최종연구보고서

노인 문화예술교육 프로그램 운영 방안 연구

2005. 12. 23

- iii -

차 례

제1장 서 론 ··············································································································· 1

제1절 연구목적 및 필요성 ················································································································· 1

제2절 연구내용 및 방법 ····················································································································· 2

제3절 기대효과 ····································································································································· 4

제2장 노인정책 흐름과 문화예술교육의 방향 ····················································· 5

제1절 노인정책과 문화복지 ················································································································· 5

1. 노인정책의 흐름 ···························································································································· 5

가. 고령화 사회의 노인복지정책 ······························································································ 5

나. 노인복지정책의 방향성 ·········································································································· 7

다. 저출산 고령사회기본법과 정부 관련부처의 역할 ····························································· 8

2. 고령사회와 문화복지 정책 ····································································································· 11

가. 문화복지 정책의 흐름 ········································································································ 11

제2절 노인 문화예술교육의 기능성과 방향 ················································································· 15

1. 노인의 개념과 특성 ················································································································· 15

가. 법 제도적 측면에서의 노인개념과 특성 ········································································ 15

나. 심리사회적 측면에서의 노인개념과 특성 ······································································ 15

다. 신체적 측면에서의 노인개념과 특성 ·············································································· 16

2. 국내 노인 현황 ··························································································································· 17

3. 문화예술교육 정책 대상으로서의 노인 ··············································································· 20

가. 주체적인 노인 ························································································································20

나. 자아를 실현하는 노인 ········································································································ 20

다. 독립적인 노인 ······················································································································ 21

라. 참여하는 노인 ························································································································ 21

4. 노인 문화예술교육의 가능성과 한계 ··················································································· 21

제3장 노인 문화예술교육 프로그램 운영 현황 ················································ 23

제1절 국내 노인 문화예술교육 운영 현황 ····················································································· 23

1. 국내 노인 문화예술교육 운영 현황 ····················································································· 23

가. 복지분야 운영 현황 ············································································································ 23

나. 문화분야 운영 현황 ············································································································ 36

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제2절 노인 문화예술교육 프로그램 운영을 위한 시설 및 프로그램 분석 ····························· 49

1. 노인 문화예술교육 프로그램 운영 가능 시설 분석 ························································· 50

가. 조사대상 및 방법 ·················································································································· 50

나. 응답기관 및 응답자 현황 ···································································································· 51

다. 기관 특성 및 프로그램 운영 현황 ···················································································· 55

라. 기관의 노인 문화예술교육 프로그램 운영 가능성 ························································ 72

마. 노인 문화예술교육 지원 전략 및 방향 ············································································ 77

바. 노인 문화예술교육 프로그램 운영 가능 시설 분석의 시사점 ·································· 84

2. 노인 문화예술교육 프로그램 분석 ························································································· 88

가. 시설별 노인 문화예술교육 프로그램 현황 ······································································ 88

제3절 노인 문화예술교육 수요 분석 ······························································································· 99

1. 문화예술교육에 대한 노인 수요 분석 ··················································································· 99

가. 노인 인터뷰 조사 결과 ······································································································ 99

나. 시사점 ··································································································································· 114

제4절 국외 노인 문화예술교육 프로그램 운영 현황 ······························································ 118

1. 미국 사례 ································································································································· 118

가. 노인교육 전담기관과 운영주체 ····················································································· 118

나. 노인교육 프로그램의 유형별 사례 ··············································································· 118

다. 파트너쉽 프로그램 사례 : 혁신적인 노인예술프로그램 ············································ 129

2. 독일 사례 ································································································································· 132

가. 노인휴양지원 ····················································································································· 132

나. 문화 및 여가 교육프로그램 ··························································································· 133

다. 노인만남센터 ····················································································································· 135

3. 중국 사례 ··································································································································· 135

가. 중국의 양극화와 고령화 ··································································································· 135

나. 교육격차 해소를 위한 다양한 정책 추진 ····································································· 136

다. 고령화 시대에 대비한 노인교육 강화 ··········································································· 136

제4장 노인 문화예술교육 프로그램 운영 현황 및 지원체계 ·····························

제1절 노인 문화예술교육 프로그램 운영전략 및 지원체계 ·························································

1. 지원체계의 기본 방향 ··················································································································

가. 지원체계의 기본 방향 ············································································································

나. 노인 문화예술교육 프로그램 지원의 기본 방향 ······························································

제2절 노인 문화예술교육 지원 형태 및 지원 체계

1. 노인 문화예술교육 프로그램 지원 형태 ················································································

가. 노인 시범사업 공모 형태 ······································································································

나. 노인 문화예술교육 프로그램 운영의 총체적 지원 모델 ················································

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2. 노인 문화예술교육 프로그램 지원 체제 ··················································································

가. 지원체계 모델 ··························································································································

나. 노인복지관을 중심으로 한 지원 체계나. ···········································································

다. 문화기반시설을 중심으로 한 지원 체계다. ·······································································

라. 농어촌 지역 공공시설 연계를 통한 지원 체계

3. 지원체계의 구성

가. 사업수행기관의 선정

나. 지역사회 노인문화예술교육실무자 협의체 구성

제3절 노인 문화예술교육 프로그램 운영을 위한 인적 자원

1. 노인 문화예술교육 프로그램 운영을 위한 인적자원 유형

가. 노인 문화예술교육 프로그램 운영을 위한 인적자원 구조

2. 노인 문화에술교육 프로그램 운영을 위한 인적자원 양성 및 관리

가. 노인 문화예술교육 프로그램 운영을 위한 인적자원 양성

나. 노인 문화예술교육 프로그램 운영을 위한 인적자원 관리

제4절 노인 문화예술교육 프로그램을 위한 재원 확보

1. 재정 부분 지원 사업의 틀

2. 지원금 운용 방법

가. 단체 보조금 지원 방법

나. 지원금 운용

제5절 노인 문화예술교육 프로그램 유형과 범주

1. 노인 문화예술교육 프로그램 개발의 전제

가. 노인 문화예술교육 프로그램 개발의 전제(방향)

나. 노인 문화예술교육 프로그램 개발의 원리

다. 노인 문화예술교육 프로그램의 실행 원칙

2. 노인 문화예술교육 프로그램의 유형과 범주

가. 노인 문화예술교육 프로그램 유형

나. 지역특성별 접근

다. 대상 특성별 접근

라. 기관별 접근

마. 프로그램 목적별 접근

제5장 노인 문화예술교육 프로그램 운영의 단계별 추진 전략 ·························

제1절 노인 문화예술교육 프로그램 운영의 단계별 추진 전략

1. 노인 문화예술교육 프로그램 운영의 단계별 추진 전략

가. 노인 문화예술교육 프로그램 운영의 단계별 추진 전략

나. 노인 문화예술교육 프로그램 운영 기관 단계별 전략적 지원 방안

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표 차 례

제2절 제언

참고문헌 ··················································································································································

