ROLE

OF HE ADMINISTR.TORS OF THE MINISTR

IN KOREAN EDUCATIONLL PLANNING

by

ee, J00 Noon

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Submitted to
Michi; n State University

in partial fulfillment of the requirements
for tue degree of

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Chapter
I. IiltrOductiOno . O O O I O O C C O O O O I O O I C I I O O C
The Purpose of the Study. . . . . . . . . . . . . . . . . .

Historical Background of Korean Education . . . . . . . . .

II. Theoretical Foundations of Educational Planning . . . . . .

The Definition of Educational Planning. . . . . . . . .
The Objectives of Educational Planning. . . . . . . . .
The Phases of Educational Planning Work . . . . . . . .

Page
I- l
I- 2
I- 3
II- 1
II- 2
II- 5
11-10

III. Central Educational Administrative System in Korea. . . . .III- 1

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Section 1: Organization and :unction of the
. 5'

Section 2: Organizations Concerned with the
Educational Planning System in the

Education. . . . . . . . . . .III- 2

Ministry of Education . . . . . . . . . .III- 7

Section 3: The Council for Long-Term Comprehensive

Educational Planning . . . . . . . . . . .III-ll

IV. The Role of the Administrators of the Ministry of Education
in Korean Educational Planning. . . . . . . . . . . . . . .

1. Development of Korean Educational Planning. . . . .
2. Discussion of the Role of the Administrators
of the Ministry of Education in Educational
Planning. . . . . . . . . . . . . . . . . . . . .

V. Summary and Recommendations . . . . . . . . . . . . . . ...

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r‘ "' 4- O p..— A. — - ."‘ a. ... L‘A-a
/. avalua ion oi pregreos in _rpiemenoation
7 : «-_ . »1- a h «' -
o. Adjus mt cents to impro~e irpiexen aolOC

mun Ta:L:fl' .
and inau3u310fl Stage

 

$h pl anning work is initiated with the awareness of

‘
*- A

the need for the development c; a plan.

sources. The research on given problems is requested. In
over-all planning for education resea;ch shorld cover the
current political, economic, social, and cultural aspects

.‘P ‘ J. ‘ 1" T‘ ' n- 4 1-K r. .
thich bear on education. Also, the intcf‘umerlCa“ Seminar

on CIe; all Planning for Education in 1958 suggested the

1
-)

LS

HEB
»m
._l
d

g

m
d

survey of the educational 'ion should cover the
1rd aspects, euclita“iveir and quantita atively: the
results or educati ; its adm‘ni stration;
«“008 and curr oula; teaching 8‘ ervisory and
e +» ' ‘ teaching material;

strative stafi; so
ildings; ar nd the fine; f education.2

'0
F1
O

h'f‘
a.

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H 55’
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mzi
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and ir”ormation are gathered, and the relevant data is

A“

’\

»""embled an? analyzed. In addition to get tlering the fir dings

or newly conducted research on the ;roblens,
previous research shoul
account by assessing re

r- -- 7--
CYV aLLAa biOfl.

rned to the fullest possible
hereon for purposes of

Tipl

M +‘e other hand, the information sometimes comes from those

P
v-1 “Liv

the same problems.

(‘0 _

- ‘i A“ 7
N30 Lac

0

~lonment of Alternative n;ans

3m

‘0
(

._ ~. .. a .. ."*.',. '1 ..,,,,"..., ' ”y; . J-
Cn the basis 0. aiaiiabie Idbca‘cu and information, the

 

 

altcinaoive plans are devo- cred. They age unoff ic ial and are
2 Orww n n a .. -'- I. A -'~ -—\ x t ~~ ”5 Q
UAaJvU: Secretariat, 2:» cl ., p, _o.
lebid.

 

II-lZ

prepared for discussion. In th 3 phase, educational objectives
must be clav“ified and the main constraints of educational

‘

ilannin: must also oe accounted for. A nation's educational

ectives are decided by the society as a whole, but those

wAO have the respons bility 0: educational planning can help

by insisting that there be objectives and that these be _
specifically enough defined to piovide a bas's for shaping /
appropriate actions. They can help by insisting also that
there be respons ole consistoncv arid an order of priority
among various objectives, since not all of them can be
pursued a" full speed Simultaneously.52

The nai n constrain ts of ed*cational planning must also

.r‘ “._..,..-.:.h. '3 ‘ - _- . 4...: ...A P: .., a,” 3‘. . r1 .
be Cuuolucfeflo The International ccnIecenoe on educational

What is to be emphasized is that the constraints are not
mere ly physical and ecor omic; they are also poligi cal,
sociological, administra V ve and psychological. 5

From experience, Waterston also mentions that:

In most less developed countries the major unresolved [
plaini g problems a1 e primarély political and adminis-
k?

ative instead of economic.

