한국 특수교육정책 발전과정에 관한 연구 = (A) study on the development of the law, curriculum, teacher education and administrative structure of special education in Korea

국문 초록 (Abstract)

이 연구는 특수교육정책과 관련하여 특수교육정책의 태동기ㆍ정초기ㆍ발전기ㆍ도약기로 시대를 구분하고, 각 시대별로 특수교육 관련법규ㆍ교육과정ㆍ교원ㆍ행정조직 정책의 내용과 그 결정과정을 교육권 보장과 특수교육 효율성 제고의 측면에서 분석하여, 이를 바탕으로 우리나라 특수교육 정책의 발전 방향을 제시하는 데 그 목적을 두었다.
이와 같은 목적을 달성하기 위해 적용한 시대구분, 분석내용, 분석관점 및 자료수집은 다음과 같다: 첫째, 시대구분은 특수교육정책 태동기(1870~1948년)ㆍ정초기(1949~1976년)ㆍ발전기(1977~1993년)ㆍ도약기(1994~현재)로 구분하였다; 둘째, 분석내용은 특수교육 관련법규 정책, 특수교육 교육과정 정책, 특수교육 교원 정책, 특수교육 행정조직 정책으로 구분하여 분석하였다; 셋째, 분석관점은 특수교육대상자의 교육권 보장과 특수교육 효율성을 위하여 어떠한 정책적 배려를 하고 있는가 하는 두 가지 관점에 따라 분석하였다; 넷째, 자료수집은 특수교육정책 자료로서 연혁법령, 국가가 발행한 문서, 단행본, 신문, 관보, 일제강점기의 조선총독부 관보, 미 군정청 관보, 국회회의록, 교육인적자원부 문서, 인터넷 자료, 특수교육 연차보고서, 특수교육발전계획, 정부조직법, 정부조직변천사, 교육관련 사료 등을 중심으로 관련 자료를 수집하였으며, 일차적으로 수집한 자료는 특수교육 관련법규ㆍ교육과정ㆍ교원ㆍ행정조직 정책별로 분류하여 정리하였다. 이 연구의 결과를 특수교육정책의 태동기ㆍ정초기ㆍ발전기ㆍ도약기별로 요약하면 다음과 같다.
첫째, 태동기를 공권력의 변동에 따라 개화기, 일제 강점기, 미군정기로 구분하여 분석하고 정리하였다. 개화기에는 특수교육의 필요성과 교육성과에 대한 자각을 통하여 특수교육정책에 대한 문제화 단계의 싹을 심는 시기였다. 일제 강점기에는 조선총독부의 공권력에 의하여 설치된 제생원과 사립특수학교에서 맹ㆍ농아를 중심으로 교육을 실시하였으므로, 공권력에 의한 특수교육이 시작된 시기라 할 수 있다. 미군정기는 평등한 교육권 보장이념이 구축되어, 이를 토대로 특수교육정책이 제도화 될 수 있는 기초가 다져진 시기였다.
둘째, 정초기는 교육법에 특수학교와 특수학급을 규정하고, 특수교육대상 학생의 국민학교 과정 교육은 의무교육으로 실시하여 특수학교와 특수학급의 취학률을 제고하려고 노력한 시기이다.
셋째, 발전기는 특수교육진흥법의 제정으로 특수교육이 의무교육과 무상교육으로 특수학교와 특수학급을 중심으로 이루어져서 특수교육이 양적으로 성장한 시기였다.
넷째, 도약기에는 특수교육진흥법의 전면 개정을 통하여 취학권과 학습권의 보장, 의무교육과 무상교육의 범위 확대, 통합교육ㆍ개별화교육ㆍ치료교육ㆍ직업교육 등이 강조되었고, 특수학교 교육과정을 통합교육 추세에 적합하도록 개정을 시도하였으며, 교원자격제도가 안정적으로 확립되었다. 또한 행정조직이 정비되어 특수교육이 양과 질적 측면에서 도약한 시기이다.
특수교육정책의 발전과정을 분석한 결과를 바탕으로 특수교육정책의 발전방향을 관련법규 정책, 교육과정 정책, 교원정책, 행정조직 정책으로 구분하여 제시하면 다음과 같다.
1) 관련법규 정책 발전방향
첫째, 특수교육대상자는 특수교육진흥법 제10조 제1항 제8호의 ‘기타 교육인적자원부령이 정하는 장애’를 구체적으로 조속히 규정하여 특수교육을 필요로 하는 대상 학생들의 범위를 확대하여 교육권을 보장할 필요가 있다.
둘째, 통합교육을 강화한다는 취지로 일반학교의 일반학급에 배치되는 특수교육대상자들의 학습권을 보장하고 지원하여 줄 수 있는, 특수교육 교사를 배치하는 법제화가 필요하다고 본다.
셋째, 특수교육의 관련 법규를 제정하거나 개정할 때는, 도약기의 법규정책 형성과정과 같이, 공청회 등을 통하여 정책대상 집단의 의견들을 다양하게 수렴하는 과정이 필요하고, 수렴된 요구들을 문제화ㆍ논제화ㆍ의제화ㆍ공식화할 때는 관련 집단들을 다양하게 참여시켜야 한다.

