위기가족지원서비스 확대를 위한 정책과제 연구

A study on the policy issues for the expansion of support services for families in crisis

Ⅰ. 연구개요 □ 연구배경 및 목적 ○ 현대사회는 개인 및 가족의 생활을 위협하는 다양한 위험요소들이 존재함. 이러한 사회적 위기가 상시 발생하면서 이에 적절히 대응하지 못하고 위기를 경험하는 가족이 증가하는 추세임. ○ 가족위기 관련 연구에 따르면 가족원이 위기상황을 직면한 경우 그 충격은 당사자 개인뿐 아니라 가족구성원에게 여파를 미치므로 가족의 회복력(resilience)을 높이는 대처전략이 필요한 것으로 보고됨(김경신 외, 2012; 박정윤, 2012; 윤명숙ㆍ최수연, 2013; 이선영, 2011) ○ 그럼에도 불구하고 지금까지 한국에는 재난이라는 사건이 가족에게 미치는 영향이나 사건 이후 직면한 위기의 양상에 대해 보고한 연구는 거의 없으며 관련 정책 역시 매우 부족한 실정임. 그러나 가족위기에 적절히 대응하지 못할 경우 가족의 위기상황이 장기화될 우려가 있으므로 신속한 대응 및 지속적인 지원 방안 마련이 절실히 요구됨. ○ 본 연구는 새로운 위험요소로 출현한 재난으로 가족들이 직면하는 위기의 양상을 진단한 후 현행 대응정책과 가족위기의 정합성을 검토해 보고자 함. 또한 외국의 재난대응체계와 가족의 회복과정 지원 등의 사례를 살펴보고, 재난위기가족에 효과적으로 대응할 정책과제를 개발하고자 함. □ 주요 연구 내용 및 방법 ○ 재난과 가족의 위기 양상을 조명하고 현행 재난관련 대응체계의 현황을 검토하기 위한 문헌연구 및 관련자료 검토 ○ 미국, 일본 등 위기가족을 지원하는 정책, 민-관 협력 방식의 해외 사례분석을 통해 국내에의 적용가능성 검토 ○ 일본의 재난대응체계 및 피해가족의 회복과정 지원 사례 공유를 위한 한ㆍ일 심포지엄 개최

Although research and discussion have been made on disaster management measures throughout the society after the Sewol ferry incident, they have mainly been from the macroscopic view, and there has been insufficient response to the families who suffered direct damage due to the incident. The study is aimed at diagnosing the patterns of crisis resulting from disasters from the standpoint of families, examining existing policies on disaster management and relevant families, and exploring management measures to minimize the impact of crisis for families. The study was carried out based on literary reviews, expert consultation and interviews, a Korea-Japan symposium, and overseas case studies. Key findings of the study can be summarized as follows. First, as the society becomes more complex, today's disasters occur in complicated ways, with sudden accidents often growing into large-scale calamities that can happen unexpectedly any time. Second, Previous studies on the crisis of families due to disasters report that these crisis situations are likely to continue. Also, according to some trigger factors, families may undergo the disruption of family functions and breakdown of relationships inside and outside the family. The crisis of disruption of family functions involves decline in physical and mental health, lack of caregivers, termination of breadwinning assistance, etc., and the patterns of crisis tend to be exposed visibly. The breakdown of relationships inside and outside the family occur among family members as well as between family members and their relatives, neighbors or acquaintances; it is usually not visible and this risk can be minimized through positive interactions. Third, concerning laws regarding disasters, the Framework Act on the Management of Disasters and Safety was enacted in 2004, based on which the 2nd National Safety Management Plan is being implemented under the goal of realizing an OECD-level safety in the country. Systems related to the plan include the National Disaster and Safety Management System, the National Emergency Management Agency's Psychological Support System for Disasters, the Disaster and Safety Management Fund and the National Disaster and Safety Management Information System. In addition, the Ministry of Gender Equality and Family provides services to support families in crisis from 30 service centers all over the country and provinces nationwide to minimize the damage of disasters on families, recover family functions, and prevent dissolution of families. Problems of existing response measures include the lack of support for the recovery of normalcy for families who suffered damage within the present disaster management system; the focus on economic compensation of and recovery from natural disasters; and the top-down system centered on infrastructure in spite of the reinforcement of the institutional basis through continued supplementation. Based on the above patterns of crisis faced by families due to disasters and issues of disaster management policies, the following suggestions are made on the future policy direction. First, to minimize multidimensional and multilayered crisis of families due to disasters, it is necessary to develop a system of support for the overall processes of the family resilience. This is needed in order to overcome the lack of a comprehensive approach and expand the support for families in crisis, which is quite limited at present. Second, a shift should be made from the top-down system, which is likely to weaken crisis management ability and prevent swift response, to the bottom-up systems, which promote cooperation among different agents. Also, flexible organization management is necessary to promote cooperation among different agents.