This phase requires the fullest possible participation

 

ficn the public and the widest pubn city of the plans. During
this phase,
public opinion surveys should be condroted, and meetings,
lectures and seminars should be held to ensure the partici- 2,
pation from the public and the widest publicity of the plans. 9
4“b“““CO International Institute of Educational Planning
£1.13???” p. 10.

f‘
,

2 2 ~."-,‘

N

r
. U

1

2C).. ’ p. 11.

{s

 

” c -- -.a .. - . . .~ 0

4LAlDSTt Waterston, wt ;oonent Planning: Le'scn. 0-
fl~ ‘ '7“ ‘ F?” "‘ -_-_- -‘\f“ ' - j A: ‘\ \ ,-
njptriec e (Daltimore: The Johns nopains ;- ipo3,, p. j.

 

DOM—H

’/ K---__._ _ _ .

II-13

However, the decision-makirfi authority is the most

ant pa rt for the participation._ They must decide

J.

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n
()
s
(f

the alternative plans are adequate or not for the

5‘
I)
(7)
ft
(0
H

-l

imp
‘-

mentation. If the alternwi ive plans are onsidered to

‘

0

e inappropriate, they must suggest to seek other alternative

ram ~
as;

’d
’._J
U‘

('1‘ '1 .4 .
ine nerlsion of Plans

 

In this phase, the plans are revised based upon the

m‘ ... J.‘ ['1 - '\ A 4.. -
lne Selection Oi a course or action
~-‘ “-~. - . .. .L.

J. 01' .Lagn-l-€":dfl tatlon

 

 

The most appropriate one among tne final alternative

plans 13 selected and approved for implementation by the
govern ent authority. And the adopted plan is translated into

action. In other words, programs and projects must be pre-

§

pared for the implementation of a plan.

A national educational plai" is no It ore than a rough
thunb onail sketch until it is broken down int .irl-
conceived specific promramne , fitting specifi“ activities
and geographic areas , and until the program.es are in
turn.translated into specific well-designed projects
consistent with the general plan. I}".en the overall plan
can be implemented, if it was realistic to begin with,

if the administrative capabilities are there, and if no
unforseen difficulties arise.20

Evalualtion of Progress in Implementation
During execution of the plan, frequent evaluation should

be made to adapt it to unforeseen circumstances. The evaluation

 

266NESCO: International Institute for Educational
Planning, op. cit., p. 11.

should be made on the basis of the criteria laid down during
the preparation of the plan.-

J— 4. ‘1’ w- A Jo ~
t to improve Imp? enuncacion

in order to

f).
C J-
K.
(C
d
('1
Q.»

The plan must be cont nually a

evaluation.

(D
O
“3

correct the errors revealed in the phas
A rlanner

can be forgiven many an honest error of judg em en nt about
the future trends and possibilities, but what he cannot
be forgiven is failure to correcp an error once it has

become apparent.

ut if such adjustments are to be made, there must be proper

D}

e ans of checking the performance, prOgress, and failure

4
J

L
P

throughout implementation.

Finalli the new efforts of planning begin for the
p“oparation of the next plan based on the results and the
eiperi ences of the previous plan, and in the light of the
revised objectives of the new circumstances.

Necessary Conditions for Successful
Educational Plann ng
The effectiveness of educational planning may be

influenced by inside as well as outside conditions of the
ease ational system. General conditions needed for successful
3 mning are discussed here. The Report of the Preliminary
Study Team for Educational Planning Development in Korea
identified ten general indicators for effective planning.

. , at
They are described as follows:

 

27Ibid., p. 12

2bKorea, Ministry of Education, op. cit., pp. 25-30.

11—15

. . . budget is used as an importer t means of:

(1) developing the pla nning process (2) developing

plar s and (3) implementing plans.

2. . . .(effective planning) has a built-in training
program.

3. . . . effective planning lin lrs together tr ose people
and organizations, wherever they are, who have
important knowledge ar d skills required for educa-
tional planning. . . .

Q. . . .able plar ners are brought tog et1.er in rsifficient

nunbe rs and on a continuing basis in order to create

_..-p“..-

a ”critical mass' of aoility ar d production.

