🚨 Pre-Employment Screening System

Today Korean Social News for Beginners | 2025.12.11

0️⃣ Public Sector Non-Regular Worker Management and System Effectiveness Issues

📌 7 Years After Pre-Employment Screening System, Public Sector Non-Regular Workers Actually Increase

💬 The pre-employment screening system was introduced to reduce non-regular worker hiring in the public sector, but it has failed to achieve its goals after 7 years. While the number of non-regular workers decreased right after the system started in 2018, it began increasing again and is now higher than before the system was introduced. Non-regular workers have grown significantly in local governments and educational institutions, leading to criticism that the system operates only on paper. Experts point out structural problems - the screening is done mainly by finance departments focused only on reducing labor costs. The Ministry of Employment and Labor admitted the system's poor management and announced it will directly inspect and guide public institutions starting in 2026.

💡 Summary

• The pre-employment screening system reviews the necessity and validity before public institutions hire non-regular workers.
• After 7 years, non-regular workers have actually increased, raising questions about system effectiveness.
• The Ministry of Labor plans to strengthen on-site inspections of public institutions and improve the system next year.

1️⃣ Definition

Pre-employment screening system means a system that requires public institutions to have their necessity, employment period, and number of workers reviewed before hiring non-regular workers (fixed-term, part-time, or dispatched workers). Its official name is "Public Sector Non-Regular Worker Hiring Pre-Screening System," introduced by the Ministry of Employment and Labor through public sector non-regular worker management guidelines in 2018.

The core principle is that permanent and continuous work should be filled by regular workers, and if non-regular workers must be used unavoidably, clear reasons must be provided. Each institution must have its non-regular worker hiring plan reviewed by human resources and finance departments, and hiring above a certain scale must be approved by higher authorities or supervising ministries.

💡 Why is this important?

• The public sector should be a model for the private sector, so employment stability is important.
• Operating permanent and continuous work with non-regular workers can violate workers' rights.
• Ensuring system effectiveness directly affects public service quality and job stability.
• Uncontrolled expansion of non-regular workers can deepen labor market polarization.

2️⃣ Current Status and Problems of the Pre-Employment Screening System

📕 Background and Early Results

• It was promoted together with the 2017 regular worker conversion policy. Main background:

  • The Moon Jae-in administration promised in 2017 to convert 200,000 non-regular workers in the public sector to regular positions.
  • Complementary measures were needed to prevent new non-regular workers from increasing again after conversion.
  • The goal was to improve the problem of public institutions hiring non-regular workers routinely without checking necessity.
  • Public sector non-regular worker management guidelines were established in 2018 and the pre-employment screening system was fully introduced.

• Initial results showed some effectiveness. Main achievements:

  • The number of public sector non-regular workers decreased right after the system started in 2018.
  • Institutions strengthened inspections of permanent and continuous work and promoted regular worker conversion.
  • Awareness spread about clarifying the necessity and period of non-regular worker hiring.
  • It contributed somewhat to reducing random short-term contract abuse.

📕 Re-increase of Non-Regular Workers and System Limitations

• Non-regular workers began increasing again after 2020. Current situation:

  • Public sector non-regular workers returned to an increasing trend from 2021.
  • Non-regular workers grew significantly especially in local governments and educational institutions (universities, elementary, middle, and high schools).
  • As of 2025, the number of non-regular workers is actually higher than before the screening system was introduced.
  • Not only fixed-term workers but also indirect employment forms like outsourcing and dispatching increased.

• The system operates only formally. Main problems:

  • Screening subjects are limited to finance departments, so decisions are made only from a labor cost reduction perspective.
  • Finance staff lacking human resources expertise cannot properly consider working conditions or job characteristics when screening.
  • Screening results remain at recommendation level with no enforcement power and poor follow-up management.
  • Screening standards and procedures differ by institution, lacking consistency and transparency.