2005년 노인 대상 사회문화예술교육 사업 모니터링 ·················································

노인 문화예술교육 프로그램 운영 현황 및 가능성 파악을 위한 전문가조사 설문

지 ································································································································································

인터뷰 응답자 현황 ··············································································································

노인복지관 프로그램 현황 ································································································

인터뷰 참여 노인의 개별 특성 ··························································································

노인대상 문화예술교육의 기점확보를 위한 SWOT분석 ·············································

연령계층 별 인구 및 구성비 추이 (1970-2050년) ························································· 5

인구고령화 속도 추이 ·············································································································· 6

저출산․고령사회기본법 내용에 따른 관련부처의 역할 ··················································· 7 다양한 노인들의 욕구에 따른 노인복지정책의 방향성 ···················································· 8

저출산․고령사회기본법 내용에 따른 관련부처의 역할 ··················································· 11 고령인구 비율 ························································································································· 17

세계 각국의 65세 이상 노인인구비율 ··············································································· 18

연간 평생학습 참여율(복수응답) ························································································ 19

앞으로 받고 싶은 교육(복수응답) ······················································································ 19

전국 노인복지시설 및 문화기반시설 지역별 설치수 ····················································· 23

노인복지시설 현황 ················································································································· 24

지역별 노인복지관 연평균 등록인원 현황 ······································································· 25

위탁운영체별 현황 ················································································································· 25

노인복지관 기본사업별 세부내용 ······················································································· 26

지역별 노인복지관의 사업․프로그램 중 우선순위 사업 ················································ 26지역별 노인복지관에서 가장 잘 운영되는 사업․프로그램 ············································ 26경로당 관리현황 ····················································································································· 28

경로당 프로그램 현황 ··········································································································· 28

경로당활성화사업의 프로그램 종류 및 내용 ································································· 29

노인교실 현황(2001·년 상반기 기준) ··············································································· 31

노인교실 운영시 선호하는 프로그램 ················································································· 31

노인양로․요양시설현황 ······································································································ 32노인복지입소시설 프로그램 현황 ····················································································· 33

전국 사회복지관 설치현황 ··································································································· 34

법인유형별 사회복지관 현황 ······························································································· 34

규모별․지역특성별 사회복지관 현황 ·················································································· 34

- iii -

취미･기능 교육 ······················································································································· 35문화행사 ··································································································································· 36

문화분야 운영 현황 ··············································································································· 36

문화기반시설 프로그램 운영 사례 ····················································································· 37

운영 주관기관 및 단체 구분 ······························································································· 40

교육장소 ··································································································································· 41

교육내용 ··································································································································· 42

복권기금 문화분야 지원 예산 현황 ··················································································· 43

2005년 노인대상 문화의집 복권기금 지원 프로그램 ···················································· 46

2005년도 박물관 복권기금 지원사업 중 노인 대상 교육 프로그램 현황 ················ 49

노인 설문조사 응답 기관 현황 ··························································································· 50

소재지 ······································································································································· 52

지역구분 ··································································································································· 52

성별 ··········································································································································· 52

연령 ··········································································································································· 53

경력 ··········································································································································· 53

학력(전체지역) ························································································································ 54

자격증 ······································································································································· 55

담당업무 ··································································································································· 55

기관 방문자 중 60세 이상 노인 비중 ·············································································· 56

노인 연령 분포(전체지역) ···································································································· 57

노인성별 분포(전체지역) ······································································································ 58

노인성별 분포(읍면지역) ······································································································ 58

노인 학력수준 ························································································································· 59

65세 이상 인구의 교육정도 ································································································ 60

노인의 경제적 수준 ··············································································································· 60

노인 신체적 건강 수준 ········································································································· 61

노인 사회적 만족도 수준 ····································································································· 61

노인 문화예술교육 프로그램 운영 유무(전체지역) ························································ 62

노인 문화예술교육 프로그램 운영 유무(읍면지역) ························································ 63

프로그램 운영 시 문화예술 프로그램 비중 ····································································· 64

프로그램 운영 시 노인 프로그램 비중 ············································································· 64

프로그램 운영을 못하는 이유 ····························································································· 66

현재 운영하지 않는 경우, 향후 노인 문화예술교육 프로그램 운영 계획 ················ 66

노인 문화예술교육의 필요성(전체지역) ············································································ 67

노인 문화예술교육의 필요성(읍면지역) ············································································ 67

노인 문화예술교육 프로그램 기획시 최우선 고려사항 ················································· 68

노인 문화예술교육 프로그램 기획 시 외부 자원 접근 경로(전체지역) ···················· 69

프로그램 기획 과정-전체 시설(수정) ················································································ 69

프로그램 시행 후 자체평가 유무-프로그램 평가 부분 ················································· 70

프로그램 시행 후 자체평가 유무-강사 평가 부분 ························································· 70

- iv -

프로그램 시행 후 자체평가 유무-수요자 만족도 평가 부분 ······································· 70

프로그램 시행 후 자체평가 유무-피드백 과정 ····························································· 71

노인 문화예술교육 프로그램 운영을 위한 자체 강사자원 확보 유무 ······················· 71

노인 문화예술교육 프로그램 운영 강사 섭외 방법 ······················································· 72

노인 문화예술교육 프로그램 운영 강사의 시간당 수당(전체지역) ·························· 72

자원봉사자 활용 유무 ········································································································· 73

자원봉사자의 연령 분포 ····································································································· 73

자원봉사의 시간당 수당 ······································································································· 74

프로그램 운영 가능성-문화의 집 ······················································································· 75

프로그램 운영 가능성-문화원 ····························································································· 75

프로그램 운영 가능성_박물관 ····························································································· 76

프로그램 운영 가능성-노인복지관 ····················································································· 77

프로그램 운영 가능성-무료양로원 ····················································································· 77

프로그램 운영 가능성-도서관 ··························································································· 78

프로그램 운영 가능성-기타 평생교육시설 ······································································· 79

노인 문화예술교육 중점 지원 대상 ··················································································· 79

노인 문화예술교육 중점 지원 대상(읍면지역) ································································ 80

