침 및 시행규칙
	14:00- 17:30	역할극(노동부장관 설득하기), 무급노동과 예산
넷째날 (7.15, 목)	09:00- 13:00	설득 및 홍보전략, 웍삽설계
	14:00- 16:30	정보나누기(UNDP/BRIDGE CD- ROM), 앞으로 무엇을 할 것인가, 정리 및 결론

5. 주요내용

가. 성인지예산의 기본 개념들

나. 각국의 GRB 사례분석

다. 예산편성 및 집행과정

-  “말레이시아 8차 계획(2001- 2005년)” 예산지침의 성인지적 수정 연습

라. “원인- 결과- 해결방안”연습

-  문제해결을 위해 예산투여하는데, 제한된 예산범위 속에서 우선순위 부여가 매우 중요. 

-  근본원인을 찾는 것도 중요.

-  “가정폭력” 문제에 대한 전체연습이후, ①여성의 소득이 평균적으로 남성보다 적다 ②공학을 전공하는 여학생의 비율이 낮다 ③많은 여성의 취업경력은 중

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단된다 ④인신매매가 심해진다 등의 4문제에 대해 각각 집단으로 원인- 결과- 해결방안을 찾고 발표하는 연습을 함.

마. 각국의 예산서 분석

바. 성과주의 예산 

-  일반예산사업을 대상으로 성과주의 예산분석을 실습함. 집단별로 논의하여 다음에 대한 분석을 하여 보고토록 함.

◦부처명

◦사업명

◦젠더이슈 

◦활동

◦예산배정액

◦산출(outputs): 직업훈련의 경우 성별 피훈련자수

◦지표(indicators): 직업훈련 종류별 성별 피훈련자수, 취업성공률, 만족도 

등 gender 차이를 최대한 함축한 것이어야 함

-  활동에 따라 산출과 지표가 달라짐. 산출은 추상적이어도 되지만 지표는 구체적이어야 함. 산출은 활동과 밀접히 관련되며, 활동 다음에 적시함.

-  Sharp(2003)의 “Budgeting for equity" 참조

바. 무급노동과 예산 

-  무급노동 소개, 보호경제, 무급노동과 GDP, 정책과 예산속의 무급노동

-  네덜런드 사례: 임금노동과 가족책임을 결합하는 정책과 예산

-  무급보호노동에 대한 정책 및 옹호활동(advocacy)의 사례 

-  community care에 대한 정부와 시민사회의 시각

사. GRB와 새천년발전목표

아. 협상과 옹호활동의 기술 습득 

-  재무장관 설득하기: 여성단체, 재무장관, 공여국가, EU, IMF, WB, 여성부관리, 의원 등으로 역할을 분담하여 ‘젠더이슈와 예산배정 요구’ 역할극을 수행함.

-  강력한 통계 사용, back data 준비, 정중한 접근 필요, 언론존재시 재무장관의 행동이 달라질 수 있음.

-  ‘설득하기’ 실습: 참가자 전원은 정부관리, 의회, 풀뿌리 여성단체, 일반대중, 언론 중 한개를 선택하여 짧고 간결한(그러나 주목을 받을 수 있도록 흥미롭게 제시된) 설득문을 작성‧발표한 후 피드백을 받음.

자. 웍삽 설계하기 

-  집단활동 수행: 고위관리들, 부처의 예산담당자들, 여성단체 중 한 집단을 대

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상으로 웍삽을 설계하여 발표함.

-  웍삽개최 목적, 시간배정, 각 세션의 주제와 방법 등을 담도록

-  여성단체를 대상으로 하는 경우 강의위주로 하기 보다는 “여성들은 매일매일 예산을 짠다”는 로고를 활용하여 그들의 경험을 끌어내고 실습해보도록 함.

-  웍삽은 action oriented로 이끌고, 웍삽이 끝나면 참가자들은 결론을 알고, GRB 옹호활동의 역할을 부여받을 수 있어야 함.

6. 참가자 역할

가. 주최측은 본 웍삽을 conference가 아니라 WORKshop이라고 규정하였고, 4일 내내 WORKshop으로 진행하였기 때문에 참가자들의 역할은 최대화될 수밖에 없음.

나. 처음 오리엔테이션 시간부터 각 참가자들의 “현재 가장 절실한 개인 또는 가족의 우선순위 사업”을 발표하도록 한데서 알 수 있듯이 참가자들은 이번 훈련가 훈련의 수동적인 훈련생이 아니라 하나의 설계자 역할을 수행함. 

다. 매 새션마다 참가자들은 개별 또는 집단실습의 결과를 발표하고 피드백을 받음. 

7. 평가 및 제언

가. 본 웍삽은 GRB를 이해하고 분석하며 나아가 효과적으로 옹호할 수 있는 기법을 연마시키는데 목적이 있음. 이 목적을 달성하도록 웍삽이 전체적으로 매우 결합력 높게 설계되었으며, 참가자들은 큰 도움을 받았음.

