지역사회 공동육아 활성화 방안

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(1)연구보고 2013-03. 유해미 김문정 Korea Institute of Child Care and Education. 지역사회 공동육아 활성화 방안.

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(3) 머리말. 지역사회 공동육아는 공동체 의식에 기반하여 부모와 지역사회가 함께 아동 을 양육하는 방식으로, 부모들의 다양한 보육 수요에 따른 육아지원 다각화와 개별가족 위주의 고립된 육아로 인한 양육 부담 해소의 주요한 해법으로 제기 된다. 우리나라에서는 2004년「영유아보육법」개정을 통해 협동조합형 공동육아가 ‘부모협동 어린이집’으로 제도화 되었고, 가족품앗이 및 공동육아나눔터 사업이 2010년 시범사업을 거쳐 추진되고 있다. 또한 지난 해「협동조합기본법」제정으 로 협동조합형 공동육아에 대한 관심은 더욱 고조될 것으로 기대되며, 전업주부 들을 위주로 품앗이 육아에 대한 욕구도 지속적으로 표출되고 있다. 따라서 이 연구는 이미 제도화된 부모협동 어린이집의 이용 참여 실태와 요 구, 그리고 정부가 지원하는 품앗이 육아의 현황 및 개선 요구를 파악하였다. 또한 지역 내 주민에 의해 자발적으로 형성되어 온 공동육아 사례를 발굴하여 그 성격과 운영 원리를 규명하였다. 나아가 지역사회 공동육아 활성화의 필요성 및 근거, 제도화의 기본 방향 및 적용 원리, 그리고 공동육아 유형별 활성화 방 안을 제시하였다. 이로써 현행 기관 보육과는 다른 수요를 지닌 부모들의 욕구 에 부응하고 궁극적으로 지역 내 돌봄 공동체 형성을 통한 안전한 육아 환경이 구축되기를 기대해본다. 이 연구와 관련하여 설문조사와 면담에 응해준 부모들과 관련 기관의 담당자 분들, 그리고 유익한 검토 의견을 주신 전문가들에게도 감사를 전한다. 끝으로 본 보고서의 내용은 연구자 개인의 의견이며, 육아정책연구소의 공식적인 입장 이 아님을 밝혀 둔다.. 2013년 8월 육아정책연구소 소장G 檜ࢽ椩ࢽ.

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(5) 차례. 요 약 ························································································································ 1 Ⅰ. 서론 ················································································································· 11 1. 연구의 필요성 및 목적 ················································································· 11 2. 연구 내용 ······································································································ 13 3. 연구 방법 ······································································································ 14 4. 연구의 범위 ··································································································· 24 Ⅱ. 연구의 배경 ····································································································· 26 1. 공동육아의 개념과 유형 ··············································································· 26 2. 공동육아 관련 법규 및 제도 현황 ······························································· 34 3. 외국 사례 및 시사점 ···················································································· 45 Ⅲ. 협동조합형 공동육아의 현황과 수요 ····························································· 55 1. 부모협동 어린이집 설치·운영 현황 ····························································· 55 2. 이용·운영 실태와 수요 ················································································· 63 3. 소결 ··············································································································· 99 Ⅳ. 정부 지원형 품앗이 육아의 현황과 수요 ···················································· 102 1. 가족품앗이 및 공동육아나눔터 사업 추진 현황 ······································· 102 2. 운영 실태와 개선 요구. ··········································································· 104. 3. 이용·참여 실태와 수요 ·············································································· 111 4. 소결 ·············································································································· 124 Ⅴ. 주민 자치형 공동육아의 현황과 수요 ························································ 127 1. 사례 1: 지역거점형 ····················································································· 127 2. 사례 2: 공공기관 연계형 ············································································ 135 3. 사례 3: 독립센터형 ····················································································· 144 4. 소결 ·············································································································· 151 Ⅵ. 정책 제언 ······································································································· 154.

