Ageing Society Issues in Korea*

Korean society is facing unprecedentedly higher population ageing, particularly in the first half of the 21st century. The implications of population ageing have a much wider effect than the welfare of the elderly. From a broader and long‐term perspective, understanding population ageing may require a new paradigm. Korea has attempted to model its policies for ageing society on those of advanced welfare states, but as these no longer seem viable, Korean policy‐makers are searching for more effective and efficient measures to deal with its rapid ageing population. Reflecting a broader and long‐term perspective, the Korean government recently produced a comprehensive national policy plan to deal with the consequences of rapid population ageing. This article outlines the phenomenon of population ageing in Korea and the recent development of national policies for population ageing, describing the Korean comprehensive national policy plan for responding to it and examining major issues and problems related to developing and implementing the plan. This article finally suggests a new, age‐integrated social system approach to an ageing society.     

Social Policy in South Korea: Cultural and Structural Factors in the Emergence of Welfare

There are a number of features that make South Korea an interesting place to study social policy. First, it has experienced rapid economic development with the associated changes in urbanization and demography. This change has created social problems, which the state has had to address. Second, the country retains a strong cultural tradition and repeated affirmation of the values and practices of Confucianism. In this paper, these two features are considered in relation to the way social policy has been addressed. The thrust of the paper will be on the policy responses to perceived social problems and the way in which other social problems are individualized within families. These policies are informed and shaped by Korean politics and culture.     

构建老人福利机构危险管理机制——日本经验之启示

"养儿防老"是中国传统的养老模式,长期以来老人的养老主要依靠子女来解决,但是随着生活方式的改变、家庭规模的日趋小型化,老人的长期照顾问题受到了社会的广泛关注。近年来国家制定了相关的政策、制度以及服务来满足老人及其家人的需求,然而老人福利机构及所提供的照顾服务,其服务质量离人性化照顾服务仍有一段距离。就现阶段而言,老人福利机构所提供照顾服务的质与量,均有提升与改善的空间。日本是亚洲第一个施行公共性长期照顾保险的国家,其施行之初也面临着一些与我国同样的问题,为提升长期照顾机构的服务质量,日本厚生劳动省在介护保险制度施行后的2002年,就开始倡导老人福利机构应建立危险管理机制的理念,并于2006年修订老人长期照顾福利机构管理规则,规定老人福利机构应建立危险管理机制,以提升照顾服务质量。有鉴于此,本文将对日本老人长期照顾福利机构建立危险管理机制的过程、基本架构,以及相关课题做系统说明,为我国老人福利机构经营管理提供参考,也可为我国未来在探讨老人长期照顾问题之际,提供必要的配套依据。     

Divergence in the development of public health insurance in Japan and the Republic of Korea: A multiple‐payer versus a single‐payer system

Japan and the Republic of Korea achieved universal health insurance coverage for their populations in 1961 and 1989, respectively. At present, Japan continues to operate a multiple‐payer social health insurance system, while the Republic of Korea has moved to an integrated single‐payer national health insurance structure. This article analyzes the influence of political economy in shaping the policy divergence found between these two Bismarckian health insurance systems. Issues addressed include differences in political power, the policy influence of business, the extent to which regional autonomy has developed and regional traits have been preserved, the level of political democratization, the form of political leadership, and the scale of development of the health insurance system. The article offers policy lessons derived from the two countries' experiences.     

Women Reconciling Paid and Unpaid Work in a Confucian Welfare State: The Case of South Korea

The participation of married women in the labour market has been increasing since industrialization in the 1960s in Korea; in 1999 it overtook that of unmarried women. This raises the issue of how women reconcile paid and unpaid work and how state policy responds to this issue. In Korea, there have been numerous policy reforms designed to support working women in combining work and family life. For example, a parental leave scheme was introduced in 1995 and maternity benefits were also introduced in 2001. However, it is doubtful whether these policies can be effective in practice in Korea, where Confucian traditions in respect of women's roles remain strong. Confucian tradition has long influenced Korean society culturally and socially. Although Korean society today is not as Confucian as in the past, some traditions still remain strong, particularly with regard to the family: for example filial piety, seniority, the married woman's responsibility for her parents‐in‐law. This paper will argue that Confucian tradition makes for difficulties in Korean women's experiences of reconciling paid and unpaid work and also affects the formation of state policy. The paper explores the impact of the Confucian welfare regimes on Korean women's experience of reconciling paid and unpaid care work, and questions the gendered characteristics of the Confucian welfare state.     