다국어 초록 (Multilingual Abstract)

The purpose of this study is to present the future direction of special education development of Korea by analyzing policies related to special education. In order to achieve the purpose this study divided history of special education into the following periods: the Quickening Period of Special Education Policy, the Foundation Period, and the Developmental Period, and the Take-off period. According to each period special education related law, curriculum, teacher education policy and administrative structure were discussed.
The term of each period was classified into the Quickening Period (1870-1948), the Foundation Period(1946-1976), the Developmental Period (1977-1993), and the Take-off period(1994-present). The perspective of analysis was based on the right to education of students with special needs and on policies to support and enhance special education delivery. The data collection includes history of laws and regulations, records of National Assembly, official daily gazette of Japanese Colonial Period and American Military Administration Period, government document, related literature and interviews with related personnel. Collected data were extracted and rearranged in order to analyze the process of the formation, implementation, and evaluation of the policies.
The summary of the results is as follows. The Quickening Period can be divided into three sub-periods based on the modern history of Korea, Civilized Nation Period(1870-1910), Japanese Occupation Period(1911-1945), and American Military Administration Period(1946-1948). During the Civilized Nation Period the needs and effect of special education had been recognized and presented special education as an issue. During Japanese Occupation Period Je-sang-won was established starting educating blind children by the administrative power and private special schools also established to educate blind and/or deaf children. During the American Military Administration Period concept of equal right to education was founded and the base of special education system was also founded.
In the Foundation Period the regulations on special schools and special classes were stipulated in Education Law and elementary school education of students with special needs became compulsory by the official efforts of improving school enrollment.
The Developmental Period saw gradual increase in quantity in special education with the increasing number of special schools and special classes. The Special Education Promotion Law stipulated special education as free and compulsory.
During the Take-off Period through the overall revision of Special Education Promotion Law right to school enrollment and learning, extension of free and compulsory education, inclusive education, individualized education, therapeutic education, vocational education were strengthened. Special Education teacher qualification system was stabilized and the central administrative organization was well equipped. It can be said this period saw the growth in quality as well as quantity of special education.
Based on the results of this study, the future direction of special education development can be suggested as follows by a) special education related laws and regulations, b) special education curriculum, c) special education teacher training and placement policy, and d) special education administrative structure.
a) Future Direction of Special Education Related Laws and Regulations
First, in order to guarantee the right to education of students with special needs other disabilities regulated by the Ministry of Education and Human Resources Development should be specified and stipulated in Special Education Promotion Law in the near future.
Second, legislation of special teacher assignment is needed in order to support the right to learning of students with special needs who are placed in regular classes.
Third, while establishing the laws or regulations, all related and interested groups and organizations should be included in the process of hearing opinions, changing them into problems, issues, and official statements.
Fourth, in the process of policy implementation, established policies should not be abolished with various reasons as happened in the Quickening Period of Special Education Policy. In case difficulty is expected in the process of the policy implementation alternate policies or official actions for the delay of the policy should be established.
Fifth, evaluation of legislative policy has been done by the government itself so far, however, an organization or a committee needs to be designated to carry out the evaluation officially. Based on the results further legislative policy should be established and implemented.
b) Future Direction of Special Education Curriculum
First, the term for curriculum revision should not be delayed as in the Foundation Period. The time for revision or change of special education curriculum should go with regular education curriculum particularly under the inclusive education policy.
Second, the direction of special education curriculum should go with regular education curriculum as in the Take-off Period with the trend of inclusive education. However, features such as category and degree of disability and school level should be counted.
Third, special education curriculum should be revised including individualized education, vocational education and therapeutic education and the management of the curriculum should be given to schools.
Fourth, for the curriculum revision researchers participate in the process and moreover, groups of professionals, teachers, parents and students should also be involved in the process of curriculum revision.
c) Future Direction of Policies on Special Education Teacher Training and Placement
First, current policies on special education teacher qualification has problems such as disagreement between academic subjects needed for special schools and special classes and academic subjects presented on the certificate, unbalance in the required number of teachers by academic subjects and trained teachers, demand on the classification between elementary and secondary level in the fields of mental retardation and emotional disorder, issues on the appropriateness of the current qualification system for inclusive education and the appropriateness of the current certificate without designated disability category. These issues should be resolved continuously.
Second, special education teacher training has been centered on colleges and graduate schools, however, the current enrollment quorum was excessively allotted. Therefore, in terms of human resource management the enrollment quorum needs to be accommodated in consideration of disability category, academic subject areas, school level and educational needs. From the perspective of the gradual extension of inclusive education, a special education teacher should be allowed to acquire the certificate of qualification for a regular education teacher when he/she receives mater's degree in general education area as a regular education teacher is currently allowed to be qualified as a special education teacher once he/she receives mater's degree in special education.
Third, as preferential policies for special education teachers, measures such as presenting higher allowance, one level higher salary class or additional point for promotion were implemented. However, additional point for promotion policy tended to be annihilated and preferential policy in salary control only is not enough to fulfill the intention. Different ways of preferential policies need to be investigated from various perspectives.
d) Future Direction of Central Administrative Structure Development
First, considering special education administrative organization has a close relationship with overall special education development, an independent division level organization which is different from a current joint division should be installed in the Ministry of Education.
Second, currently there are four members in the special education part of the Special Education and Health Division including one chief of the division, one senior educational researcher and two educational researchers. As there are increasing demands on special education and the demands get more complicated the organization requires placement of more than 7 professionals in all who have expertise in special education by each disability category.
Third, future research need to focus on special education policies of local educational organizations since special education shows gradually increasing tendency of decentralization and localization.