📕 Rapid Increase of Non-Regular Workers in Local Governments and Educational Institutions

• Non-regular workers in local governments have greatly increased. Main causes:

  • Short-term labor demand increased as new projects in welfare, childcare, and environment fields grew.
  • Local government finances made it difficult to hire regular workers, so they were replaced with non-regular workers.
  • The pre-employment screening system was not effectively managed down to local governments and was left to their autonomy.
  • The problem of long-term non-regular workers deepened as fixed-term workers were renewed every 2 years.

• Non-regular workers in educational institutions continue increasing. Main problems:

  • Most administrative staff, researchers, and lecturers at universities are operated as fixed-term or part-time instructors.
  • Childcare teachers, special education assistants, and administrative support staff in elementary, middle, and high schools are non-regular workers.
  • Regular worker conversion has been delayed due to education office budget shortages and staff limits.
  • Employment instability is extreme as contracts are often suspended during vacation periods.

💡 Main Problems of the Pre-Employment Screening System

1. Formal operation: Screening limited to finance departments results in labor cost-focused decisions
2. Lack of effectiveness: No enforcement power at recommendation level and poor follow-up management
3. Regional gaps: Non-regular workers surge in local governments and educational institutions, system blind spots
4. Indirect employment increase: System application avoided by circumventing through outsourcing and dispatching
5. Unclear standards: Different screening standards by institution result in low consistency and transparency

3️⃣ System Improvement Plans and Future Tasks

✅ Ministry of Employment and Labor's Strengthening Measures

• On-site inspections will be strengthened from 2026. Main plans:

  • The Ministry of Labor will directly visit and inspect public institution non-regular worker operations.
  • Institutions operating permanent and continuous work with non-regular workers will be required to make corrections.
  • Regular worker conversion targets will be re-inspected and sanctions strengthened for non-compliant institutions.
  • Inspection scope will expand to local governments and educational institutions to eliminate blind spots.

• The screening system will be reorganized and expertise strengthened. Main measures:

  • Human resources and labor experts will be included in screening besides finance departments.
  • Screening committees composed of external experts will be established to increase objectivity.
  • Screening standards will be clarified and manuals distributed to reduce variations between institutions.
  • Screening results will be made public to ensure transparency and strengthen social monitoring functions.

✅ Substantiation of Regular Worker Conversion Policy

• Conversion of permanent and continuous work to regular positions must be accelerated. Main tasks:

  • Work eligible for conversion must be re-inspected and missed job categories added.
  • Institutions must be supported to implement regular worker conversion through budget securing and staff expansion.
  • Plans must be prepared to convert indirect employment (outsourcing, dispatching) to direct employment.
  • Problems where treatment doesn't improve after conversion, preventing real regularization, must be solved.

• Working conditions of non-regular workers must be improved. Main directions:

  • Even when non-regular workers must be used unavoidably, wage and benefit gaps with regular workers must be reduced.
  • Employment stability must be increased by expanding conversion to unlimited contracts instead of 2-year renewal contracts.
  • The principle of equal pay for equal work must be thoroughly applied to eliminate discrimination.
  • Education and training opportunities must be provided so non-regular workers can also strengthen their capabilities.

✅ Need for Social Agreement and Long-term Roadmap

• Social dialogue through labor-management-government consultative bodies is needed. Main measures:

  • Consultative bodies with government, employers (public institutions), and labor unions must be formed.
  • Root causes and solutions to public sector non-regular worker problems must be discussed together.
  • Agreement must be reached to find a balance between financial burden and employment stability.
  • Long-term vision considering expansion to the private sector must be established.

• A gradual and systematic improvement roadmap is needed. Main content:

  • In the short term, strengthening screening system effectiveness and expanding on-site inspections is a priority.
  • In the medium term, conversion of permanent and continuous work to regular positions must be completed.
  • In the long term, the entire public sector employment structure must be reorganized and stable jobs expanded.
  • Clear goals and performance indicators must be set at each stage to check implementation.