Leading Article: Welfare Development in the Midst of Political Uncertainty

On 1st July 1997 Hong Kong will be transformed from a British colony into a Special Administration Region (SAR) of the People's Republic of China. Although the Basic Law, a mini-constitution for the future SAR government, states that “Hong Kong's capitalist system and lifestyle will remain unchanged for 50 years after the establishment of the SAR”, changes are perceived to be inevitable, not least in respect of the welfare policies to be implemented by the future SAR government. Indeed, since the signing of the Joint Declaration in 1984 between the British and Chinese Governments on the future of Hong Kong, the existing Colonial Government has been enlarging its role in the social services and making relevant policies more responsive to the needs of the people. These reforms have largely been carried out in line with the democratization process which Hong Kong has been undergoing in recent years. To what extent will these changes in welfare policies continue after 1997? It is argued here that with the enlargement of democracy, and especially the establishment of political parties claiming to represent the interests of the people, it would no longer be possible for Hong Kong to return to residual-type welfare programmes. While it would be unlikely for Hong Kong to develop into a “welfare state”, the future development of social services in Hong Kong would probably command widest acceptance if policies keep in line with the prevalent welfare ideology which stresses, on the one hand, the self-reliance of the people and, on the other, the responsibility of government to look after weaker members.     

Child protection in China: Changing policies and reactions from the field of social work

This article offers a general review of the development of national policies on child protection in China. It offers an in‐depth analysis of related legislation enacted between 2010 and 2015 that have had an impact on child protection and related historical, cultural and legal issues. Furthermore, in the study we examined the emerging role of social work in preventing and responding to child abuse and neglect in China. Major findings of the research include: (i) policies concerning child protection have been highly influenced by Confucianism and its perspective of the child as family property; (ii) child protection regulations on accident reporting, custody transfer, and surrogate care are gradually being refined and improved, although the legal system for child protection is still incomplete and needs further substantiation; and (iii) the involvement of non‐governmental organisations (NGOs) and social workers has enhanced the child protection system. Key Practitioner Message: ? Policies concerning child protection have been subject to an immense impact by Confucianism, placing strong responsibility on family members in providing childcare although the child is viewed as part of the family's property; ? After 1949, the newly founded socialist political structure began to exert a significant influence on welfare and child welfare policies. Because the Confucian perspective emphasised family and parental responsibility, government in China has traditionally not been heavily involved in policies that interfere in the internal workings of families; ? Since the shift toward an open‐door policy in 1979, child protection policies in China have begun to develop, with a child welfare network gradually spreading to cover the majority of children. Moreover, child protection is generally supported by the legal system, within which regulations on accident reporting, custody transfer and surrogate care are gradually being refined and improved. However, despite the huge progress achieved in recent years, there are significant deficits in its implementation and monitoring; ? The involvement of non‐governmental organisations (NGOs) and professional social work services has promoted a child protection system.     

Diverging Paths? A Comparative Look at Childcare Policies in Japan,South Korea and Taiwan

This article compares state policies to support childcare in Japan, South Korea and Taiwan, using fuzzy set ideal type analysis to determine the nature of institutional arrangements with respect to labour, money and time provisions. We then note their implications for familialization and defamilialization in the three countries. Our analysis suggests a common pattern towards the increased use of financial support amongst the three countries over time; however, this commonality does not mean their childcare policies are converging, as the financial supports differ in focus, with Japan concentrating on familialization by valuing family care, and Korea exclusively employing policy to facilitate the use of market‐based care services. For its part, Taiwan has been strengthening familialization by increasing the leave compensation to value time off to provide care. The different labour, money and time dimensions vis‐à‐vis the familialization/defamilialization matrix suggest varying implications of institutional arrangements for gender.     