5. . . . (good planning) is knowle-dge centered.
6. . . . (good planning) takes place both horizontally
and vertically. ,
7. An educational plan should be more than a collection
of small plans. Plans of sub-units must harmonize
_ with the over-all planning
8. . . . long-term plans are annuallyu ‘ dated.
9. . . . status and importance are attac ‘ned to the
planning office and its functions.
10. . . . it is understood that the first step in planning

is the first step toward implementation..

Educational planning is required to promote comprehen-
siveness in the plans. The various levels of education cannot
be developed in isolation and they also cannot be developed
only in one or more conditions. This means that various
levels of education and all conditions of education should

be integrated with one another to be able to achieve success

in planning.

The educational plan is one kind of national development

1; :2.
plan. Any educational plan , if thsy conflictswith other

 

plans such as economic and social plans, cannot be satisfac-
torily operated even if the education plan itself is perfectly /
d

evised. So, the educational plan must be integrated with

other national and social plans.

(1‘

t the research functions for

SD

('0

It.is also imperativ

LA

the scientific educational planning be strengthened. As the

b.

11-16

social sciences are developing, many re search metho are also
improving. Rational policy-making will rely upon research
findings in solving practical educational problems. side
3 ays:
Planning has proved to be an effective way of bringing
the vast resources of research to bear upon policy
making and administration.
From this point of view, the introduction of the research
function to educational planning organiZation and the
effective use of research findings are the necessary con-
ditions for successful planning.

In theory, planners provide th e necessary help to
executors for thier work, but, in practice, their success
depends upon their human relationship with the executors.
Eide states:

The policy mal {ers mus t not use the planners to defend
their established policies; those responsible for imple-
mentation must not be allowed to make use of the planners
to defend their vested interests; the planners must avoid
adapting only academic standards to their work, and, on
the other ha d, refrain from imposing their own standards
on research.
Avoidance of conflict_between planners and executors, coopera-
tion between them, and respect.for each other's role in
education are some of the most important conditions for the
success of educational planning.
In the planning process, con munication among different

levels of the educational system is another necessary con-

dition. The experience, and c; eative and innovative ideas of

‘-

 

29Eide. graham” p- 72:

30:: 2.. pp. 75-76.

II-l?

the lower level personnel may be the precise information

needed for successful planning as the Interr ational Conference

ed:

(.1.

on Educational Plann ng in 19 083 mu gges

L;

Ideally, perhaps, an overall plan s1 uld be built from
the bottom up, within a general “fr meworfl“ of prescribed
resource limitations, objectives and priorities. Even
when it is not feasible, central planners must none the
less keep the local scene and capabilities, and above all
local differences, very much in mind, if their overall
pl an is to be implementable.

{‘3

 

”ith better communication, the planning activities of the
.lower level of the system might be enhanced and their practical
experiences and information delivered to the national planning
process.

In summary, as necessary conditions for successful
planning, the importance of comprehensiveness and integrity
in the plans, the strengthening of research functions, human
relation ships between planners and executors, and communication

among different levels of the educational system were dis-

cussed along with the ten indicators of effective planning.

31UNESCO: International Insti ute for Educational
Pla nn ng, op. cit., pp. 11-12.

CHAPTER III

CENTRAL EDUCATIONAL .DMINISTHATIVE

SYSTEM_IN KOREA

This chapter will present the structure, power and
responsibility of the central educational administrative
system, particularly emphasizing those of the Ministry of
Education which is the highest educational administrative
organization in Korea. For convenience of presentation,

this chapter deals with the general overview of the organi-

zation and function of the Ministry of Education in sect ion 1,
the organizations concerned withjeducational planning system
in the Ministry of Education in section 2, the Council for
Long-Term Comprehensive Educational Planning which was
organized as an advisory body to the Prime Minister in sec-
tion 3. Prior to presenting the main contents, the past
changes of the structure and function of the Ministry of
Education will be overviewed briefly.

The structure and function of the Ministry of Educa-
tion has been changed several times. It is not necessary
to enumerate all the changing process, but a few important
reforms are elucidated here. By the declaration of the new

Government Organization Law on December 24, 1963, the Ministry

of Education is entrusted with the affairs of education,

III-l

Ill-.2?

I’

' ',f.

science, physical education,;pmblication, together with the
affairs of culture and art. Since July 24, 1968, the major-
ty of the cultural administration such as literature, art
and industrial arts were transferred to the Ministry of
Culture and Public Information. By the reform on January 26,
1970, the Ministry of Education has been responsible for the
affairs of education, science, physical education, compila-
tion of government authoriZed textbooks, and authorization
of books used for school work, and the prior pattern of
hierarchical system has been changed into new divisions of
two offices, five bureaus, eleven sections and sixteen action
officers or coordinators. The reform On August 31, 1970, has
retained the reorganization of two offices, six bureaus, /
thirteen sections and seventeen action officers and coordina-
tors to the present.

