The development of social policy in Korea : a comparative analysis of its determinants, character and future direction

This thesis analyses the development of social welfare in South Korea.The purpose of the study is threefold: (1) to examine the determinants of social policy in Korea; (2) to evaluate the outcomes of its social policy; (3) to explore a strategy for the development of the Korean welfare state. As a research methodology, both historical-comparative and normative-evaluative approaches are used.

The Korean experience of the development process of social welfare shows a unique trajectory which distinguishes it from such processes in most advanced industrial nations. Unliked advanced European welfare states, Korea was a late-comer to industrialisation and democratisation. The delays to industrialisation and democratisation have critically affected the development of Korean social policy. Social conflicts and labour movements have been harshly repressed by the state in pursuit of rapid economic growth. No leftist party exists, and party politics has yet to be institutionalised. Furthermore, globalisation is becoming a serious challenge to the Korean economy. This picture is quite different to those found in the advanced welfare states in their formative years of social policy development.

Korea's development strategy is most often characterised as a 'growth first, distribution later' policy. In the same vein, the basic approach to social policy has been one of 'family protection first, social protection last' policy. Consequently, the level of social welfare is still at a preliminary stage in terms of its coverage and benefits. The level and quality of services and benefits are also so low that they often do not suffice to sustain a decent life. With respect to equality, Korean social policy is not effective in reducing inequality. This is mainly due to the unfair tax system, the low level of social expenditure, and the restricted coverage of social welfare programmes.

In Korea, recent democratisation has triggered a simultaneous explosion of long-suppressed social demands in areas affecting social equality and the quality of life. In addition, the Korean social structure in the 21st century will differ sharply from that of today. changes in life cycles, the family and gender roles, as well as the momentous changes that will eventually flow from national unification, will profoundly alter expectations of social welfare. For the development of social welfare in Korea, this thesis suggests that the Korean welfare state should ideally be based on harmony between the free-market ideals of efficiency and self-support, and non-market ideals of equality and solidarity. For this model to be implemented effectively in Korea, five basic directions are suggested: the satisfaction of basic needs, the enhancement of equality, an integrated approach to economic and social policy, the development of future-oriented social services, and the establishment of a new partnership in welfare between the state and the private sector.