A Confucian War over Childcare? Practice and Policy in Childcare and Their Implications for Understanding the Korean Gender Regime

We ask about the development of childcare policies in Korea and what these mean for our understanding of the gender assumptions of Korean governments. Women's labour market participation has been increasing rapidly, with married women now much more likely to be in the labour market. The provision and regulation around support for women's employment, and especially for mothers’ employment, is a key issue and problem for Korean women and for governments. A number of policies give the impression that the Korean government is moving rapidly towards a policy for reconciling work and family based on a dual‐earner model of the family. But we argue that a close inspection of these policies suggests that the state is still playing a residual role, legislation is not effectively implemented, and government is giving way to the private sector and to the family in responsibility for childcare. Mothers’ accounts of their lives centre on a childcare war played out beneath the apparently harmonious Confucian surface, with resisting husbands supported by powerful mothers‐in‐law, and daily struggles over the management of services. The Korean government and its policy‐makers, far from moving rapidly towards a dual‐earner model of the family, are still rooted in Confucian ideals.     

Ageing and Family Dependency

The ‘graying’ of Australia's population has generated much debate within government, demographic, health and social service circles in recent times. Current and projected shifts in population structure towards greater numbers of ‘dependent’ populations raise a number of complex issues in regard to resource allocation in both income support and service provision. Service issues revolve around questions of whether public or private provision will resolve the care issues for dependent elderly people. It is argued that contrary to popular opinion, family care is well entrenched within the framework of social care, and that the solution of community care, posited in relation to the rising levels of chronic illness and dependency within the elderly population, is actually an attempt to place more responsibility of care on to the family. It is further suggested that family care is, in fact, care by women who themselves are in a state of dependency. Citing evidence from a study conducted by the authors, the paper argues that family care imposes heavy burdens upon women and families and suggests that social policy should, firstly, actively bolster family care through the provision of supportive and supplementary services; and secondly, broaden its intent by exploring other options of care for elderly people. The latter response is important because without it, family care will only help to reinforce and sustain the dependent status of women.     

Social enterprise policy design: Constructing social enterprise in the UK and Korea

Taking the elusive definition of social enterprise as its starting point, this study seeks to understand the impact of government policies on the development of social enterprises in the national contexts of the UK and South Korea. The social construction of target populations is utilised as a theoretical framework in order to identify which factors influence government policy. A comparison of the two countries over a 14‐year period from 1997 to 2010 reveals that, despite very different contexts, governments in both countries have taken an instrumental approach to social enterprise. This tendency is more pronounced in Korea however, where government has limited the input of stakeholders and used an approval system to control access to the social enterprise name. The study concludes by recommending a more value‐oriented approach to social enterprise.     

East Asian Welfare Regimes: Testing the Hypothesis of the Developmental Welfare State

Following the three welfare regimes constructed by Esping‐Andersen, many scholars have addressed the question of whether there may be a further type of regime, differing from the categories of liberal, conservative and social democratic, pertaining to other parts of the world. Discussion has centred largely on East Asia and, in particular, on the notion of the developmental/productivist welfare regime. Yet these discussions have been based more on conceptual classification than empirical analysis. This article attempts to fill in the gap, with reference to the developmental characteristics of Taiwan, South Korea and Japan. A set of 15 indicators is developed for the factor and cluster analysis of 20 countries, based on data from the 1980s and 1990s. The results indicate the existence of a new group, consisting of Taiwan and South Korea, which is distinct from Esping‐Andersen's three regimes – unlike Japan, which remains a composite of various regime types. Regime characteristics peculiar to the cases of Taiwan and South Korea include: low/medium social security expenditure, high social investment, more extensive gender discrimination in salary, medium/high welfare stratification, a high non‐coverage rate for pensions, high individual welfare loading, and high family welfare responsibility. When compared with Esping‐Andersen's three regimes, the East Asian developmental regime shows similarity with his conservative model, in respect of welfare stratification, while the non‐coverage of welfare entitlements is similar to his liberal model. There is virtually no evidence of any similarity between the developmental welfare regime and Esping‐Andersen's social democratic regime type.     