노인 문화예술교육 프로그램 운영의 수준, 계층별 차별화 전략 ································ 81

지역에 기반한 네트워크 구축 및 지역 자원 활용을 위한 지역별 차별화 전략 ····· 81

노인 문화예술교육이 가장 효과적으로 운영될 수 있는 기관 ····································· 82

노인 문화예술교육이 가장 효과적으로 운영될 수 있는 네트워크 모델 ··················· 83

노인 문화예술교육의 지역적 토대 구축을 위한 핵심 요소 ········································· 84

노인 문화예술교육 프로그램 운영을 위해 선행되어야 할 사항-1순위 ···················· 84

노인 문화예술교육 프로그램 운영을 위해 선행되어야 할 사항-2순위 ···················· 85

노인 문화예술교육 프로그램 운영을 위해 선행되어야 할 사항-3순위 ···················· 86

노인 문화예술교육의 방향 ··································································································· 86

기관별 가장 선호하는 노인 문화예술교육 프로그램 ··················································· 91

기관별 세대 통합 프로그램 ································································································· 92

제약에 의해 시행하지 못했던 노인문화예술교육프로그램-문화의집 ························· 92

제약에 의해 시행하지 못했던 노인문화예술교육프로그램-문화원 ····························· 93

제약에 의해 시행하지 못했던 노인문화예술교육프로그램-박물관 ····························· 93

제약에 의해 시행하지 못했던 노인문화예술교육프로그램-노인복지관 ····················· 94

제약에 의해 시행하지 못했던 노인문화예술교육프로그램-무료양로원 ···················· 95

제약에 의해 시행하지 못했던 노인문화예술교육프로그램-평생교육시설 ················ 96

문화의집 ································································································································· 97

문화원 ····································································································································· 98

박물관 ······································································································································· 98

노인복지관 ···························································································································· 100

무료양로원 ···························································································································· 101

평생교육시설 ························································································································ 102

응답자 현황 ·························································································································· 103

- v -

그림 차례

노인 포커스그룹 인터뷰 질문 ·························································································· 104

성별 분포 ······························································································································ 104

학력분포 ································································································································ 105

경제적 수준 분포 ················································································································ 105

성격 분포 ······························································································································ 105

노인복지관에 오는 목적 ···································································································· 105

프로그램 참여 동기 ············································································································ 105

수강한 문화예술교육 프로그램 ························································································ 108

복지관에서 수강한 프로그램수 ························································································ 108

가장 인기있는 프로그램 ···································································································· 108

타기관 프로그램 수강 경험 ······························································································ 109

프로그램을 이용한 타기관 ································································································ 110

복지관 프로그램 만족도 ···································································································· 110

복지관 선호 이유 ·············································································································· 110

타기관이 만족스럽지 못한 이유 ······················································································ 110

현재 복지관에서 새로운 문화예술 프로그램 개설시 수강 여부 ······························ 111

타문화시설에서 프로그램 개설시 이용 여부 ································································ 111

복지관 개설 희망 프로그램 ······························································································ 111

노인정 개설 희망 프로그램 ······························································································ 111

세대통합프로그램 참여 의향 ···························································································· 112

성별 구분 프로그램에 대한 필요성 ················································································ 113

어르신 연령대별 프로그램 운영 필요성 ········································································ 113

심화프로그램의 필요성 ······································································································ 114

지속적인 단계별 프로그램 운영의 필요성 ···································································· 114

미국의 노인대상 문화예술교육 시설유형과 운영주체 ················································ 122

에센시의 문화여가프로그램 지원 예산 ·········································································· 138

[그림 1] 고령사회의 위기와 대응전략에 대한 모형 ······································································· 7

[그림 2] 저출산․고령사회기본법 ·········································································································· 9[그림 3] 앞으로 받고 싶은 교육(복수응답) ··················································································· 19

[그림 4] 지원 추진체계 ······················································································································ 39

[그림 5] 사회문화예술교육 관련 시설 및 단체 ······································································ 41

[그림 6] 복권기금사업 추진과정(2004) ·························································································· 43

[그림 7] 문예회관 지원사업의 목적 ································································································ 47

[그림 8] 기관 방문자 중 60세 이상 노인 비중이 20% 이상인 비율 ····································· 57

[그림 9] 노인 문화예술교육 프로그램 운영 비율(전체지역) ··················································· 62

[그림 10]프로그램 운영 시 노인 프로그램 비중 ·········································································· 65

- vi -

제1장 서론

제1절 연구목적 및 필요성

인구고령화에 대비하기 위한 그동안의 노인복지정책은 노인복지법의 제정이나 행정체계

의 정립을 통한 제도적 기반 마련에 초점을 둠으로써, ‘노인복지’라는 독립적인 서비스 분야

가 생성되는 등 소기의 성과를 보였으나, 노인복지 수요의 증가와 다양화에 대응하기에는 아

직 미비한 실정이다. 특히, 노인의 교육 및 문화 활동 지원과 관련해서는 노인 인구에 비하

여 노인교육기관 및 여가활동시설의 부족과 동시에, 노인의 문화ㆍ여가 활동 참여 비율이 저

조하고, 세대간 교류의 기회가 제한되어 있다. 노인인구 비율의 양적 팽창, 교육수준의 향상,

시대가 요구하는 지식의 변모, 문화예술 수요의 증대에도 불구하고 노인과 문화예술의 관계

를 설정하고, 결합하고자 하는 시도는 초보적인 수준에서 이루어지고 있는 상황이다. 다양한

복지욕구 해결은 시장원리에 맡기되, 정부와 민간의 적절한 역할 분담을 설정할 필요가 있

다. 민간의 자발적 참여 여건을 조성하고 정부와 민간의 역할분담을 통하여 노인 문제를 해

결하고 노인 문화를 만들어 나갈 수 있는 사회 역량을 강화할 필요가 있다.

기존의 하드웨어 중심의 노인복지에서 소프트웨어 중심의 노인복지로, 생계 중심의 살기

위한 노인복지에서 문화 중심의 삶의 질을 추구하는 노인복지로의 전환과 함께, 노인 문화예

술교육은 단순한 여가의 차원이 아닌, 문화예술을 통해 삶의 의미를 발견할 수 있는 학습의

차원으로 나아가야 하며, 사회문제로 대두된 노인문제는 정책적 차원의 대처에서 진일보하여

일상생활 속에서 노인문화로 형성되어야 한다. 노인의 복지와 교육의 차원을 넘은 문화의 차

원으로의 진전은 노인을 단순히 대상이 아닌 주체로서 설정하는 것이며, 노인문화의 창출 문

제는 노인만의 문제가 아닌 우리 모두의 문제임을 인식하는 것이 필요하다.

인간의 삶은 생리학적 기본 욕구와 그것을 초월하는 문화적 욕구의 복합적 산물이다. 노

인문화란 인간의 문화적 환경과 생물학적 환경 모두를 내포하며, 노인이 일상생활을 영위하

는 가운데 여러 생활자원에 의해 형성되며 축적해나가는 역사적, 사회적 생활상이다.