(6) 1. 기본 방향 ····································································································· 154 2. 유형별 활성화 방안 ···················································································· 160 참고문헌 ··············································································································· 172 Abstract ················································································································ 175 부 록 ···················································································································· 177 부록 1. 부모협동 어린이집 이용‧운영 현황 조사 질문지(부모용) ··············· 179 부록 2. 부모협동 어린이집 이용‧운영 현황 조사 질문지(기관용) ··············· 189 부록 3. 부모협동 어린이집 심층면담 질문지(교사용) ··································· 191 부록 4. 부모협동 어린이집 심층면담 질문지(부모용) ··································· 193 부록 5. 건강가정지원센터 육아품앗이 사업 심층면담 질문지(실무진용) ····· 196 부록 6. 건강가정지원센터 육아품앗이 사업 심층면담 질문지(부모용) ········ 198 부록 7. 사례조사 면담 질문지(운영자용) ······················································· 201 부록 8. 사례조사 면담 질문지(부모용) ··························································· 203 부록 9. 설문조사 추가 분석 표 ······································································ 206. TG G T.

(7) 표 차례. 〈표 Ⅰ-3-1〉 조사대상 기관의 일반적 특성 ······················································ 15 〈표 Ⅰ-3-2〉 응답자(부모)의 일반적 특성 ························································· 15 〈표 Ⅰ-3-3〉 설문조사 내용 ················································································ 16 〈표 Ⅰ-3-4〉 심층면담 실시 일정 및 내용 ······················································ 18 〈표 Ⅰ-3-5〉 심층면담 참여자 일반적 특성 1 - 부모협동 어린이집 원장/교사 · 19 〈표 Ⅰ-3-6〉 심층면담 참여자 일반적 특성 2 - 부모협동 어린이집 이용 부모 · 19 〈표 Ⅰ-3-7〉 심층면담 참여자 일반적 특성 3 – 가족품앗이 사업 실무자 ···· 20 〈표 Ⅰ-3-8〉 심층면담 참여자 일반적 특성 4 - 육아품앗이 참여 부모 ·········· 20 〈표 Ⅰ-3-9〉 사례조사 실시 일정 및 내용 ························································ 22 〈표 Ⅰ-3-10〉사례조사 참여자 일반적 특성 1 – 운영자 ································· 22 〈표 Ⅰ-3-11〉사례조사 참여자 일반적 특성 2 - 부모 ······································· 22 〈표 Ⅰ-3-12〉간담회/자문회의 일정 및 실시 내용 ··········································· 24 〈표 Ⅱ-2-1〉 가족품앗이 및 공동육아나눔터 사업 추진 경과 ·························· 39 〈표 Ⅱ-3-1〉 일본 다쓰노코 공동보육소의 보육 일과 ······································ 49 〈표 Ⅲ-1-1〉 어린이집 설치‧운영 현황(2005-2012) ············································ 56 〈표 Ⅲ-1-2〉 어린이집 보육 아동 수(현원)(2005-2012) ······································ 56 〈표 Ⅲ-1-3〉 어린이집 유형별 일반 현황(2012) ················································ 57 〈표 Ⅲ-1-4〉 (사)공동육아와 공동체교육 소속 부모협동 어린이집 현황(2005-2013) 60 〈표 Ⅲ-2-1〉 부모협동 어린이집 이용 계기 ······················································ 64 〈표 Ⅲ-2-2〉 부모협동 어린이집 이용 동기(1순위) ··········································· 65 〈표 Ⅲ-2-3〉 부모협동 어린이집 이용 동기(1,2순위 종합) ······························· 65 〈표 Ⅲ-2-4〉 기관 변경 사유 ·············································································· 67 〈표 Ⅲ-2-5〉 이전 기관 대비 현재 어린이집의 가장 큰 특징 ·························· 68 〈표 Ⅲ-2-6〉 공공교 소속 여부에 따른 이전 기관 대비 현재 어린이집 만족도 ·· 69 〈표 Ⅲ-2-7〉 어린이집 최초 이용 시기 ······························································ 70 〈표 Ⅲ-2-8〉 어린이집 총 이용 기간 ································································· 71 〈표 Ⅲ-2-9〉 어린이집 이용 총 자녀 수 ···························································· 71 〈표 Ⅲ-2-10〉어린이집 1일(평일) 평균 총 이용 시간 ······································· 72.

