발간사<br> 요 약 ·································································································· 1<br> 제1장 복지정책의 현황과 과제 ················································ 고영선<br> 제1절 서 론 ················································································ 35<br> 제2절 소득분배와 빈곤의 추이 ······················································ 36<br> 제3절 사회보장제도의 현황과 문제점 ············································ 47<br> 1. 사회보장제도의 확대 추이 ···················································· 47<br> 2. 사회보장제도의 문제점 ························································· 51<br> 제4절 선진국의 사례 ····································································· 65<br> 1. 분배와 빈곤의 추이 ······························································ 65<br> 2. 선진국의 정책 변화 ······························································ 65<br> 3. 북유럽 국가와의 비교 ··························································· 74<br> 제5절 복지정책의 방향 ································································· 78<br> 1. 경제?사회 정책의 기본방향 ················································· 78<br> 2. 복지재정의 장기적 지속 가능성 확보 ···································· 79<br> 3. 활성화정책의 강화 ································································ 80<br> 4. 사회보장제도의 효과성 제고 ················································· 84<br> 5. 여러 정책 간의 정합성 확보 ················································· 89<br> 제6절 요약 및 결론 ······································································ 93<br> 참고문헌 ························································································· 96<br> 제2장 공공부조제도의 개편 ············· 강신욱?구인회?노대명?박능후<br> 제1절 공공부조제도의 현황과 문제점 ·········································· 110<br> 1. 공공부조제도의 현황 ··························································· 111<br> 2. 공공부조제도의 성과: 빈곤감소효과를 중심으로 ·················· 118<br> 3. 공공부조제도의 문제점: 근로동기 저하 ······························· 130<br> 4. 근로동기 저하의 원인 진단 ················································· 138<br> 제2절 공공부조제도의 근로유인 제고를 위한 제도개선과제 ········ 147<br> 1. 근로유인 제고를 위한 대안 ················································· 147<br> 2. 근로소득공제제도 확대 ························································ 151<br> 3. 근로장려세제 확대 ······························································ 155<br> 4. 현물급여 확대 ····································································· 169<br> 제3절 공공부조의 근본적 개혁 ···················································· 192<br> 1. 기본소득제도로의 전환 ························································ 192<br> 2. 인구학적 특성에 따른 기초생활보장제도 개편방안 ·············· 197<br> 참고문헌 ······················································································· 244<br> <부 록> ······················································································· 249<br> 제3장 적극적 노동시장정책의 실태와 강화방안 ···················· 황덕순<br> 제1절 머리말 ··············································································· 251<br> 제2절 적극적 노동시장정책의 개념과 구성 ································· 252<br> 1. 소극적 노동시장정책과 적극적 노동시장정책 ······················ 252<br> 2. OECD와 EU의 노동시장정책 분류와 특징 ··························· 253<br> 제3절 주요국의 적극적 노동시장정책 비교 ································· 259<br> 1. 사회경제체제의 유형 구분과 비교대상 국가의 선정 ············ 259<br> 2. 노동시장정책 지출수준 비교 ··············································· 260<br> 3. 노동시장정책 지출과 실업률의 관계 ···································· 266<br> 4. 적극적 노동시장정책의 세부 프로그램별 구성 ···················· 275<br> 제4절 한국의 적극적 노동시장정책 실태와 평가 ························· 280<br> 1. 한국의 적극적 노동시장정책 지출통계의 현황과 문제점 ····· 280<br> 2. 주요 적극적 노동시장정책 프로그램의 추이와 평가 ············ 291<br> 제5절 적극적 노동시장정책의 전달체계 ······································ 310<br> 1. OECD 주요 국가의 PES 지출 비교 ····································· 310<br> 2. 적극적 노동시장정책 전달체계의 구성과 특징 ···················· 311<br> 3. 전달체계 관련 주요 논점: 민간위탁과 분권화 ····················· 315<br> 제6절 맺음말 ··············································································· 318<br> 참고문헌 ······················································································· 321<br> 제4장 사회복지전달체계의 개편 ············································· 구인회<br> 제1절 서 론 ··············································································· 322<br> 제2절 중앙정부와 지방정부 간 역할분담 ····································· 323<br> 1. 현 황 ················································································· 323<br> 2. 문제점 ················································································· 332<br> 3. 개선방안 ·············································································· 337<br> 제3절 사회서비스 구매자로서의 지방정부의 역할 ······················· 343<br> 1. 현 황 ················································································· 343<br> 2. 공공과 민간 협력상의 문제점 ·············································· 348<br> 3. 개선방안 ·············································································· 353<br> 제4절 사회서비스 연계?조정자로서의 지방정부 ························· 354<br> 1. 공공 사회복지전달체계 현황 ··············································· 355<br> 2. 문제점 ················································································· 359<br> 3. 개선방안 ·············································································· 361<br> 제5절 결 론 ··············································································· 363<br> 참고문헌 ······················································································· 365