이러한 현재진행형으로서의 노인 문화의 존재 방식을 확인하고, 노인 문화의 형태에 따

른 문화예술교육의 방향을 설정하고, 60세 이상의 다층적 욕구를 가진 노인의 특수성을 고려

하여 노년층의 독특한 라이프스타일에 맞는 프로그램을 개발할 필요가 있다. 일본의 ‘생활은

거연구회’에서는 생리학적 기본 욕구와 그것을 초월한 문화적 욕구를 충족시키기 위한 생활

문화의 측면에서, 퇴직 전후의 노인들에게서 그들의 행동양식으로 나타나고 있는 은거(隱居:

돈과 물질에 집착하지 않고 자신만의 시간을 보낼 수 있는 시절에 풍요로운 노후를 보내기

위한 삶의 방법을 찾기 위한 새로운 기준을 모색하는 것)라는 양태를 발견했다. 또한 은거연

- ii -

구회에서는 고령자 문화를 정의하기에 앞서 고령자 활동은 첫째, 즐거울 것, 둘째, 유용할

것, 셋째, 고령자가 사회에 공헌할 것을 주요한 목표로 삼아야 한다고 주장한다.

문화예술이 근본적으로 가지고 있는 속성이기도 한 유희적 가치, 실용적 가치, 사회적

가치 외에 노인 문화예술교육 프로그램의 방향을 설정함에 있어 다음의 측면을 고려하고자

한다.

ㆍ개인의 삶과 분리되지 않은 문화예술 프로그램

ㆍ사회구성원으로서의 자아를 발견하고 성찰할 수 있는 문화예술 프로그램

ㆍ자발적인 지역의 노인문화를 만들어나갈 수 있는 문화예술 프로그램

ㆍ단순한 일회성 체험에서 끝나는 것이 아닌 체험을 통하여 자신과 사회와 문화예술에

대한 의미를 발견하고 창출할 수 있는 프로그램

ㆍ노인의 삶에 작은 변화를 가져다줄 수 있도록 뚜렷한 목표를 설정한 프로그램

ㆍ지역성을 반영한 문화예술 프로그램

제2절 연구내용 및 방법

○ 문화예술교육 정책 대상으로서의 ‘노인’ 개념 설정

- 노인에 대한 사회경제적 의미, 문화적 의미, 법제도적 의미 파악

- 문화예술교육 정책 대상으로서의 노인 연령 기준에 대한 합의 도출

○ 노인 문화예술교육의 범위와 방향 설정

- 현재진행형으로서의 노인 문화의 존재 방식을 확인하고, 노인 문화의 형태에 따른

문화예술교육의 방향을 설정할 필요가 있음.

- 문화예술 프로그램 적용대상 연령 범위 : 60세 이상의 다층적 욕구를 가진 노인

- 프로그램 적용의 공간적 범위 : 노인복지관을 중심으로 하되, 문화기반시설과 평생교

육시설과의 연계 방안을 모색함. 즉, 본 연구에서는 아래 표의 1단계를 중심으로 하되, 3단계

까지의 가능성을 모색함.

- 문화예술 프로그램 개발을 위한 내용 구성의 범위 : 주체적인 ‘노인 문화’ 형성을

위한 문화예술교육의 범주와 위상 설정

- iii -

○ 노인 문화예술교육 프로그램 분석

- 프로그램 분석 대상 기관 설정 : 노인교육시설 중 노인복지관을 중심으로 분석하되,

사회복지관, 노인교실, 경로당(활성화사업), 시군구민회관, 대학부설 평생교육원, 문화기반시

설 등의 기관에 대해서는 표본 추출을 통해 노인 문화예술교육 프로그램을 조사 분석함.

- 노인 문화예술교육 프로그램 분석의 틀 : 포괄성, 적합성, 실행가능성 측면

- 노인 문화예술교육 프로그램 분석을 통한 실현의 전제 조건 추출 : 정책적 추진체계,

참여 접근성 제고, 노인문화의 성립

○ 노인 문화예술교육 수요 파악

- 기존 통계 자료를 통해 개괄적으로 노인의 문화예술교육 관련 수요를 파악함.

- 노인 대상 포커스 그룹 인터뷰를 통해 교육 대상으로서의 노인 주체가 가지고 있는

문화예술교육의 욕구와 방향에 대한 심층 조사와 더불어 노인 교육기관의 프로그램 개발 담

당자를 대상으로 한 인터뷰 및 설문조사의 방법을 통해 노인의 문화예술교육 수요를 파악함.

- 시간, 공간, 계층 변수를 고려한 노인 학습자의 다층적 수요 분석을 기반으로 하여

노인 문화예술교육 프로그램의 목적과 방향에 대한 시사점 도출.

○ 노인 문화예술교육 프로그램 모형 개발

- 대상 특성별, 지역 특성별, 기관별, 프로그램 목적별 모형 개발

○ 노인 문화예술교육 운영 형태 모색

- 노인복지관을 거점으로 한 운영 형태

- iv -

- 문화예술기관을 거점을 한 운영 형태

- 다층적 기반(복합 거점 방식을 통한) 운영 형태

○ 노인 문화예술교육 지원 시스템 구축

- 노인 문화예술교육 지원의 원칙

- 노인 문화예술교육 프로그램 선정ㆍ평가기준 설정

- 사회적 지원망 구축 방안 : 물적 자원 연계, 인적 자원 연계, 프로그램 연계, 시스템

연계 방안

제3절 기대효과

○ 노인 문화예술교육의 지역적 토대 구축을 통해 문화예술의 역할과 노인에 대한 사회

적 인식 제고

○ 현장 적용 가능한 노인 문화예술교육 프로그램 모형 개발을 통해 노인복지관을 주축

으로 한 노인 문화예술교육 프로그램의 토착화에 기여

○ 노인 문화예술교육 지원 프로그램 선정 및 평가 지침으로 활용

- v -

제2장 노인 정책 흐름과 문화예술교육의 방향

제1절 노인정책과 문화복지

1. 노인정책의 흐름

가. 고령화1) 사회의 노인복지정책

현대 산업사회에서 지속적인 경제성장과 생활수준의 향상, 의료기술의 발달 등으로 인간

의 평균수명이 늘어나면서 노인의 절대 인구와 전체 인구에 대한 노인인구의 비율이 높아짐

에 따라 노인문제가 현실적인 문제로 대두되고 있다. 우리나라의 65세 이상 고령인구는 2000

년 전체인구의 7.2%를 넘어서 고령화 사회(Aging Society)가 되었고, 2019년 14.4%로 고령

사회(Aged Society)에 진입할 예정이며, 2026년에는 20.0%로 초고령 사회(Ultra Aged

Society)에 도달할 전망이다(통계청, 2003).