(8) 〈표 Ⅲ-2-11〉평일 어린이집 등원 시각 ······························································ 73 〈표 Ⅲ-2-12〉평일 어린이집 하원 시각 ······························································ 73 〈표 Ⅲ-2-13〉이용기관 특성에 따른 어린이집 시설‧환경 관련 항목별 만족도 75 〈표 Ⅲ-2-14〉이용기관 특성에 따른 어린이집 운영 관련 항목별 만족도 ········ 77 〈표 Ⅲ-2-15〉이용기관 특성에 따른 항목별 어린이집 이용 효과 ···················· 79 〈표 Ⅲ-2-16〉협동조합 가입 권유 여부 ······························································ 79 〈표 Ⅲ-2-17〉협동조합 가입 권유 시 강조 내용 ··············································· 80 〈표 Ⅲ-2-18〉협동조합형 어립이집 운영 기구별 운영 여부 ····························· 81 〈표 Ⅲ-2-19〉이용 부모의 이사회 참여 정도 ····················································· 83 〈표 Ⅲ-2-20〉이용 부모의 교사-부모 정기 모임 참여 정도 ······························ 83 〈표 Ⅲ-2-21〉이용 부모의 정기 총회 참여 정도 ··············································· 84 〈표 Ⅲ-2-22〉이용 부모의 신입 조합원 교육 참여 정도 ··································· 85 〈표 Ⅲ-2-23〉운영 모임별 참여 만족도 ······························································ 86 〈표 Ⅲ-2-24〉현재 어린이집의 운영상 애로사항 ··············································· 90 〈표 Ⅲ-2-25〉최근 1년간 조합 탈퇴 욕구 경험 여부 ········································ 91 〈표 Ⅲ-2-26〉최근 1년간 조합 탈퇴 욕구 발생 사유 ········································ 91 〈표 Ⅲ-2-27〉어린이집 운영상 해결 과제(1순위) ··············································· 92 〈표 Ⅲ-2-28〉어린이집 운영상 해결 과제(1, 2순위 종합) ································· 93 〈표 Ⅲ-2-29〉부모협동 어린이집이 견지해야 할 핵심사항(1순위) ···················· 94 〈표 Ⅲ-2-30〉협동조합형 어린이집 운영 사항별 중요도 ································· 96 〈표 Ⅲ-2-31〉향후 바람직한 조합 구성 방식 ····················································· 97 〈표 Ⅲ-2-32〉공동육아 어린이집 설치 시 희망 운영 방식 ······························· 97 〈표 Ⅲ-2-33〉협동조합형 어린이집 확산을 위한 정책 과제(1순위) ·················· 98 〈표 Ⅳ-1-1〉 가족품앗이 및 공동육아나눔터 운영·이용 현황(2010-2012) ······ 103 〈표 Ⅳ-1-2〉 센터별 가족품앗이 및 공동육아나눔터 설치‧운영 현황(2012) ·· 103 〈표 Ⅳ-3-1〉 공동육아나눔터 이용 경로 ·························································· 112 〈표 Ⅳ-3-2〉 가족품앗이 이용자 특성(2012) ···················································· 114 〈표 Ⅳ-3-3〉 공동육아나눔터 이용 자녀 연령(2011-2012) ······························· 115 〈표 Ⅳ-3-4〉 공동육아나눔터 이용 시간(2011-2012) ········································ 115 〈표 Ⅳ-3-5〉 가족품앗이 및 공동육아나눔터 이용 만족도 ····························· 117 〈표 Ⅳ-3-6〉 가족품앗이 및 공동육아나눔터 활동 관련 의향 ························ 120. TG G T.