There were two occasions of reorganization of the
Ministry of Education in 1971. They signal the consolidation
of its appropriate role and function as a policy-making organ-
ization in educational administration, and the establishment
of the democratic and autonomous system of educational admin-
istration by decentralizing the task to the special City and
Provincial Boards of Education.

Section 1: Organization and Function,*’
of the Ministry of Education

1. Organization
The Ministry of Education is organized under the
Minister and one Vice-Minister with two offices, six bureaus,

thriteen sections and seventeen action officers or coordinators.

III-3

The organiZation of the Ministry of Education is shown in

Figure l.

TL-Ov'1Fg.1.

Hr'v’

Ci~art—l-. Organization of Ministry of Education.

 

7’

{aha—l

 

 

EFFBrgency ‘
Planning Officer

 

 

Pl anning and
oulidgeting

fl 1 0

cos orc-nator

 

9" ninistrative
X:L.nagen ent
Co ordinator

 

Le gal Affairs
So ordinator

 

 

 

‘Minister_j

 

 

 

iVice-Minister]

 

 

 

}

 

 

Office of SEhoo Cenera

SupeI'ViSOI‘S Affairs ‘
Section

hSupervisor,

Compulsory

Education

Supervisor,

Secondary

Education

 

Supervior, Higher
Education

 

Supervisor, Science

Education

 

 

 

 

 

    

Gufifiwlac

:2 mf?t{ۤfice" I

' Palwllc Rdhkn‘d

032F2¢€r

_‘—

 

 

g‘,,.(_~ } ;L£.+nry

.5“) Stand LfiHtcu/

General Edui'l
cation Bureaui‘

 

 

 

_JHigEEr Edu— f?

cation Bureau1

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Meal Service Academic
Coordinator Affairs
Coordinator
Educational’ '
r—Administraé :n In-Service
tion Section Training
L Coordinator
Educational
kainance Educational
Section Facilities
Coordinator
_JCollge Edu- I
_catign Section;
Teachers
._Training fi—l
Section

 

 

 

l
LScience Edu-
Cation Bureau

._‘_

 

cier ce Educa-
nPlanning
dinator

 

 

.udio-Vidual
“ducation '
oordinator

 

 

l
"1

iii

exbook Com-
ilation Bureau

 

Social Educa-
tion Bureau

 

r I
Physical Edu-
cation Bureau

 

 

 

Texbook Com-
pi ilation Section

i

tion Section

 

N‘

tics Se

 

 

i

 

cience
iucation Section

 

 

 

 

iucational
.reign Loan
:ction

 

---.—-- ... woo—ru-Q-O‘ ‘ '

‘Scction

 

 

Publication

4

 

 

Social Educa:H

 

Internationall

I .

Education
Section

.v-M-“.-%~,~-.— vmos ., ...‘, ..-.

v-- - . niqvqmmooov

National Athle-

ction __J

 

I Section

SchooI Atheletics‘

 

III-u

2. Eunction

The Ministry of Education, as has been pointed out,
is responsible for the affairs of education, science, physi- '/
cal education, compilation of the government authorized text—
books, and authorization of the books used for school work.
The divisional functions are explained in the following:

Minister.--The minister of education establishes all
the educational policy, and exercises final decision-making
to implement its policy. He is the most responsible figure
who controls and coordinates thematters of educational admin-
istration at all levels. He is a non-professional official
who is appointed by the president, and exercises his preroga-
tive to express his position concerning national policy in
the cabinet meeting. Accordingly, his position can exert a
considerable influence in Koreawhere educational administra-
tion is centralized.'

ggggporlal Control Officer, Public Relations Officer
and Student Military Training Officer.-- The Auditorial Con-
trol Officer and the Public Relations Officer assist the
Minister of Education. The former is responsible for the
control and,coordination-of affairs concerning the matters
on inspection conducted in.the attached institutions and
governmental investment organizations under the Ministry of
Education. He also has the matter on special inspection in
his charge. The latter is responsible for the affairs of
public information. The Student Military Training Officer
assists the Vice-Minister of Education in student military

affairs.