(천명, %)

1970 1980 1990 2000 2005 2010 2018 2020 2026 2030 2050

총인구 32,241 38,124 42,869 47,008 48,294 49,220 49,934 49,956 49,771 49,329 42,348

0∼14세 13,709 12,951 10,974 9,911 9,240 8,013 6,495 6,297 5,796 5,538 3,799

15∼64세 17,540 23,717 29,701 33,702 34,671 35,852 36,276 35,838 33,618 31,892 22,755

65세+ 991 1,456 2,195 3,395 4,383 5,354 7,162 7,821 10,357 11,899 15,793

구성비 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0

0∼14세 42.5 34.0 25.6 21.1 19.1 16.3 13.0 12.6 11.6 11.2 9.0

15∼64세 54.4 62.2 69.3 71.7 71.8 72.8 72.6 71.7 67.5 64.7 53.7

65세+ 3.1 3.8 5.1 7.2 9.1 10.9 14.3 15.7 20.8 24.1 37.3

자료: 통계청 홈페이지 (www.nso.go.kr)

연령계층 별 인구 및 구성비 추이 (1970-2050년)

특히 노인 인구의 비율이 7%에서 14%가 되는 기간이 프랑스 115년, 미국 75년, 일본 26

년이 걸린데 비해 우리나라는 불과 19년 밖에 걸리지 않을 것으로 예상되고 있다. 비록 우

리사회에서 고령화는 아직까지 서구사회처럼 심각한 수준은 아니지만 그 속도가 세계에서

유래를 찾아 볼 수 없을 정도로 매우 빠르다는 점에서 문제의 심각성이 크다. 우리나라의 경

우 고령화 사회(2000년)에서 고령사회(2018년)로의 증가 소요년수는 18년이고 고령사회에서

1) 고령화 사회의 분류(UN의 정의)

- 고령화사회(aging society) : 전체인구 중 65세이상 고령인구비율이 7%이상～14%미만인 사회

- 고령사회(aged society) : 전체인구 중 65세이상 고령인구비율이 14%이상～20%미만인 사회

- 초고령사회(super-aged society) : 전체인구 중 65세이상 고령인구비율이 20%이상인 사회

- vi -

도 달 년 도 증가소요년수

7% 14% 20% 7%→14% 14%→20%

일 본 1970 1994 2006 24 12

프 랑 스 1864 1979 2019 115 40

독 일 1932 1972 2010 40 38

영 국 1929 1976 2020 47 44

이탈리아 1927 1988 2008 61 20

미 국 1942 2014 2030 72 16

한 국 2000 2018 2026 18 8

초고령사회(2026년)로의 증가 소요년수는 8년으로 예측된다. 이는 세계 다른 나라들 중 우리

나라의 고령화속도가 가장 빠르다는 예견과 동시에 인구고령화에 대해 우리 사회가 제한된

기간내 시급히 준비해야 할 일들이 많음을 의미한다.

(년도, 년수)

자료 : 일본 국립사회보장ㆍ인구문제연구소, 「인구통계자료집」, 2003

인구고령화 속도 추이

인구고령화는 노인인구 증가에 따라 전통적으로 지켜오던 가족부양의 기능이 더 이상

가족단위에서 수행할 수 없게 됨으로써 사회복지의 부담이 증가하게 되고, 다른 한편에서는

생산인구의 규모 및 구성의 변화 (생산가능인구비율의 감소, 노동력의 고령화 등)로 인해 국

가 수준의 생산성 하락으로 인한 국가 경쟁력 쇠퇴를 의미한다. 다시 말해서, 생산 활동 인

구의 감소로 인한 조세 수입의 감소와 증가한 노인만큼 노인부양에 따른 재정지출의 증가로

인한 국가경쟁력의 둔화를 가져올 뿐 아니라, 불확실한 연금제도의 실행으로 인해 세대간 갈

등은 더욱 심화되고 있다.

세계에서 유래 없는 압축적인 고령화 현상을 맞이하고 있는 한국 사회가 지속가능한 발

전을 유지하고, 개인적으로 성공적인 노화를 이루기 위해서는 우선 노인에 대한 사회의 부정

적인 이미지를 떨쳐버리고, 노인들에게 적극적인 사회참여를 보장하는 것이 노인정책의 기본

방향이 되어야 할 것이다. 이는 곧 연령을 경계로 제도적ㆍ문화적 장벽이 높은 ‘연령분절적

사회’에서 연령의 유연성이 강조되어 연령간의 상호작용이 빈번하고, 사회문화적 구조의 진

입에 있어서 연령의 의미가 중요하지 않은 이른바 ‘연령통합적 사회’로의 전환이 밑바탕이

되어야 한다.

- vii -

목표 최저생활 보장 다양한 욕구충족

욕구 기초적 욕구 부가적 욕구

내용

- 사회적 최저기준 이하의 욕구

- 전체 노인을 위한 최소한의 예방적,

보편적 욕구

사회적 최저기준 이상의 욕구

공급주체 공공부문 (정부) / 민간부문 (비영리사업) 민간부문 (영리실버산업/비영리사업)

고령사회의 위기와 대응전략에 대한 모형

나. 노인복지정책의 방향성

21세기 고령사회를 목전에 두고 있는 우리나라의 노인복지정책은 앞으로 노인 개개인의

다양한 욕구를 충족시킬 수 있도록 노인의 경제적 상태와 건강상태를 감안하여 탄력적으로

개발 시행해야 할 것이다 (표 1 참고). 즉 ① 빈곤하고 건강하지 못한 노인들에게는 우선적

으로 최저생활의 보장을 해야 하겠지만, ② 건강하고 수입이 필요한 노인에게는 취업의 장을

마련해 주어야 하고, ③ 수입은 그다지 필요하지 않지만 활력 있는 노년기를 보내고자 하는

건강한 노인들에게는 여가활동이나 자원봉사활동의 기회를 제공해야 한다. ④ 건강하지 못한

중산층 이상의 노인에게는 다양한 유료 재가보호 서비스를 제공할 수 있어야 할 것이다 (표

2참고). 결국, 앞으로의 노인복지정책은 현재의 저소득층 중심의 정책에서 한 걸음 나아가서,

모든 소득계층 노인의 다양한 욕구 및 문제를 해결하는 방향으로 나아가야 할 것이다.