(9) 〈표 Ⅳ-3-7〉가족품앗이 활동에 대한 지원 요구 ············································· 121 〈표 Ⅳ-3-8〉공동육아나눔터 관련 요구 ···························································· 122 〈표 V-1-1〉사례 1: 짱뚱이 도서관 운영 개요 ················································· 127 〈표 V-1-2〉짱End이 도서관 육아품앗이 활동 내용 ········································ 131 〈표 V-2-1〉사례 2: 행복한 아이들 운영 개요 ················································· 135 〈표 V-2-2〉행복한 아이들 활동 내용 ······························································· 139 〈표 V-3-1〉사례 3: 한빛마을센터 운영 개요 ··················································· 144 〈표 V-3-2〉한빛마을센터 세부 사업 내용 ······················································· 148 〈표 Ⅵ-2-1〉육아지원 차원의 공동육아 유형별 특성 ······································ 160. TG G T.

(10) 그림 차례 〔그림 Ⅱ-2-1〕가족품앗이 사업과 공동육아나눔터 사업 체계 ·························· 39 〔그림 Ⅱ-2-2〕가족품앗이 및 공동육아나눔터 사업 개요 ································· 42 〔그림 Ⅱ-2-3〕서울시 마을공동체 돌봄 지원 사업 진행 절차. ······················ 43. 〔그림 Ⅲ-1-1〕지역 규모별 부모협동 어린이집 분포(2012) ······························ 57 〔그림 Ⅲ-1-2〕17개 시‧도별 부모협동 어린이집 분포(2012) ····························· 58 〔그림 Ⅲ-1-3〕기관 규모별 어린이집 분포 비교(2012) ······································ 59 〔그림 Ⅲ-1-4〕전체 부모협동 어린이집과 (사)공동육아와 공동체교육 소속 어린 이집 설치 현황(2005-2012) ·························································· 60 〔그림 Ⅲ-1-5〕전체 부모협동 어린이집과 (사)공동육아와 공동체교육 소속 어린 이집 이용 원아 수 현황(2005-2012) ············································ 61 〔그림 Ⅲ-1-6〕(사)공동육아와 공동체교육 소속 어린이집과 그 외 부모협동 어 린이집 시‧도별 분포(2012, 2013) ··············································· 62 〔그림 Ⅲ-1-7〕(사)공동육아와 공동체교육 소속 어린이집과 그 외 부모협동 어 린이집 규모별 분포(2012, 2013) ················································· 63 〔그림 Ⅲ-2-1〕타 기관 이용 경험 여부 및 과거 이용기관 유형 ······················ 66 〔그림 Ⅲ-2-2〕이전 기관 대비 현재 어린이집 만족도 ······································ 68 〔그림 Ⅲ-2-3〕어린이집 시설‧환경 관련 항목별 만족도 ··································· 75 〔그림 Ⅲ-2-4〕어린이집 운영 관련 항목별 만족도 ············································ 76 〔그림 Ⅲ-2-5〕어린이집 이용에 따른 효과 인식 ············································· 78 〔그림 Ⅲ-2-6〕운영 모임별 부모 참여 정도 ······················································ 82 〔그림 Ⅲ-2-7〕협동조합형 어린이집 운영 시 중요도 ········································ 95 〔그림 V-1-1〕짱뚱이 도서관 내부 전경 1 ······················································· 128 〔그림 V-1-2〕짱뚱이 도서관 내부 전경 2 ······················································· 128 〔그림 V-2-1〕행복한 아이들 내부 전경 1 ······················································· 136 〔그림 V-2-2〕행복한 아이들 내부 전경 2 ······················································· 136 〔그림 V-2-3〕행복한 아이들 활동 내용: 실내 품앗이 수업/야외 수업 ········· 139 〔그림 V-3-1〕한빛마을센터 내부 전경 1 ························································· 145 〔그림 V-3-2〕한빛마을센터 내부 전경 2 ························································· 145 〔그림 V-3-3〕한빛마을센터 조직도 ·································································· 147.

