Ordinance Reduced to a Mere Shell... "Need to Explore Lifecycle Support" [Isolated Island on the Borderline]

④ Enactment of Ordinances in 81 Local Governments
Lack of Enforcement Leads to Display-Only Administration
Support Ends and Survey Progress Stalls
Comprehensive Support Needed Through Higher Laws

As the issue of lack of support for slow learners surfaced, local governments across the country have rushed to enact ordinances. Starting with Seoul in 2020, related ordinances have been established in 81 out of 226 basic local governments nationwide over the past four years.

However, the response on the ground has not been as enthusiastic as expected. Most ordinances are limited to school-age youth and the education sector, leading to criticism that the scope of support is narrow. Due to the nature of ordinances, which lack enforceability, some cases have degenerated into mere show administration. Experts emphasize the need to enact a Slow Learners Support Act to fill the gaps that ordinances cannot address.

Elementary and Secondary Education Act Ordinances Exclude Adults... Support Outside Education Is Inadequate

Current local government ordinances are enacted based on higher laws such as the Lifelong Education Act or the Elementary and Secondary Education Act. Ordinances based on the Elementary and Secondary Education Act generally limit the support target to school-age youth under 19 years old. Additionally, support measures are often focused on education for youth with basic academic difficulties. In effect, adult slow learners are excluded from support.

The above photo is unrelated to the article content. [Image source=Yonhap News]

In response, local governments are revising ordinances by changing the legal basis to the Lifelong Education Act. When based on the Lifelong Education Act, the advantage is that the support scope expands to all age groups. For example, Seocho-gu in Seoul revised its ordinance last November by changing the legal basis from the Elementary and Secondary Education Act to the Lifelong Education Act.

However, even with ordinance revisions, policy satisfaction remains low. Because the Lifelong Education Act aims to provide educational opportunities across all age groups, local government support tends to focus on play and experiential programs.

Lee Jae-kyung, a research fellow at Hanshin University’s Institute for Democratic Social Policy, who has been conducting basic research on slow learner support policies, pointed out, "The Lifelong Education Act emphasizes supporting education across all age groups," adding, "there is a limitation in supporting issues beyond education, such as crime prevention and independence."

Insufficient Surveys Due to Non-Enforceable Ordinances... Support Changes with Ordinance Revisions

Because ordinances lack enforceability, there are many cases where local governments do not properly implement provisions. For example, ordinances in each district of Seoul include clauses stating that "surveys may be conducted to establish support measures for slow learners," but there are few cases where research projects were commissioned to start such surveys.

Asia Economy checked with nine district offices in Seoul (▲Gangseo-gu ▲Yangcheon-gu ▲Geumcheon-gu ▲Dongdaemun-gu ▲Seocho-gu ▲Yongsan-gu ▲Jungnang-gu ▲Songpa-gu ▲Gwanak-gu), and among them, Seocho-gu was the only one to commission research for a survey. Geumcheon-gu supported slow learner screening tests last year by accepting applicants on a first-come, first-served basis. Songpa-gu and Gwanak-gu were confirmed not to have enacted slow learner ordinances.

There are also cases where existing projects ended during ordinance revisions. Goyang-si in Gyeonggi Province enacted the first ordinance nationwide in 2021 based on the Youth Basic Act to support young slow learners. The ordinance aimed to establish customized education and employment policies so they could enjoy social life and leisure. In 2022, Goyang-si supported young slow learner groups through the Youth Hope New Deal Project contest.

However, when Goyang-si revised the ordinance last February by changing the legal basis to the Lifelong Education Act, the project was terminated. Currently, Goyang-si provides subsidies to two organizations?a nonprofit private group and a social cooperative?under the form of lifelong education support projects.

A Goyang-si official explained regarding the young slow learner support project, "With the repeal of the existing ordinance, currently only lifelong education support projects for borderline intellectual functioning individuals are being conducted."

Enactment of Higher Laws... Should Include Life Cycle and Comprehensive Support Considerations

Experts point out the inherent limitations of non-enforceable ordinances and emphasize the need to enact higher laws. Since local government ordinances end with "may" rather than "must," there are many cases where ordinances are created but neglected.

Lee Jae-kyung, a research fellow at Hanshin University's Institute for Democratic Social Policy, expressed opinions on policies supporting slow learners in an interview with Asia Economy on the 5th.
[Photo by Lee Ji-eun]

Research fellow Lee said, "Many local governments only create ordinances and allocate budgets superficially," adding, "when local government heads change, ordinances are often revised or become obsolete."

He also diagnosed that since most current ordinances are limited to education-centered support, higher laws should include more comprehensive support measures. For example, laws supporting people with developmental disabilities mandate that the state and local governments establish measures to prevent crimes against them. They also specify support regulations for employment and vocational training to help them integrate into society.

Lee pointed out, "Ordinances based on the Lifelong Education Act can provide educational support to slow learners of all ages," but "comprehensive solutions to various problems they face in life, such as exposure to crime and family conflicts, are impossible."

Consideration should also be given to what tailored support is appropriate for each age group. Slow learners require different support depending on their age: diagnosis during infancy and early childhood, career and social skills education during adolescence, and independence support during adulthood.

Lee emphasized, "Starting with diagnosis and discovery in early childhood, life cycle-tailored support should be considered so that they can form social networks in their communities as adults," adding, "with appropriate support, they can live as contributing members of society."

Editor's NoteThere are people living on an isolated island called "slow learners." According to expert estimates, 1 in 10 people (13.6%) live on this isolated island based on the normal distribution of intelligence quotient. Their journey to adulthood is arduous. From the first diagnosis in infancy and early childhood to finding a career and achieving independence, every step is a struggle for survival. Parents bear the burden of paying millions of won monthly for treatment and personally seek out friendships and jobs to prevent their children from falling out of society. Recently, many local governments have introduced support ordinances, but these often remain superficial or are limited to support during adolescence. Asia Economy met with six parents of slow learner children in infancy and youth to examine the problems they face and explore solutions.