정부와 민간의 노인복지 역할분담의 기본전제

- viii -

건강상태

좋음 나쁨

경제

상태

좋음여가/문화예술활동/

자원봉사유료보건의료서비스

나쁨고용/취업

(간접적 소득보장)

국민기초생활보장제도

(직접적 소득보장)

다양한 노인들의 욕구에 따른 노인복지정책의 방향성

다. 저출산·고령사회기본법과 정부 관련부처의 역할이러한 고령사회의 도전에 효과적으로 대응하기 위해 한국정부는 2003년 고령사회대책

및 사회통합기획단을 발족하였고, 2004년 2월 대통령자문 고령화 및 미래사회위원회로 이를

확대 개편 하였다가, 고령화와 관련된 모든 법령의 모법의 역할을 하는 저출산․고령사회기

본법이 2005년 4월에 국회를 통과하고, 5월 18일 공포되었으며, 9월 1일부터 시행되기 시작

했다. 이를 근거로 고령화 및 미래사회위원회를 해산하고, 대통령을 위원장으로 하고, 12개

관련부처 장관과 민간전문가를 위원으로 하는 ‘저출산․고령사회위원회’를 발족하였다.

‘노인복지법’은 총 61조로 구성되었으며, 2005년 3월에 일부 개정이 이루어졌다. 법의 취

지는 노인의 질환을 사전에 예방 또는 조기발견하고 질환상태에 따른 적절한 치료 및 요양

으로 심신의 건강을 유지하고, 노후의 생활 안정을 위하여 필요한 조치를 강구함으로써 노인

의 보건복지증진에 기여할 수 있도록 함을 그 목적으로 하고 있다.

‘저출산‧고령사회기본법’은 국가의 지속적인 발전을 위한 인구 구성의 균형과 질적 향상

을 실현하고, 국민이 건강하고 안정된 노후생활을 보장할 수 있도록 2005년 9월 1일부터 본

법이 시행된다. 이 법은 총 32조로 구성되며 제2장 제2절 고령사회정책(11조-19조)에서 노인

의 고용과 소득보장, 건강증진과 의료제공, 생활환경과 안정보장, 평생교육과 정보화, 취약계

층 노인 등 가족관계와 세대간 이해증진, 경제와 산업, 고령친화적 산업의 육성 등 노인관련

지원 내용이 포함되어 있으며, 특히 제14조에서는 여가‧문회 및 사회활동의 장려를 위하여

국가 및 지방자치단체는 노후의 여가와 문화활동을 장려하고 이를 위한 기반을 조성하고, 또

한 자원봉사 등 노인의 사회활동 참여를 촉진하는 사회적 기반을 조성하도록 규정하고 있다.

- ix -

저출산․고령사회기본법2)

이와 같이, 저출산․고령사회기본법은 고령화 정책에 관련된 모든 법과 제도의 모범으로

서의 역할을 수행하게 되고, 12개 관련부처의 장관이 위원으로 있는 저출산․고령사회위원회

의 발족으로 인해, 노인복지의 주무부서인 보건복지부 이외에도 고령사회를 대응하기 위한

다양한 법과 정책들이 관련 부서에서도 실행되거나 실시될 예정이다 (표 3 참고).

노인 복지제도는 ‘사회보장제도’에 근간을 두고 있다. 특히, 경제적 어려움을 극복할 수

있도록 ‘노후생활보장’에 역점을 두고 추진되어 왔다. 보건복지부에서는 이러한 노인의 안정

된 생활보장을 위하여 ‘소득보장, 의료보장, 주택보장, 사회적서비스’에 대한 지원을 해오고

있다. 보건복지부 ‘복지정책’은 경로당, 노인대학(노인학교, 노인교실), 노인종합복지관, 사회

참여활동 장려 등이 있다. 이외에 ‘복지정책’에 관련하여 문화관광부 및 교육인적자원부에서

도 관련된 업무를 수행하고 있다. 문화관광부는 노인의 여가활동 장려를 통한 ‘삶의 질’을 높

일 수 있는 정책을 수립하고 있으며, 교육인적자원부의 경우는 ‘노인평생교육 확대’를 통한

노인들의 삶의 질을 높이고 있다(김세훈, 2005).

보건복지부 노후생활 보장을 위한 지원 예산은 2004년도 5,005억원이 지원되었으며,

2005년도에는 3,301억원의 예산이 배정되었다. 보건복지부 전체예산에서 노후생활 보장을 위

한 예산이 차지하는 비중은 2004년도에는 5.4%, 2005년도에는 3.8%였으며, 수치상으로는

2005년도 예산이 1.6% 감소한 것으로 보이나 이는 지방이양 사업 예산이 보건복지부 예산에

서 제외되었기 때문이다.

교육인적자원부의 노인교육 관련 정책은 평생교육 차원에서 추진되고 있다. 국가, 시‧도

수준, 군‧구 수준에서 평생학습관을 설치하여 운영하도록 규정하고 있다. 중앙에는 평생교

육센터(한국교육개발원 내 하나의 부서로 존재), 시‧도 차원에서는 지역평생교육정보센터,

군‧구 지역에는 평생학습관이 설치되어 운영되고 있다. 중앙의 평생교육전담기구 컨설팅, 평

생교육사 양성기관 지원, 전국평생학습축제지원, 평생학습도시 지원, 평생교육정보제공시스템

개발 및 DB 구축, 사이버교육운영시스템 구축, 평생학습대상사업, 노인 소외계층 지원사업,

2) 모선희 외 (2005), 현대노인복지론 (p.87). 학지사.

- x -

저출산·고령사회

기본법안 내용

보건

복지부

문화

관광부

정보

통신부노동부

행정

자치부

교육인적

자원부

여성

가족부

산업

자원부

고용 및 소득보장 ● ● ◑

건강증진 및

의료제공●

생활환경 및

안전보장●

여가 및 문화활동 ● ● ● ◑

사회활동

(자원봉사)● ● ● ● ◑

평생교육 ● ● ● ◑

정보화 ● ● ◑

취약계층노인 대상

(여성·장애노인)● ● ●

도시·농어촌 격차해소 ● ●

가족관계 및

세대간 이해증진● ● ●

평생교육정책지원단 등의 사업을 하고 있다. 특히 노인 소외계층 지원사업의 경우 4억 8청 8

백만원의 예산이 배정되어 있다. 평생교육 부문에서 노인교육 경우 교육인적자원부 차원에서

관련사업은 이루어지고 있지 않으며, 지역의 도서관에 설치된 평생교육센터에 시설당 1천만

원 내외의 지원이 이루어지고 있다. 지방비로 운영되는 지역평생교육정보센터(16개 시‧도)의

2004년도 관련 예산이 18억 배정되어 있다.

문화관광부의 경우, 2004년 11월 문화예술교육과를 신설한 뒤 322억원에 달하는 예산을

마련하여 다양한 문화예술교육 프로그램이 운영될 수 있도록 지원하고 있다. 그 대표적인 사

업이 교육인적자원부와 공동으로 추진하는 학교-지역사회 연계 시범사업이며, 이와 더불어

농어촌 등 문화적 취약 지역 주민들을 비롯하여 노인, 장애인, 탈성매매여성, 국제결혼이주여

성, 외국인근로자, 소년원 보호청소년 등 문화적 소외 계층을 대상으로 한 사회 문화예술교

육프로그램의 개발·운영에 대한 지원사업이 진행되고 있다. 이와 같은 문화예술교육사업에

대한 지속적이고 체계적인 기반 마련을 위한 문화예술교육지원법이 2005년 12월 제정되었다.