III-5

Office of Planning and Management.--This office will

 

be dealt with separately in section 2 together with another
organization directly related to the educational planning,
system. I

Office of School Supervisors.--The Office of School
Supervisors is responsible for the affairs of (1) educational
planning, its research and its guidance and supervision;
(2) teacher and student guidance; (3) educational evaluation
and entrance examination system; (h) the guidance and devel- ‘
opment of the experimental schools and educational research //
institutes; (5) scholarship: and others. -

General Education Bureau.--The General Education

 

Bureau is responsible for the following affairs concerning
the kindergarten; elementary schoolg,general secondary schools,
and special education schools. They are responsible for:
(1) the establishment and closing; (2) the guidance and
supervision of the Corporative bodies which operate the above
schools; (3) the establishment of the standardization of
school facilities and equipment:'.u9 (a) the research, guid-
ance and supervision of the school construction, facilities
and equipment, and (5) the student lunch program; and others.
In addition to the above affairs, this bureau is also respon-
sible for the affairs of the guidance and supervision of the
local educational finance.

Higher Education Bureau;--The Higher Education Bureau
is responsible for the following affairs concerning the uni-

versities and colleges: (1) establishment and closing;

III-6

(2) guidance and supervision together with the guidance and
supervision of the corporative bodies which operate the
universities and collegeS; (3) organization and student quota;
(4) conferment of diplOmas; and others. In addition to the
above affairs, this bureau is also responsible for teacher
supply and demand, teacher certification, and teacher training.

Science Educgtion Bureau.--The Science Education;
Bureau is responsible for the affairs ofggheguidance of
basic scientific education at all levels of schools;

(2) the establishment and closing of the vocational schools
together with the guidance and supervision of the corporative
bodies which operate those schools; (3) supply and training
of the teachers who teach vocational lessons; (4) the estab-
lishment of the standards of the vocational school facilities
and equipment; (5) the research and Supervision of the voca-
tional school facilities and equipment; (6) overseas loans
for the development of science and vocational education; and
others. .

As shown in the organization chart, there is a
Science Education Planning Coordinator in this bureau. He
assists the director of this bureau regarding the science
education planning.

Textbook Compilation Bureau.--The Textbook Compila-
tion Bureau is responsible for the affairs of (1) curriculum;
(2) the compilation of the government authorized textbooks;
(3) the authorization of the books used for the course of

study; (4) the research for national language and educational

materials; and others.

III-7

Social Educatipn Bureau.--The Social Education Bureau

7i
futhe establishment and

 

is responsible for the affairs 0
closing ofixgfihools; (2) guidance and supervision of those
schools; (3) adult education; (4) the guidance and super-
vision of the various kinds of libraries; (5) correspondence
courses: (6) students abroad; (7) international interchange
of education and science; and others.

Physical Education Bureau.—-The Physical Education
Bureau is responsible,for the affairs of (1) the guidance
and supervision of physical education both in schools and in
workshops; (2) the construction and maintenance of the social
physical education facilities; (3) establishment and dispersion
of athletic or physical education associations; (4) the guid-
ance and supervision of the above associations; (5) student
health; and others.

Section 2: Organizations Concerned with

the Educational Planninngystem in the
’ Ministry of Education

 

 

Sinae every system in the Ministry of Education is
more or less related to educational planning, it may not be
proper to distinguish between those which are concerned with
educational planning and those which are not. But, this
section will focus upon the Office of Planning and Management
and the Education Planning Committee in the Ministry of Edu-
cation because they are responsible for the major part of
educational planning.

._gffice of Planning and Management.-5The Director of

the Office of Planning and Management is assisted by an

 

‘7.(‘“" '35 "Qi‘xllaiwihlrm .u. . uwm—u- - , ,

I
V
'C'I’

Emergency Planning Officer, a Planning and Buageting Coordi-
nator, an Administrative Management Coordinator, and a Legal
Affairs Coordinator.

The Emergency Planning Officer establishes and
coordinates educational planning in general in the face of
national emergency, and is responsible for emergency training
and other matters.

The Planning and Budgeting Coordinator coordinates
educational policy-making and planning and is responsible
for the affairs of the development of overall plans, budget-
ing and coordination of its execution, and others.

The Administrative Management Coordinator evaluates
the progress of plans in implementation and is responsible
for the.affairs of organization, the salary system, educa-
tional and managerial improvement, data collection, inspec-
tion of the institutions which are under the control of the
Ministry of Education, and others. .

The Legal Affairs Coordinator coordinates the legal
affairs.