(11) 부록 표 차례 〈부록 표 Ⅲ-2-1〉 과거 이용 기관 유형 ·························································· 206 〈부록 표 Ⅲ-2-2〉 이전 기관 대비 현재 어린이집 만족도 ····························· 206 〈부록 표 Ⅲ-2-3〉 이사회 참여 만족도 ···························································· 207 〈부록 표 Ⅲ-2-4〉 교사-부모 정기모임 참여 만족도 ······································· 207 〈부록 표 Ⅲ-2-5〉 정기총회 참여 만족도 ························································ 208 〈부록 표 Ⅲ-2-6〉 신입 조합원(부모) 교육 참여 만족도 ································ 208 〈부록 표 Ⅲ-2-7〉 어린이집 시설‧환경 관련 만족도 - 급식 및 간식 ············ 209 〈부록 표 Ⅲ-2-8〉 어린이집 시설‧환경 관련 만족도 - 위생 ·························· 209 〈부록 표 Ⅲ-2-9〉 어린이집 시설‧환경 관련 만족도 - 영유아 대 교사 비율 · 210 〈부록 표 Ⅲ-2-10〉어린이집 시설‧환경 관련 만족도 - 안전 ·························· 210 〈부록 표 Ⅲ-2-11〉어린이집 시설‧환경 관련 만족도 - 실내 환경 ················· 210 〈부록 표 Ⅲ-2-12〉어린이집 시설‧환경 관련 만족도 - 실외 환경 ················· 211 〈부록 표 Ⅲ-2-13〉어린이집 시설‧환경 관련 만족도 - 교구 교재 ················· 211 〈부록 표 Ⅲ-2-14〉어린이집 시설‧환경 관련 만족도 - 주변 환경 ················· 212 〈부록 표 Ⅲ-2-15〉어린이집 운영 관련 만족도 - 보육 시간 ·························· 212 〈부록 표 Ⅲ-2-16〉어린이집 운영 관련 만족도 - 보육·교육 프로그램 ·········· 213 〈부록 표 Ⅲ-2-17〉어린이집 운영 관련 만족도 - 교사의 전문성 ··················· 213 〈부록 표 Ⅲ-2-18〉어린이집 운영 관련 만족도 - 교사와의 소통 ··················· 214 〈부록 표 Ⅲ-2-19〉어린이집 운영 관련 만족도 - 일과 운영 ·························· 214 〈부록 표 Ⅲ-2-20〉어린이집 운영 관련 만족도 - 부모 참여 ·························· 215 〈부록 표 Ⅲ-2-21〉어린이집 운영 관련 만족도 - 다른 부모와의 소통 ·········· 215 〈부록 표 Ⅲ-2-22〉어린이집 운영 관련 만족도 - 보육료 ································ 216 〈부록 표 Ⅲ-2-23〉어린이집 운영 관련 만족도 - 출자금 수준 ······················· 216 〈부록 표 Ⅲ-2-24〉어린이집 운영 관련 만족도 - 지역사회와의 연계 ············ 217 〈부록 표 Ⅲ-2-25〉부모협동 어린이집 이용에 따른 변화 - 좋은 이웃이 생김 217 〈부록 표 Ⅲ-2-26〉부모협동 어린이집 이용에 따른 변화 - 육아 참여도 증가 ·· 218 〈부록 표 Ⅲ-2-27〉부모협동 어린이집 이용에 따른 변화 - 자기 성장에 도움 ·· 218 〈부록 표 Ⅲ-2-28〉부모협동 어린이집 이용에 따른 변화 - 육아 지식 확대 ·· 219 〈부록 표 Ⅲ-2-29〉부모협동 어린이집 이용에 따른 변화 - 이웃에 대한 관심.