나. Conference가 아니라 WORKshop을 지향한 만큼, 각국 참가자들이 웍삽의 주체로서 합류하도록 매 새션마다 개별 및 집단활동(일부는 하룻밤 숙제로 주어짐) 및 발표가 있었음. 따라서 본 웍삽은 여타 훈련웍삽에 비해 훈련집중도가 매우 높았고, 그만큼 소득도 컸다고 평가됨. 

다. 이번 'GRB 훈련가 훈련웍삽'은 UNDP의 기획과 일본여성기금의 재정지원의 산물임. 필리핀의 여성지위위원회(NCRFW), Asian Institute of Management(AIM)은 실무진행을 맡음. UNDP 본부는 웍삽 내내 일본의 재정지원에 대한 감사를 표시하였음. 우리나라도 이제는 공여국으로서 ODA를 납부해야 하는 의무국가가 된 만큼, 어떻게 개도국지원금을 지출할 것인가를 고민할 때임. 지원효과는 지원금액의 크기 못지않게 지원내용에 따라 판이하게 달라질 것임. 따라서 이번 웍삽의 사례처럼 상대적으로 참신하고 새로운 주제를 잡아 사업을 기획 및 실시한다면. 개도국 지원사업 및 아태지역협력사업 등의 성과가 배가될 수 있을 것으로 기대함.

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라. 강사로서 4일 내내 웍삽을 이끈 Debbie Budlender는 명성에 걸맞게, 참가자들의 집중도와 참여를 이끌어냄. 10년 넘게 이 분야의 연구자이자 활동가로서 활약한 경험이 고스란히 담겨짐. 향후 우리나라가 이와 유사한 웍삽, 국제세미나 등을 개최할 때, 초청 및 활용대상으로 추천함.

8. 수집자료 목록 

가. UNDP‧BRIDGE, “Gender & Budgets: Cutting Edge Pack" CD- ROM

나. UNDP, "Bridging the gap: Knowledge products on Governance" CD- ROM

다. Jim Shultz(2002), "Using Public Budgets As a Tool to Advance Economic, Social and Cultural Rights" 

라. Ministry of Women's Empowerment, Technical Guideline for Implementation of Presidential Instruction Number 9 Year 2000 on Gender Mainstreaming in National Development, Indonesia

마. DBM, NEDA, NCRFW, Joint Circular No. 2004- 1, Philippine

바. NCRFW, Moving Forward with GAD, Philippine

사. 본 GRB 훈련의 최종 매뉴얼 (한달내 완성되어 송부될 예정)

9. 본인 발표자료 

Country Case Study -  the Republic of Korea

Alternative budget movement has been actively pursued by some civic organizations in Korea since 1999. The movement consists of two main efforts: budget monitoring and increasing social welfare budget. "Taxpayers Rally 2001" was held, where 17 government projects in 7 areas were denounced as the worst cases of wasted budget. Declaration of Taxpayers was announced, calling for enactment of Act on Legal Action by Taxpayers, improvement of public revelation system, adoption of double- entry bookkeeping system, and strengthening the penalty for those responsible for wasting taxpayers' money. Also a petition on the budget for social welfare was submitted to the National Assembly in 2000 under the name of citizens' groups, proposing 33 core projects and stating the exact amount of budget to be allocated to each project and the basis for reaching the amount. 

Around the same time women's groups started gender responsive budget. Women United, an umbrella women's organisation, announced "A Proposal for the Women- related Budget of the subsequent year" in 1998. WomenLink carried out a gender budget analysis of seven local governments during 2001. Academia has also conducted gender- responsive 

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analyses on the government's budget. One result of these analyses yielded that the budget of the central government for gender policies/projects in 2001 was 0.28% of the total general accounting budget. This implies that budget for women's policies and programs is virtually non- existent. Another point at issue is whether all projects that are funded by women- related budget can be classified as women's policy projects. A closer look at the projects and programs reveals that although they are directed toward women, some of the programs advocate traditional gender roles or even reinforce them. 

In October 2002, the Women's Caucus of the National Assembly had its 4th plenary meeting and adopted a resolution that calls for gender sensitive budgeting and data submission. Among the key demands of this resolution are: the process of budgeting and making budgeting guidelines should accommodate gender sensitive perspective; administrative policy speech on budget should make clear the basis and details of the women's policy budget; data on the current status and details of women's policy budget should be submitted to the Ministry of Gender Equality(MOGE), the Women's Caucus and the Special Committee for Budget Settlement. Now MOGE has developing a GRB guideline which helps line ministries to be more gender responsive. 

While Korea is no exception and suffers from a lack of analytical methodologies and gender- dissagregated statistics, GRB has gained recognition as a powerful tool for gender mainstreaming and expanded its application. For example, Women Farmers Association and Differently Abled Women United proposed more budget allocation for women farmers and women disabled respectively in 2003 and 2004, based on gender budget analysis.

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