As shown in the functions of the coordinators of this
office, the Office of Planning and Management is a system
established for the facilitation of the business of the other
offices, bureaus, and sections by developing anchoordinating
educationa1.policy and plans. The director of this office is
a third man next to the Vice-Minister.

, Education Planning Committee.--The Ecucation Planning
Committee has been organized for the purpose of making con-

tributions to the establishment of educational policy through

III-9

investigating and research regarding the educational admin-
istration and by means of maximizing the individual ability
of every official of the Ministry of Education.
This committee is organized with Bank 3 officials
or above who are in service in the Ministry of Education.
In 1970 this committee came to be composed of 113 members.
The Director of the Office of Planning and Management serves
as the President of the committee, and the Director of the
Office of School Supervisors as the Vice-President.
This committee has the following sub-committees:
a. General Sub-Committee
b. Elementary Education Sub-Committee
c. Secondary Education Sub-Committee
d. Higher Education Sub-Committee
e. Social Education Sub-Committee
f. Science Education Sub-Committee
8. Educational Administration Sub-Committee
In addition-to the above sub-committees, the committee may
appoint special sub-committees. The sub-committees are
constituted of the members appointed by the Minister of Edu-
cation from the committee members. When deemed necessary,
the President of the Committee may appoint any member of the
sub-committee to serve as a special member in a sub-committee
of which he is not a member.
.The functions of the committee are as follows:
. a. The general sub-committee is responsible for the
coordination and contribution of the basic data

concerning investigation and research of each

sub-committee.

III-10

b. The elementary education sub-committee investi-
gates and does research concerning elementary
education.

c. The secondary education sub-committee investi-
gates and does research concerning educational
matters of middle and high school level;.

d. The higher education sub-committee investigates
and does research concerning educational matters
of the higher education level.

e. The social education sub-committee investigates
and does research concerning educational matters
of civic schools and adult education.

f. The science education sub-committee investigates

and does research concerning educational matters
of vocational and technical schools. This sub-
committee also analyzes the investigation and
research concerning scientific educational matters
of all levels of education.

3. The Educational Administration sub-committee
investigates and does research concerning educa-
tional administration.

Each sub-committee reports the results of its findings

and research regularly to the Minister of Education. The
reports considered as having a special importance are issued

to the members of research institutions for their advice.

III-ll
Sggtign_3: The Council for Long—Term
ngprghensive Educational Planning

Early in 1969 the Council for Long-Term Comprehen-
sive Educationaerlanning was established as an advisory body
to the Prime Minister. The purpose Of the establishment of
this council is to serve as a medium through which the matters
of long-term educational planning can be presented, discussed
and reviewed.

The Council reviews the following:

a. The analysis and forecasting of the school popu-
lation, manpower supply and demand, and magnitude
of educational finance.

b. The plans for the maintenance or reform of educa-
tional system, curriculum, teacher supply and
demand, educational finance and educational
facilities.

0. Sectorial educational plans concerning the elemen-
tary and secondary education, higher education,
science and vocational education, social educa-
tion, etc.

d. Other matters concerning long-term educational
planning.

The Council is composed of the chairman, two vice-
chairmen and no more than 50 members of the Council. The
Prime Minister is the chairman of the Council. The members
are appointed from among the persons who have high academic
achievement and moral character, by the President upon the

recommendation of the Minister of Education.

III-12

The CounCil may appoint sub-committees for functional
purposes.

The Council may ask for information, data and other
necessary cooperation from related organizations.

The Council can appoint a few educational planning
specialists. They are appointed by the chairman from those
who are the experts in educational planning. These special-
ists receive instruction from the chairman of the Countil to
collect data, investigate and research on educational planning
and can express their opinions in the Council and sub-
committee.

The secretariat which is organized with the special-
ists maintains a network of cooperation and liaison with
other ministries and local educational administrative insti-
tutions. Chart 1 shows the organizational structure of the

Council for Long-Term Comprehensive Educational Planning.

. ’ , flwmchU£.( {EL . - ._. _. i
CkLart l. Organizationfief~hetiongl CounCll for Longfterm Comprehensive

fl.

Educational Planning

 

 

 

 

 

 

 

The National Council \. .- .. .. ..— - - ——‘ Premier ‘
. - ‘ . ._. L ,
‘ _.L i l '. _
‘ Ministry of Other Ministries
[ Education_¥] [_k .

