韓國邁向超高齡社會之因應策略及實施現況─以「首爾學習4050」為例

South Korea’s Strategies and Implementation toward a Super-aged Society: A Case Study of “Seoul Learn 4050”

韓國早期之高齡政策係以「活力老化」（active ageing）為核心理念，強調透過經濟保障、健康促進與休閒文化建構等措施，提升退休老人之生活品質。然而，面對少子化情況加劇，以及人口快速老化與科技發展所引發之社會結構變遷，傳統高齡政策在回應高齡族群日益多元的需求與生活品質提升方面已顯不足。為回應此一轉變，韓國政府設立「首爾50Plus財團」（Seoul 50 Plus Foundation），並推動「50Plus政策」，致力於強化中老年職涯規劃、再就業能力與社會參與等方面的支持機制。惟在人工智慧與自動化技術快速普及的背景下，中老年非自願性提前離職之現象日益嚴重，使得政策關注的年齡範疇亦逐漸由傳統認定的50歲以上向下延伸至40歲，進而形成40至60歲「中老年」政策對象的新定義。為此，韓國政府於2022年進一步更新政策方向，推出「首爾學習4050」（Seoul Learn 4050），期以更具前瞻性的學習與支持系統回應中老年世代在數位與勞動轉型時代下的挑戰與需求。

本研究採取文獻分析法，聚焦「首爾學習4050」政策，分析韓國面臨超高齡社會所發展的策略性回應與制度上的實踐，並試圖提供臺灣在邁向超高齡社會過程中的政策參照與建議。

研究結果歸納出四項主要結論，分別為：一、韓國社會在「活力老化」概念與實踐範疇上更加重視社會層面的議題；二、韓國高齡政策中策略性轉向為中老年的再定位；三、以特定年齡層對高齡政策期許為據，落實該年齡層的政策支援；四、專責機構的分層性支援與研究導向之政策實踐。韓國經驗提供了具體的制度借鏡，未來臺灣若欲建構更具前瞻性與包容性的高齡政策，將可進一步實現積極老化與全齡參與的社會願景。

Research Motivation and Objectives

South Korea became a super-aged society in 2024, when the proportion of people aged 65 or older exceeded 20%. It was the second country after Japan to reach this status, setting a record for the shortest transition time from an ageing society to a super-aged society– just seven years. In response, South Korea’s policies for the older people emphasize sustainable and long-term solutions.

The foundation of South Korea’s initial ageing policy was the concept of “active ageing”, which primarily aimed to enhance the quality of life among retired older adults. This approach was implemented by promoting economic security, improving health outcomes, and encouraging lifestyles centered on leisure and active engagement. However, amid a declining birth rate, rapid population ageing, and technological advancements that are reshaping social structures, traditional policy frameworks have become increasingly insufficient in meeting the diverse and evolving needs of the older population.

In response, the South Korean government set up the Seoul 50Plus Foundation and introduced the “50Plus Policy”. This policy is designed to support career planning, re-employment and social participation among the middle-aged population. This policy’s target demographic has expanded beyond the conventional ‘50+’ group to include individuals aged 40 to 60, redefining ‘middle-aged and older adults’ within policy discourse. Notably, the policy was recognized as a model of excellence in “Public Value in Systemic Innovations: Evidence from the City Level” in 2018. Against this backdrop, the present study examines the current state of South Korea’s policies for super-aged societies, focusing particularly on the “Seoul Learn 4060” initiative. The study also offers policy recommendations relevant to Taiwan’s preparation for its own transition to a super-aged society.

Literature review

Population ageing is a global phenomenon that has drawn sustained attention from the international community. The United Nations began formally addressing this issue in 1982 (Jung et al., 2012), and in 2002, the World Health Organization (WHO) articulated a framework for active ageing, categorizing it into three key dimensions: health, social participation, and security (WTO, 2002). However, welfare policies primarily aimed at promoting individual lifestyle improvements have proven insufficient in addressing the broader challenges posed by demographic ageing. Consequently, the international community has increasingly advocated for sustainable and systemic policy alternatives to better prepare for the ageing population.