목차 (Table of Contents)

• 목차
• I. 서론 = 1
• 1. 연구의 필요성 및 목적 = 1
• 2. 연구 방법 = 5
• II. 특수교육 관련법규 정책의 발전과정 = 10
• 1. 태동기의 관련법규 정책 = 10
• 2. 정초기의 관련법규 정책 = 23
• 3. 발전기의 관련법규 정책 = 30
• 4. 도약기의 관련법규 정책 = 36
• III. 특수교육 교육과정정책의 발전과정 = 47
• 1. 태동기의 교육과정정책 = 47
• 2. 정초기의 교육과정정책 = 53
• 3. 발전기의 교육과정정책 = 58
• 4. 도약기의 교육과정정책 = 79
• IV. 특수교육 교원정책의 발전과정 = 87
• 1. 태동기의 교원정책 = 87
• 2. 정초기의 교원정책 = 90
• 3. 발전기의 교원정책 = 96
• 4. 도약기의 교원정책 = 103
• V. 특수교육 행정조직정책의 발전과정 = 110
• 1. 태동기의 행정조직정책 = 110
• 2. 정초기의 행정조직정책 = 114
• 3. 발전기의 행정조직정책 = 118
• 4. 도약기의 행정조직정책 = 121
• VI. 요약 및 결론 = 130
• 1. 요약 = 130
• 2. 결론 = 137
• 참고문헌 = 140
• 영문초록 = 146