특히, 문화취약계층인 노인을 대상으로 하는 문화예술교육사업은 저출산․고령사회기본

법 제 2절 고령사회정책의 제 14조에 ‘여가․문화 및 사회활동의 장려’로 규정되어 있고, 이

와 관련된 정부부처들(보건복지부, 교육인적자원부, 여성가족부 등)과의 긴밀한 협력체계 구

축을 기반으로 문화예술교육 프로그램의 개발과 더불어 효과적이고 효율적인 전달 체계를

모색해야 한다.

- xi -

경제·산업구조 및

노동환경 변화● ●

고령친화산업육성 ● ● ●

관련법노인

복지법

문화예술

교육지원

법

지역문화

기본법(진

행중)

정보격

차해소

에 관한

법률

고령자

고용촉진

법

자원봉사

활동진흥

법

평생교육

법

건강가

정기본

법

고령친화

산업진흥

법

◑; 여성노인에 한정된 된 정책을 의미함.

저출산․고령사회기본법 내용에 따른 관련부처의 역할

2. 고령화사회와 문화복지 정책

가. 문화복지 정책의 흐름

국민들의 평균적인 삶의 질 향상, 더 구체적으로 말하자면 정신적이고 문화적인 풍요를

지향하는 욕구가 강하고 그것을 사회적 국가적 차원에서 정책적으로 접근하고자 할 때 그것

을 무어라고 해야 하는가? 최소한의 물질과 경제에 대한 욕구의 국가적 사회적 지원과 개입

을 의미하는 사회복지의 개념에 국민 전반의 문화적 정신적 풍요를 지향하는 정책 이념이

만나는 지점에서 문화복지의 지향점을 찾아볼 수 있을 것이다.

문화복지라는 의미는 학문적 용어라기보다, 정책적인 차원에서 접근해온 실용적이고 실

증적인 용어에 가깝다. 정부 정책의 방향에 따라 문화복지라는 용어가 수단적으로 사용되어

옴으로서 다의적인 의미로 해석될 수 있는 여지가 존재한다. 즉, 문화복지는 전반적인 국민

들의 문화향수 측면에 대한 공공지원을 의미하기도 하고, 전문예술인이 아닌 국민 전반의 문

화예술 활동 전반을 의미하기도 하고, 장애인, 노인 등 사회적 약자의 문화활동에 대한 공공

지원을 의미하기도 하는 등 거시적 차원과 미시적 차원의 정의가 문화정책 영역 내에서 혼

용되어 사용됨으로써 용어에 대한 공감대가 확고하지 않은 것이 현실이다.

80년대에는 ‘문화적 복지’라는 표현이 사용되었다. 국가 정책 차원에서 전개되는 정책의

내용은 복지라는 틀 속에 부분적으로 문화를 포함시켜 문화적 복지라는 표현으로 나타났다.

80년대 초반 새문화정책에서 언급된 문화적 복지는 문화복지를 독립적인 정책 영역의 방향

이나 영역으로 고려하거나 혹은 고려할 준비가 되어 있지 않았다. 단지 문화예술정책 영역에

서는 향수자의 권리 혹은 삶의 질과 관련한 문화예술의 중요성, 그 구체적인 정책 내용으로

는 지역간 문화격차 해소 등을 강조하는 차원에서 접근하였으며, 복지라는 어휘는 국정의 핵

심 방향으로 등장한 복지정책과 연관하여 문화적 복지라는 표현을 사용한 것으로 이해할 수

있다. 다시 말해서, 전문예술인 지원 위주의 예술정책을 전개하던 당시에 일반 국민이 정책

- xii -

대상으로 설정되고 그들의 생활과 질 향상을 위해 문화예술이 중요한 역할을 할 것이라는

논리가 문화정책과 복지정책 모두로부터 수용되었다.

문화복지라는 용어는 80년대 초반 새문화정책에서 언급된 이후 정책방향이나 정책용어

로 등장하지 않다가, 80년대 말에 작성된 ‘문화발전 10개년 계획’에서 다시 나타난다. 여기서

는 문화가 복지적 정책의 대상임을 다시 한번 천명하고 있으며, 주로 삶의 질 개선이라는 차

원에서 다루어지고 있다. 따라서 80년대 초 새문화정책에서 언급되었던 문화와 복지의 관련

성에 대한 인식과 근본적인 차이는 없었다.

‘문화발전 10개년 계획은 문화복지국가를 지향하는 우리의 미래지향적 좌표를 설정하여

경제발전에 병행하는 문화발전을 통해 복지국가를 지향하는 국민의 의지를 체계적으로 구축

하는 것이다’라고 함으로서 80년대 초반의 문화와 복지를 연결하는 정책이념의 연속선상에

놓이게 된다. 이러한 문화복지국가에서의 삶의 모습은 ‘다가올 새로운 시대는 풍요로운 삶의

질을 향유할 수 있는 시대’3)라는 표현에 잘 나타나 있다. 따라서 문화와 복지의 결합을 통한

문화복지국가의 이상은 ‘풍요로운 삶의 질 향유’를 지향하고 있음을 알 수 있으며, ‘국가발전

의 궁극적 목적은 삶의 질을 높이는 문화창달에 있다(p.25)’는 표현에 잘 나타나 있다. 이와

같이 삶의 질은 문화복지 정책의 바탕이자 지향점이다.

또한 문화발전 10개년 계획에는 90년대에는 경제적 측면에 대한 소득의 증가로 인하여

각 계층의 문화적 욕구가 다양하게 표출될 것이라고 전망하고 있다(p.3~5). 더욱이 ‘국민의

평균 수명이 높아짐에 따라 노년층이 확대되고 지금까지 소홀히 취급되었던 노인문화에 대

한 관심과 문화복지에 대한 관심이 고조될 것’이라고 전망하고 있다. 즉, 소득에 따른 다양한

계층의 문화욕구가 표출될 것이라는 전망 하에 문화복지에 대한 언급을 간략하게 하고 있다.