In this context, policies targeting older people that emphasize the enhancement of social functioning and the pursuit of values beyond the traditional scope of welfare-oriented approaches have emerged as viable alternatives in addressing global population ageing. This policy orientation is evident in several countries that have already transitioned into ageing societies. For example, Japan, which has the largest population of older people in the world, has sought to bridge generational divides through education and lifelong learning initiatives. Programs such as the “Learning Passport” have been implemented to promote the social participation of older people and strengthen intergenerational cohesion (Hori, 2016).

Italy, Germany, and the United Kingdom have implemented policies aimed at enhancing social functioning and fostering value creation among older people through educational initiatives.

South Korea is no exception to the global trend of population ageing. In response to its demographic shift, the government has promoted policies aimed at enhancing social functioning within the broader framework of welfare (Jung et al., 2015; Kim et al., 2016). However, efforts to proactively implement such policies have been hindered by fragmented administrative responsibilities across key institutions, including the Ministry of Health and Welfare, the Ministry of Education, and the Ministry of Employment and Labor (Han et al., 2011). To address this challenge, the “50Plus Foundation” was established as a policy platform that transcends conventional administrative boundaries. It aims to deliver sustainable ageing policies that reflect the unique needs and characteristics of the current older population.

This demographic largely consists of baby boomers, many of whom are inadequately prepared for old age due to their historical role as the primary economic contributors during South Korea’s period of rapid development, while simultaneously supporting both children and ageing parents. In response to the emerging needs of this generation, the “50Plus Policy” was introduced to support new forms of later-life planning. Furthermore, in December 2022, the “Seoul Learn 4060” initiative was launched to address the needs of middle-aged individuals facing unexpected unemployment or early retirement, particularly due to automation and technological advancement.

Research Methods

This Study based on a literature analytical approach to examine the “Seoul Learn 4060” policy, focusing on South Korea’s strategic responses and institutional adaptations in the context of a super-aged society. To enhance the reliability of this study, the findings derived from the literature review were validated through consultations with experts holding doctoral degrees in education policy and social welfare.

Conclusions

This study presents four key conclusions. First, South Korea places significant emphasis on the social realization of “dynamic ageing”, highlighting active engagement and continued societal contribution by older people. Second, the nation’s ageing policy has strategically shifted toward a medium- and long-term orientation, reflecting a more sustainable and forward-looking approach. Third, policy support is increasingly differentiated and responsive to the specific needs of various age groups. Fourth, specialized agencies have institutionalized a hierarchical support system and adopted a research-informed model of policy implementation.

Discussion

The following policy suggestions for Taiwan are derived from South Korea’s “Seoul Learn 4060” initiative, which has been implemented as part of a broader strategy to promote sustainable social development in the context of a super-aged society. First, there is a need to cultivate a balanced and objective understanding of the challenges associated with population ageing. Taiwan’s demographic transition should not be attributed solely to declining birth rates. Negative portrayals of an ageing society– prevalent in both media and academic discourse– may inadvertently reinforce ageist attitudes and constrain the social participation of older people.

Second, there is a need to develop financial policies for middle-aged individuals that reflect the socioeconomic characteristics of this demographic, rather than relying solely on chronological age classifications. The use of physiological age as a primary criterion has increasingly constrained the formulation and implementation of effective policies for older people. As noted by Taiwan’s Ministry of Labor in the 2024 “55Plus Occupational Promotion Initiative”, the conventional definition of “middle-aged” based on physiological age holds limited relevance in the context of a super-aged society.

Third, alignment between the expectations of employers and the needs of middle-aged and older workers is essential to fostering their active participation in the labor market and broader society. In many cases, social engagement among middle-aged and older individuals is hindered by a mismatch between the roles and qualifications employers seek and the preferences or capacities of job seekers within this demographic. To address this, it is critical to bridge the gap between employer demands and the aspirations of middle-aged job seekers, thereby facilitating more effective pathways for their social and economic inclusion.

Finally, to effectively respond to the social participation needs of middle-aged and older individuals, it is essential to establish a specialized agency with a clearly defined strategic function. As levels of education and standards of living among this demographic continue to rise, their motivations for engaging in social activities become increasingly diverse. Therefore, it is imperative to systematically identify these motivations and develop targeted educational programs and participation opportunities that align with their evolving interests and capabilities.