4️⃣ Related Terms Explanation

🔎 Public Sector Non-Regular Worker Management Guidelines

• Public sector non-regular worker management guidelines establish basic principles for hiring and managing non-regular workers.
  • Public sector non-regular worker management guidelines are administrative guidelines established by the Ministry of Employment and Labor in 2018, making it mandatory to screen non-regular worker hiring by public institutions in advance. The guidelines establish as a principle that permanent and continuous work should be filled by regular workers, and when non-regular workers are used as an exception, clear reasons and periods must be specified.
  • Main content of the guidelines: First, each institution must establish an annual non-regular worker hiring plan and receive review from human resources and finance departments. Second, non-regular worker hiring above a certain scale must receive approval from supervising ministries or higher authorities. Third, when non-regular workers are used for the same work for more than 2 years, regular worker conversion must be considered. Fourth, non-regular workers' working conditions must be managed so they are not unreasonably discriminated against compared to regular workers.
  • However, these guidelines have weak enforcement power as they are administrative rules, not laws, and lack sufficient sanctions for violations. In actual operation, much is left to institutional autonomy, continuing effectiveness controversies. Experts point out that legal basis must be strengthened and sanctions prepared.

🔎 Regular Worker Conversion Policy

• Regular worker conversion policy is a government-led policy to convert non-regular workers to regular positions.
  • Regular worker conversion policy was promoted by the Moon Jae-in administration in 2017 with the goal of converting 200,000 non-regular workers in the public sector to regular positions. Public institutions, local governments, and educational institutions formed conversion review committees to convert non-regular workers engaged in permanent and continuous work to regular positions.
  • Policy implementation process: First, each institution selects work and personnel eligible for conversion. Second, conversion review committees with labor and management participation establish conversion plans. Third, conversion candidates are hired as regular workers after examinations or reviews. Fourth, the government reduces institutional burden through budget support and staff expansion.
  • While there were some achievements, several limitations were revealed. Fairness controversies arose as conversion standards and speed differed by institution, and indirect employment (outsourcing, dispatching) was often excluded from conversion targets. Also, criticism arose of "regular workers in name only" as treatment didn't improve despite conversion to unlimited contracts. The pre-employment screening system was introduced to prevent new non-regular workers from increasing again after conversion, but it also faces effectiveness controversies.

🔎 Non-Regular Worker Protection Act

• Non-regular worker protection act is a law guaranteeing rights of non-regular workers.
  • Non-regular worker protection act, officially titled "Act on Protection of Fixed-term and Part-time Workers," was implemented in 2007 to ensure employment stability and correct discrimination for non-regular workers. The core content is that workers automatically convert to regular workers (unlimited contract workers) if employed as fixed-term workers for more than 2 years by the same employer.
  • Main provisions of the law: First, automatic conversion to unlimited contract workers when used for more than 2 years. Second, discriminatory treatment based on being a fixed-term worker is prohibited compared to regular workers. Third, part-time workers receive the same protection. Fourth, discrimination correction can be requested from labor relations commissions.
  • However, this law's effectiveness is limited in the public sector. Many public institutions use indirect employment through outsourcing or dispatching, where the 2-year excess clause doesn't apply. Also, cases exist where the law is circumvented by terminating contracts just before 2 years and rehiring. Even when converted to unlimited contract workers, if wage or welfare gaps with regular workers remain large, it's difficult to view as real regularization. Experts argue that regulations on indirect employment must be strengthened and discrimination correction systems supplemented.