(12) 생김 ···················································································· 219 〈부록 표 Ⅲ-2-30〉부모협동 어린이집 이용에 따른 변화 - 타인과의 소통 능력 향상 ····················································································· 220 〈부록 표 Ⅲ-2-31〉부모협동 어린이집 이용에 따른 변화 - 양성평등 의식 함양·· 220 〈부록 표 Ⅲ-2-32〉협동조합형 어린이집 운영 시 중요도 - 교사의 전문성 ··· 221 〈부록 표 Ⅲ-2-33〉협동조합형 어린이집 운영 시 중요도 - 부모 참여 의식과 활동 ···················································································· 221 〈부록 표 Ⅲ-2-34〉협동조합형 어린이집 운영 시 중요도 - 재정 안정 ·········· 222 〈부록 표 Ⅲ-2-35〉협동조합형 어린이집 운영 시 중요도 - 공동육아 철학과 이 념 공유 ··············································································· 222 〈부록 표 Ⅲ-2-36〉협동조합형 어린이집 운영 시 중요도 - 교육 내용 ·········· 223 〈부록 표 Ⅲ-2-37〉협동조합형 어린이집 운영 시 중요도 - 교사 충원 ·········· 223 〈부록 표 Ⅲ-2-38〉협동조합형 어린이집 운영 시 중요도 - 영구 터전 ·········· 224 〈부록 표 Ⅲ-2-39〉협동조합형 어린이집 운영 시 중요도 - 적정 보육 비용 ··· 224 〈부록 표 Ⅲ-2-40〉협동조합형 어린이집 운영 시 중요도 - 운영진의 역할 ··· 225 〈부록 표 Ⅲ-2-41〉협동조합형 어린이집 운영 시 중요도 - 리더십 육성 ······ 225 〈부록 표 Ⅲ-2-42〉협동조합형 어린이집 운영 시 중요도 - 원아 충원 ·········· 226. TG G T.

(13) 요 약. XUG ⚥ᷩ ᆉUG ⭹ድⳡG 㫍Ⱍ⚺G ↘G ′ⶊ □ 기관 보육 위주의 육아지원정책 하에서 지역 돌봄 공동체를 추구하고, 부모 들의 다양한 보육 수요에 부합하기 위한 육아지원의 다각화 차원에서 공동 육아 활성화의 필요성이 제기됨. □ 그동안 2004년「영유아보육법」개정으로 협동조합형 어린이집이 법적 근거 를 마련하였고, 2010년 이후 여성가족부의 가족품앗이 및 공동육아나눔터 사업이 추진됨. □ 그러나 협동조합형 어린이집은 설치 시 과중한 비용 부담 등 운영상 어려움 을 겪고 있으며, 육아품앗이 사업은 사업 성과가 불확실하고 기관 역할 등이 모호하여 체계적인 지원이 이루어지지 못한다고 지적됨. □ 이에 따라 본 연구는 기존에 제도화된 공동육아의 참여 현황 및 수요, 그리 고 주민이 자발적으로 형성하여 운영 중인 공동육아 사례를 발굴하여 공동 육아 활성화 방안을 모색함.. ᘡUG ⭹ድG ᘽⰲG ↘G ↲∞G □ 주요 연구 내용은 다음과 같음. ◦ 공동육아의 출현 배경과 개념 정의, 그리고 핵심 운영 원리를 파악하고, 현행 관련 법규와 제도를 검토함. ◦ 외국의 공동육아의 현황과 효과에 관한 논의를 검토하여 공동육아의 운영 원리와 활성화의 필요성을 도출함. ◦ 협동조합형 공동육아의 운영 및 이용 현황과 지원 요구, 그리고 여성가족 부의 육아품앗이 및 공동육아나눔터 사업의 운영 및 참여 현황과 개선 요 구를 파악함..