육아정책의 발전적 로드맵 제시를 위한 현금급여 제도 발전방안 연구

Abstract

This study aims to propose an integrated institutional framework for cash benefit systems targeting children and families within the context of childcare policies. In recent years, Korea has expanded its child-focused cash benefits, adding programs such as parental benefits, child allowances, and home care allowances. Home care allowances were introduced in 2009, followed by child allowances in 2018, and most recently, parental benefits in 2023, which now provide 1 million KRW per month for infants under one year old. Given these developments, a comprehensive review is necessary to ensure the sustainability and consistency of these programs, moving beyond expansion to create a cohesive cash benefit system for the long term. The research included an analysis of child cash benefit systems in Korea and OECD countries to identify key issues and trends in international systems. Additionally, it conducted an in-depth analysis of the systems in Germany, France, Belgium, and Sweden. This study included a Delphi survey of cash benefit policy experts and an analysis of user experiences and needs, focusing on drawing out core elements to determining policy scenarios. Key insights from analyzing 19 OECD countries include a trend among these nations to provide family allowances averaging around 5% of the mean full-time worker’s earnings. Moreover, most OECD countries provide child allowances with differentiated benefits, though the criteria vary widely by country. Some countries, such as Germany and Belgium, offer supplementary allowances or tax benefits to support low-income families with children. Countries with home care allowances, including Denmark, Finland, Norway, France, and Hungary, typically provide benefits until children are two to three years old and often limit the duration to 7–12 months, with restrictions on working hours or use of child care services. Adjustments to allowance amounts are regularly made according to specific standards. The Delphi survey revealed that, according to experts, the primary objective of child and parental cash benefits is to alleviate the financial burden of parenting. Experts also highlighted the importance of child allowances as a means to safeguard children’s basic rights. A significant majority supported extending the age eligibility for child allowances to 18 years. Both experts and parents prioritized increasing the eligibility age and raising the monthly payment amounts. This study proposed seven policy scenarios. In all scenarios, child allowances are provided for children under the age of 18, with the monthly payment amount set at three options—adjusted for inflation, 200,000 KRW, or 300,000 KRW. Parental benefits remain unchanged, while home care allowances are maintained only for children with disabilities or families in rural areas. The child tax credit is gradually reduced in correlation with eligibility for child allowances. Additionally, four supplementary scenarios introduce extra child allowances for families with multiple children and additional allowances based on household income. Simulation analyses of these scenarios indicated that the scenario providing a 300,000 KRW monthly child allowance was the most effective in reducing the financial burden of child-rearing, followed by scenarios with multi-child and income-adjusted supplements. Notably, the option with income-based differentiation showed the highest effectiveness in reducing the cost burden for families with multiple children. Among the scenarios, the 300,000 KRW child allowance scenario required the largest budget (25 trillion KRW), but a scenario with income-based adjustments proved to be nearly as effective while requiring significantly less funding. For a comprehensive and sustainable approach, the study emphasizes legislative amendments and the establishment of a unified system for managing income security for families. Recommended adjustments include a restructured child allowance framework, incorporating reforms to the existing child tax credit and child incentive programs. In the long term, it may be beneficial to phase out home care allowances for general populations while maintaining those for rural and disabled children until adequate public childcare and educational services are available nationwide. Additionally, the ongoing need to clarify the purpose of parental benefits remains, especially regarding their potential impact on public infant care services and alignment with parental leave policies. Strengthening public infant care services and supporting a cohesive parental leave policy are crucial for the effective implementation of these proposed changes. This study suggests that these scenarios can guide policymakers in selecting the most suitable direction for Korea’s family cash support programs based on national priorities for child welfare and family support.