발 간 사

우리나라는 1960년대 이후 세계에서 유례를 찾기 어려운 경제성장을
달성하였다. 그 결과 일자리를 늘리고 절대빈곤을 해소할 수 있었으며,
사회보장제도가 미비하였음에도 불구하고 1990년대 초까지 전반적인
소득분배를 비교적 양호한 상태로 유지할 수 있었다.
그러나 1990년대에 들어서면서 상황이 달라졌다. 소득분배가 악화되
고 빈곤이 심화되기 시작한 것이다. 이러한 변화는 여러 가지 요인에 기
인하는데, 그 가운데에서도 특히 지식기반경제(knowledge-based economy)
의 확산과 세계화(globalization)가 중요한 요인으로 꼽힌다. 이에 더하여
1997년의 외환위기 및 2008년의 글로벌 금융위기와 같은 거시경제적 충
격은 저소득층의 소득불안정을 심화시켜 왔다.
우리 정부는 1970년대에 공공의료보험제도를 도입한 이후 지속적으
로 사회안전망을 확충해 왔다. 특히 1980년대 말에는 국민연금제도를
도입하였고 전 국민 의료보험을 달성하였다. 또 외환위기 직후에는 고
용보험의 가입대상을 급격히 확대하였고 국민기초생활제도를 도입하였
다. 2000년대 중에도 장기요양보험제도와 기초노령연금제도를 도입하는
등, 사회안전망을 강화하기 위한 노력을 지속하였다. 그 결과 우리나라
는 기본적인 제도를 모두 갖추게 되었다.
그러나 우리나라의 사회안전망은 아직 크게 미흡한 것이 사실이다.
무엇보다도 촘촘하지 못한 안전망으로 인해 사회적 도움이 가장 필요한
사람들에게 복지혜택이 제공되지 못하고 있다. 전체 취업자 가운데 공
적연금 가입자는 60% 내외에, 고용보험 가입자는 40% 내외에 머물고
있다. 이로 인해 저임금근로자들은 사회적 보호가 가장 필요함에도 불
구하고 사회보험의 혜택을 제대로 받지 못하고 있다. 또 우리나라의 노
인빈곤율은 OECD 국가 중 가장 높은 수준에 달해 있지만, 국민기초생
활보장제도나 기초노령연금제도는 빈곤계층의 노인들에게 충분한 도움
을 주지 못하고 있다.
우리나라의 사회안전망은 촘촘하지 못하다는 것 외에도 다른 많은
문제를 안고 있다. 여러 부처가 여러 가지 사업을 추진하다 보니 복지사
업의 체계가 매우 복잡해졌다는 것, 복지전달체계를 구성하는 중앙정부
와 지방정부, 그리고 민간기관 사이에 역할분담이 제대로 이루어지지
않고 업무협조가 원활하지 못하다는 것, 수요자 관점에서 사업체계와
전달체계를 재편하려는 노력이 각종 이해집단 간의 알력으로 인해 종종
좌절되어 왔다는 것 등이 그러한 문제들이다. 이러는 가운데 연금?의
료 등 사회보험의 지출이 빠르게 증가하여 복지재정의 장기적 지속 가
능성을 위협하고 있다.
이러한 여러 문제에 대한 해결방안을 모색하는 것이 본 보고서의 목
적이다. 문제의 해결을 위해서는 매우 복잡한 이해관계를 조정할 필요
가 있다. 그런 의미에서 본 보고서가 제시하는 여러 방안은 ‘복지개혁’
에 가까운 것이다. 비록 단기적으로 이를 실행에 옮기는 것이 어려울지
라도, 중장기적인 지향점을 명확히 제시한다는 데 본 연구의 의의가 있
다. 현재 우리 사회에서는 문제의 본질과 복지개혁의 기본방향에 대한
합의가 충분치 않기 때문이다.
본 보고서의 작성에는 본원의 고영선 박사와 경기대학교의 박능후
교수, 서울대학교의 구인회 교수, 보건사회연구원의 노대명 박사와 강신
욱 박사, 한국노동연구원의 황덕순 박사가 참여하였다. 그 외에 여러 분
들이 아낌없이 노력을 기울인 결과 본 보고서가 발간될 수 있었는데, 지
면관계상 이들의 이름을 일일이 열거할 수 없음을 안타깝게 생각한다.
본 보고서를 바탕으로 앞으로 복지개혁이 꾸준히 추진될 수 있기를 기
대한다.

2011년 6월
한국개발연구원 원장
현 오 석