🔎 Labor Standards Act Article 23

• Labor Standards Act Article 23 is a provision prohibiting unfair dismissal and requiring just cause.
  • Labor Standards Act Article 23 protects workers' employment stability by stipulating "An employer shall not dismiss, lay off, suspend, transfer, reduce wages or take other punitive measures against a worker without just cause." This is a core provision to prevent employers' unilateral dismissal and protect workers' rights.
  • Just cause means unavoidable business reasons or worker's attributable reasons. First, business dismissals must meet requirements including urgent business necessity, dismissal avoidance efforts, reasonable selection of subjects, and consultation with unions. Second, worker's attributable reasons include serious work negligence or misconduct. Third, dismissal cannot be based simply on contract expiration, and reasonable expectation of contract renewal is often recognized.
  • For non-regular workers, protection under this provision is weak in reality. When fixed-term contracts expire, de facto dismissal occurs by not renewing contracts, but it's difficult to challenge this as unfair dismissal. Also, non-regular workers' short contract periods often lead to employment ending by contract termination without just cause. The Supreme Court has broadened protection scope through precedents recognizing reasonable expectation of contract renewal for repeatedly renewed fixed-term workers, but non-regular workers' employment instability remains a serious problem.

5️⃣ Frequently Asked Questions (FAQ)

Q: Which institutions does the pre-employment screening system apply to?

A: It applies to all public sectors including central administrative agencies, local governments, public institutions, and educational institutions.

• The pre-employment screening system targets the entire public sector, specifically including central ministries and their affiliated agencies, metropolitan and basic local governments, public enterprises and quasi-governmental agencies, national and public universities and elementary, middle and high schools, and education offices. These institutions must go through pre-screening procedures when hiring non-regular workers including fixed-term, part-time, and dispatched workers.
• However, in actual operation, management of central administrative agencies and large public institutions is relatively done, but supervision of local governments and educational institutions is loose, so the system doesn't work properly. The Ministry of Labor plans to eliminate blind spots by expanding on-site inspections to local governments and educational institutions from 2026. Private companies are not subject to the pre-employment screening system, but exemplary operation in the public sector is expected to spread to the private sector.

Q: What changes when non-regular workers are converted to regular positions?

A: Employment stability increases and treatment including wages and benefits can improve.

• The biggest change in regular worker conversion is employment stability. Fixed-term workers usually must renew contracts every 1-2 years, but regular workers (including unlimited contract workers) are guaranteed stable long-term employment as they cannot be dismissed without just cause. Also, in terms of wages and benefits, regular workers can receive higher base pay and benefits like bonuses, retirement pay, and welfare allowances.
• However, differences exist depending on conversion method. When directly converted to regular positions, they receive the same treatment as regular workers, but when converted to unlimited contract workers, gaps in wages and benefits may still remain. In some institutions, criticism of "regular workers in name only" arises as substantial treatment improvement is insufficient. Therefore, it's important to thoroughly apply the principle of equal pay for equal work along with regular worker conversion to eliminate discrimination. From workers' perspective, they should check how treatment actually changes after conversion, and if unreasonable discrimination exists, they can request correction from labor relations commissions.

Q: Why doesn't the pre-employment screening system work properly?

A: Complex causes including lack of expertise in screening subjects, insufficient enforcement power, and neglected follow-up management.

• The biggest reason the pre-employment screening system fails to achieve effectiveness is that screening subjects are limited to finance departments who judge only from a labor cost reduction perspective. Without participation of human resources or labor experts, proper review of work's permanent and continuous nature, workers' rights, and proper treatment cannot be done. Also, screening results remain at recommendation level with no enforcement power, and sanctions are insufficient even for violations.
• Follow-up management is also poor. Even after passing screening, whether promised conditions are kept during actual operations is not inspected, so institutions often formally receive screening but actually use non-regular workers indiscriminately. Especially local governments and educational institutions are blind spots beyond central government supervision where the system barely operates. The problem that the pre-employment screening system itself can be circumvented by using non-regular workers through indirect employment (outsourcing, dispatching) also exists. The Ministry of Labor recognizes these problems and is promoting improvements including screening system reorganization, strengthened on-site inspections, and indirect employment regulations.

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