하지만 문화복지에 대한 인식의 정도가 지난 정부 혹은 80년대 초에 비해 적극적이지 않아

서 문화복지 관련 사업이 그다지 많이 제시되지 않았다. 다만 지역문화 활성화와 문화향수

기회의 확대 등의 문화복지 관련 정책 영역 혹은 방향이 제시되고, 향수층을 적극적으로 지

향하는 정책으로서의 문화수요를 찾아가는 방안을 제시하고 있다. 이러한 정책의 결과가 ‘찾

아가는 문화활동’이라는 정책 아이템을 생성시켰던 것으로 보인다. 찾아가는 문화활동 정책

은 후에 대표적인 문화복지 정책이라 할 수 있을 만큼 이 시기의 문화향수 중심의 정책이

상당한 영향을 미친 것은 사실이다.

1996년 국민의 정부가 발표한 문화복지 정책의 기본 목표는 진정한 의미의 ‘삶의 질’을

높이기 위하여 국민들의 문화적 생활, 건강한 생활, 쾌적한 여가생활을 실현하는 제반 공공

서비스를 제공한다는 것이었다. 당시 문화부는 문화복지 개념을 명료하게 하기 위하여 복지

를 사회복지로 인식하고 있었던 만큼 사회복지와의 차별성을 드러내고자 노력하였다. 사회복

지의 개념을 ‘결핍으로부터의 자유’에서 벗어나 ‘삶의 질 향상’이라는 적극적인 개념의 확장

으로 이해해야 한다고 하면서, 자아실현과 문화생활의 기회 확대, 개인의 창의가 최대한 발

3) 한국문화예술진흥원 문화발전연구소, ‘문화발전 10개년 계획 기본개념’, 1989. 머리말

- xiii -

휘되면서 동시에 가족 및 공동체와의 화합과 민주적 참여 속에 상호 정서적 지지와 함께 문

화생활을 누리는 사회의 구축이 사회복지의 최종 지향점이라는 측면을 강조하였다)4). 이러한

복지에 대한 이해와 지향에 대한 공감대를 형성하면서 문화복지라는 독특한 복지의 영역에

대한 필요성이 제기되었다. 이러한 정부 차원에서 강력하게 전개된 문화복지의 논리적 바탕

은 문화권 개념과 헌법상 문화국가 구성원리 등이었다. 1980년대의 문화적 복지 개념과 이론

적으로는 새로운 부분을 찾기가 힘드나, 실천적 측면에서는 무엇보다도 문화복지를 공식화했

으며 또한 이를 추진하기 위하여 문화복지 기획단을 구성하여 정책을 체계적으로 전개하고

자 했다.

1996년 당시 정부의 문화정책 기본 구도를 ‘창의적 문화복지국가’로 설정했을 만큼 문화

복지는 문화정책의 궁극적인 목표로 부각되었으며, 창의적 문화복지국가의 건설에 대한 접근

에는 문화를 국가발전의 핵심동력으로 이해하는 10대 중점과제5)가 제안되였고, 그 안에는

‘문화복지의 실질적 구현을 통한 삶의 질 향상’이라는 구체적 과제가 제시되었다.

‘문화복지의 실질적 구현을 통한 삶의 질 향상’은 다시 평생교육을 위한 문화기반시설의

역할 확대, 문화지구와 문화프로그램 정보 등을 통한 새로운 기반조성, 문화소외계층을 위한

지원정책, 문화자원봉사 육성, 문화예술교육과 문화프로그램 개발 등의 정책과제가 선정되었

다6). 실제 진행된 정책이 계획을 넘어 그 이상 달성되지는 않았다는 한계를 가지고 있으나,

문화복지를 국가문화정책의 궁극적 목표로 설정한 점은 적어도 문화복지라는 어휘의 존재를

분명하게 해주었다는 점에서 의의가 있다.

자율참여분권을 기치로 내걸로 출범한 참여정부의 문화정책은 ‘창의한국’이라는 이름으

로 소개된 문화정책비전서를 통해 파악할 수 있다. 이 계획에서는 문화복지라는 어휘를 거의

찾아보기 어렵다. 다만 과거의 문화복지 정책을 구성하던 내용 그 자체는 그대로 남아있으며

27대 과제에 각각 포함되어 있다. 문화활동 증진과 여가문화의 질 향상, 문화적인 노후생활

보장, 사회적 취약계층의 문화권 신장, 쾌적하고 아름다운 공간환경 조성, 문화시설의 균형적

확충과 운영 활성화, 지역문화의 역동적 특성화, 농어촌 문화환경 조성 등이 과거에는 문화

복지라는 이름 하에 정책 내용을 구성하던 것들이다. 문화와 복지관련 업무와의 관련성을

파악하기 위하여 문화복지라는 어휘를 사용하고 있다. 즉 부처간 업무 협력이 필요한 부분을

언급하면서 문화복지에 대해서는 복지부, 여성부, 행자부, 법무부 등과 협조가 필요하다고 하

면서 예시를 든 연관분야, 즉 어린이, 장애인, 노인, 저소득층, 여성문화, 직장체육, 실업자,

이주노동자, 재소자 등의 문화복지, 지역문화 등을 연관 분야로 들고 있다. 따라서 문화복지

는 사회적 취약계층, 여성, 그리고 재소자 등의 문화생활 및 향수가 문화복지에 포함되는 것

으로 보고 있다고 할 수 있다.

4) ‘한국문화예술진흥원, 문화예술 1996년 4월호, 10월호, 한국문화정책개발원, 문화복지중장기실천계획, 1996 참조

5) 문화관광부, ‘국민의 정부 새문화관광정책’, 1998

6) 문화관광부, ‘국민의 정부 새문화관광정책’, 1998. 37~41쪽.

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문화복지와 관련해서 과거의 문화복지 정책이 평균적이고 일반적인 의미에서 국민 전체

의 문화수준 향상을 지향했다면 현 정부의 문화복지 정책은 소수자 중심의 순수복지 영역으

로 국한시키려 한 점이 다르다고 할 수 있다. 최근의 문화복지는 협소한 복지 개념의 측면에

서 설정하고 있는데, 문화권의 구현을 사회적 소수자에 관련시켜 중요 과제를 설정하고 있

다. 과거에 개별 단위의 여러 정책을 묶는 개념으로서 문화복지가 활용되었다면 20여년에 걸

쳐 지속된 문화복지 정책의 이념 및 내용은 문화복지라는 어휘를 사용하지 않음으로서 사라

진 것이 아니라 여러 단위로 분화되었다고 말할 수 있다.

거시적인 차원에서 접근했던 문화복지의 개념이 현재에 이르러 그 개념이 축소되는 동

시에 분명한 대상과 목표를 갖게 되었다. 하지만 고정적인 의미로 사용되는 것은 아니다. 사

회적 약자에 대한 문화정책을 포괄하는 의미에서 문화복지가 사용되고 있으나, 노인, 장애인,

외국인노동자 등을 별개의 독립적인 정책 아이템으로 다루어도 무방하다는 측면에서 문화복

지 정책의 대상 중심적 접근은 한계가 있다. 더욱이 