 

 

 

 

 

 

 

 

 

and Management

 

I Secretariate 3 Office of Planning~ _} \Liaison Officials!
' ———- t :

." R\ Ax ,4. ‘
I a: /\

 

‘ - -- — a. - - - .. ~ ‘ —

l
i.
‘l i 1'1

i r :
_/\, -__,- -._ _ JEPlanning Officials of Bureau & Office]

 

 

| l

I I
a I
I 'L

 

i -
I l a ._-

[:5 Provincial Planning Officials

 

 

.— .. . —.—-.‘-——.—w“.~_—vn—--w . _ - “_.- ...... . . ”h ...-.l‘. ~ u‘”. .

CHAPTER IV

THE ROLE OF THE ADMINISTRATORS OF THE
MINISTRY OF EDUCATION IN KOREAN

EDUCATIONAL PLANNING

The theoretical foundations of educational planning
such as the objectives of educational planning, phases of
educational planning and conditions for successful educational
planning are dealt with in Chapter II. In Chapter g; the
central educational administrative system in Korea is inves-
tigated. Basedwon these discussions, this chapter will pre-
sent the role and function of the administrators of the
Ministry of Education in educational planning. Special atten-
tion will be‘focused on the functional relationship between
the Council for Long-Term Educational Planning Secretariat
and the organizations concerned with educational planning in
the Ministry of Education. The aspects of educational plan-
ning to be discussed for this purpose are problem identifi-
cation, research, data collection, determination of planning
goals and development of plans, evaluation, and revision and
readjustment. However, development of educational planning
in Korea is examined first.

1. Development of Korean Educational

Planning
' The history of long-term educational planning in

Korea can be traced back to the early part of the fifties.

IV-l

IV-Z

The objectiven of the planning: then was- to provide the
seats for the children of compulsory education age.

In the sixties the Korean government introduced and
applied a managerial approach for the development of admin-
istration. ”This approach took many concrete forms, including
the adoption of a long-range development plan, institution
of a comprehensive planning and control system, . . ."1 In
the Ministry of Education, the Office of Planning and Manage-
ment was established and attention was also turned to the
need for long-term and comprehensive educational planning.

A plan launched in 1962 was the first one of this kind. An
attempt was made to integrate educational efforts into the
first five-year economic development plan (1962-1966).
Further elaboration was made in 1965 with the consultation

of a UNESCO Advisory Team for Educational Planning. This
plan demonstrated many of the improved methods of educational
planning. An ever-increasing consciousness of the need for
educational development, together with the stimulus of the
UNESCO Advisory Team, made the 1966 educational planning pro-
gram possible. The parts of the above plans might have
influenced decision-making in the Ministry of Education.
However, for the most part, they were plans on paper.

The Preliminary Study Team for Planning Educational
Development in Korea in 1968 pointed out that the Long-Term
Comprehensive Educational Plan, 1966 (Draft) had a few

shortcomings in the planning process and in its prOgrams.

 

lLee Hahn-Been, Korea: Time, Change, and Adminise
tration (Honolulu: East West Center Press, 1968), p. 173.

IV-3

Some of them are as follows:

1) There was no "critical mass" of planning know-how
in the planning group.

2) The plan was produced by an ad hoc, non- formal com-
mittee in the Ministry and without optimum supporting
conditions . . .

3) The plan does not have some internal integrity.

4) The plan failed to present alternative courses of
action and their possible consequences if followed.

5) Some parts of the plan cannot be said to be produc-
tive, since they were not incorporated into adminis-
trative practice.

6) No continuous efforts for further development of the
plan was made.

7) Various decision variables were not scrutinized by
scientific analysis and by expert judgement.

The failure of the past plans has disappointed many
people both inside and outside of the Ministry of Education.
Successful planning has been voiced from various parts of
the nation. Before starting new long-term planning work to
integrate educational efforts in the third five-year economic
development plan which will start from 1972, the ministry had‘
a preliminary study team study the strategies for successful .
educational planning in Korea. The team suggested a process
of planning and the elements of a plan, and recommended the
establishment of the Council for Long-Term Educational Plan-
ning. The newly established Council for longéterm Sompre-
hensive Educational planning and its secretariat innitiated
longfterm planning tasks and has completed a fifteen-year

Long-Range Comprehensive Educational Plan with the wide

 

2Korea, Ministry of Education, Planning Educational
Development in Korea: A Report of the Preliminary Study Team
(Seoul: Ministry of Education, 1968), pp. 80- 83. ,

 

IV-b

participation of such people as government officials,
research experts, university professors, and others. ,Also,
the consultation of foreign consultants was available. These
government efforts in long-term educational planning have
made many people feel unprecedented concern about educational
planning. Meetings, simposiums and seminars have been held
to disucss the newly developed long-term educational plan.
In other words, the preparation of this new plan has made an
important moment for the development of Korean educational
planning in the future.