Same same but different? Comparing institutional performance in the long-term care systems of Japan and South Korea

Responding to a rapidly aging population, Japan and South Korea introduced social insurance-based long-term care systems (LTCSs) in 2000 and 2008, respectively. Korea studied and took up key features of Japan's system while evolving along its own trajectory in line with its healthcare system. The aim of the present study is to unpack the broad category of ‘social insurance’ to explore how distinct system inputs and designs in Korea and Japan related to outcomes in performance measured in terms of coverage, quality of care, and sustainability. In doing so, the study serves as an important starting point for advancing a new stream of social policy research on the comparative performance of LTCSs. Our findings demonstrate that despite adopting a common system type, differences in implementation of the social insurance model (particularly in terms of financing and governance) contributed to divergent performance, with Japan outperforming Korea on most indicators during the observed period. This bears contrary implications for policymaking in the two countries: Whereas Japanese policymakers are faced with the challenge of promoting quality while containing spending, in Korea greater investment is required to strengthen the workforce and build up community care.     

Who is my family?: A comparative study of the family boundary in East Asia

Most Asian countries are regarded as Confucian countries although each has its own historical and cultural background. Little is known about how people in different Asian countries perceive their family boundaries. This study is an attempt to compare the perception of the family in China, Japan, and Korea. We examined the family perception and found substantial differences among the three. Chinese people showed the widest and paternally extended perception of family. Data from people in Korea nearly matched data from China, but family perception developed bilaterally. People in Japan, however, perceived only blood-tied, intimate relations as family members. In addition, the perception of the family was not substantially different between the genders in Japan and China, but in South Korea, men perceived family boundaries more widely than women, implying that women have a greater family burden than men in Korea. Considering the heterogeneity in family perceptions in these countries, this paper tries to explain how social institutions interact with individuals and impact the perception of family. Finally, this paper concludes that it is inappropriate to tie the three East Asian countries as ‘Confucian civilizations’ in terms of family perception.     

Social risks and public pension in South Korea

This study investigated how traditional and new social risks have emerged in South Korea and how policies have coped with them, focusing on the public pension program. Using national statistics data and publicly published government reports, factors such as marital status, economic activity, and the insurance trend of the public pension by age and gender for the last decade were examined. Main results are as follows. Women's labor force participation has slightly increased; however, career discontinuity remains and new family risks have increased. Second, women's public pension coverage as a percentage of the employment rate has substantially increased, implying that old labor market risks have largely been reduced for female workers. Third, the public pension insured rate among male workers has decreased to a small degree, which implies that new labor market risks are increasing for male workers. Consequently, the gender gap in risk has been reduced; however, policies established to deal with new risks have introduced some gender effects     

New Labour, Work and the Family

New Labour has put support for the family at the core of its notion of the “strong community”. Across a range of policy areas the Labour government can be seen to be developing a direct and explicit family policy. But what kind of community is the government trying to shape by these policies? On the one hand, Labour appears to support the family as the basis of a more moral, dutiful and cohesive community. On the other hand, the government has given weight to policies that support social inclusion in the community through paid work. This paper examines whether there is a tension in Labour’s social policies between its emphasis on the importance of stable family life and the primacy given to paid work. Are critics like Ruth Levitas right when they argue that the government’s emphasis on paid work devalues, and is unsupportive of, unpaid work, especially caring for children and other family members? Alternatively, can this combination of communitarianisms—community as “stable family” and community as “paid work”—be seen to be marking out some “third way” on the family? We shall show that different aspects of the government’s family policies reflect different perspectives and policy agendas within New Labour and third‐way thinking more broadly. And while recognizing the tensions between work and the family, we shall suggest that they are often overstated and fail to give sufficient weight to the complementary aspects of Labour’s welfare reforms.     

Childcare Expansion in East Asia: Changing Shape of the Institutional Configurations in Japan and South Korea

The provision of childcare in Korea and Japan has traditionally been intensively conducted within the family. Recent social and demographic transformations have been profound and these have resulted in significant policy changes in both countries. This study examines the institutional configurations of the provisions of childcare among the state, market, and family and how they have changed in Korea and Japan over time. The institutional configurations were quantitatively evaluated based on an estimation of care time. Our findings suggest that care time provided in market and state facilities has become much larger in Japan than in Korea. In both countries, the care time provided by market facilities is much larger than in state facilities. Over the years, both market and state provisions of care have increased in Korea whereas state care provisions have decreased and market provisions have increased in Japan. However, this does not mean that the centralization of the family in the provision of childcare has shifted. In fact, the care time within the family has increased in both countries, suggesting that Korea and Japan have become more caring welfare states.     

Asia educates to brake the population juggernaut

Most of the Asian countries have national programs to provide educat ion on all factors that influence population growth. School children are given information on the effects of high birthrates on family and nation. Sloan Wayland thinks that the Asians will become the world's experts in population education. In all 9 countries (Bangladesh, India, Indonesia, Japan, Republic of Korea, Malaysia, Philippines, Sri Lanka, and Thailand) represented at a Meeting of Experts on the Role of University Faculties/Colleges of Education in Population Education in Bangkok, population education in varying degrees had been introduced in primary and secondary schools.     

Solidarity and tension between age-groups in the United States: challenge for an aging America in the 21st century

In this article, we argue that intergenerational tensions in the United States reflect a strategy for serving the aged that stresses the underlying values of individualism and self-reliance. Using national survey data, we examine the extent to which Americans' view of public responsibility for the aged has shifted between the mid-1980s and late-1990s, a period characterized by the intensification of "generational" politics, as well as a growing hostility toward "big government." We consider four factors that may be responsible for the escalation of intergenerational tensions as they are manifest in the erosion of public support for programs and policies serving the elderly: (1) Declining intergenerational solidarity with the aged ; (2) Increasing concerns over age-inequity in public programs ; (3) Increasing concerns over resource-inequity in public programs; and (4) Increasing opposition to big government . Results indicate that the public has generally grown more apprehensive about the value and costs of government programs serving both the elderly and the poor. Yet, the fact that Social Security enjoys far more support than social programs serving the poor suggests that the elderly are perceived as more deserving of their benefits than other dependent groups in society. The public also appears increasingly reluctant to redistribute old age benefits according to need. Age-group contrasts revealed little evidence of direct tension between the generations. The results suggest that growing distrust of government and reluctance to help the poor has indirectly fueled opposition to public spending on the older population. Proposed changes to programs and policies affecting the elderly will need to take into account the ambivalence felt by many Americans toward a government they expect to make good on its promise to care for all older citizens, but to use fewer resources in doing so.     

应对人口老龄化挑战的中国道路

老年人口的养老负担问题、代际关系问题以及价值实现问题是影响中国未来可持续发展的三个关键性问题。从经济学视角看,就是生之者寡和食之者众的关系问题;从社会学角度看,有一个资源和权力分配的代际冲突和老年价值实现问题;从人口学视角看,计划生育弱势老人的比例在上升,今后中国会出现大量的“计划生育老人”,提出“计生老人”概念的意义在于,国家各级政府和部门要凸显人口计生公共服务的公益性和福利性。中国作为一个先老后富的国家,人口老龄化带来的挑战是长期的、多样的。本文提出了成功老龄化的战略构想,包括健康老龄化、积极老龄化、和谐老龄化和幸福老龄化。在应对人口老龄化和老龄问题挑战的过程中,中国社会逐渐走出了一条传统与现代相结合的中国道路,概括说：就是以家庭养老、单位（集体）养老和自我养老为基础,以社区助老、福利助老、慈善助老为补充的中国道路。最后,本文作者对本专题几位学者的观点在“中国问题和中国选择”的框架内进行了综合性的介绍和评论。