Even with the above bright prospects, no one can
state that the future planning will also be satisfactory if a
continuous and effective planning process is not maintained.
2. Discussion of the Role of the.

Edministrators of theflMinistry
of Education in Educational

.Planning
The role of the administratoes of the Ministry of

 

Education in educational planning will be discussed in four
parts. They are: problem identification; determination of
planning goals and development of plans; research and evalu-
ation; and revision and readjustment.

Problem identification.--The planning work begins
with the awareness of the needs for planning. To become
aware of the needs for planning, at the first step, the
problems should be identified. .For example, the Council for
Long-Term Comprehensive Educational Planning (CLEP) noted'

the main problems facing Korean education as follows:

IV-5
1. There is a disparity between practices and ideals-
in education. '
2. There is a gap between teacher supply and demand.

3. Curriculum is not operated in the light of develop-
ing students? creativity and the spirit of inquiry.

4. Educational administration is controlled authori-
. tatively.

5. The principle of public financial support for edu-
cation is not well established.

6. There is imbalance in educational investment.3
As the CLEP mentions, these problems are closely related to
Korean historical background, and they should also be con-
sidered for her further development.

However, the educational problems are complex, and

they are not Static. For example, according to Sederberg,

The problem of school plant utilization and development

,is complex. Its dimensions are determined by educa-

tional objectives, curriculum, existing facilities,

enrollment trends, grade level served, and available
resources. ‘

Some of the education problems are too chronic to be cured
easily. Some are givng rise to other problems, and they may
become chronic also if certain actions are not taken in an
appropriate time. We can also predict that there may occur
some problems in the future. ‘
Brembeck and Keller suggest the following:
If planning is to be developmental it needs to focus
on the most pressing of educational problems. It takes

for its agenda those problems which thwart educational
achievement.. It seeks breakthroughs in educational

 

. 3Korea, The Council for Long-Term Comprehensive Edu-
cational Planning, The Present State, Problems and Prospects
(Seoul: The Council for Long-Term Compreshensive Educational
Planning). pp. 63-6U.

..uCharles H. Sederberg, Planning for Utilization and
.DelglOpment of School Plant Facilities in Korea (Interim
Report), Reproduced by USAID/Korea, May 1970, p. l.

IV-6

thought and practice. At present Korean educational
planning is dealing with critical problems largely on

a crash basis and from a segmented viewpoint. It is
not yet able to do so from a reserve of planning
research, information and experience, This capability
should now be developed in such a way that problems are
viewed in the perspective of the total educational
system and effort. '

As indicated in Chapter III, the CLEP Secretariat,
Office of Planning and Management (0PM), and Education
Planning Committee (EPC) are the most directly related to
Korean educational planning work. So it is worthwhile to
examine the strengths and weaknesses of the system of giving
the primary responsibility of the identification of the
problems to each of the above systems.

When the function of problem identification is
assumed as given to each of the systems, the following
advantages and disadvantages can be considered:

(1) The CLEP Secretariat

Advantages:

a) The problems can be identified on the basis
of academic knowledge and skill.

b) The problems can be examined objectively
without being interfered with by the
.administrators' interests.

Disadvantages:

a) The CLEP Secretariat is not a formal organi-

. zational system in the Ministry of Education.

 

.SCole S. Brembeck and Robert J. Keller, Education
_glagning Project: An Evaluation and Recommendations.
Reproduced by USAID/Korea, October 2, 1970, p. 10.

 

(2)

(3)

IV-7

So special communication procedures with
the Ministry of Education must be arranged
in order to have the direct feelings of

the problems in education.

b) Special cooperation from the Ministry of
Education and other practitioners must be
sought.

The 0PM

Advantages:

a) ‘Since the OPM holds the authority and power'
of budgeting, it can provide the priority
to the problem identification efforts.

b) The 0PM is also responsible for the affairs
of evaluation of program prOgress and inspec-
tion. These two authorities enable the OPM
to be related to the problems of all levels
of school boards and schools.

Disadvantages:

a) Capable personnel in the Ministry tend to
avoid the job in this office.

b) There are few capable and knowledgable
'personnel to initiate and maintain the work.

The EPC 1

Advantages: .

a) As mentioned in Chapter III, the EPC is

organized with all of the officials with
Rank 3 or above who are in service in the

Ministry. So, through the EPC members

IV-8

problems can be gathered comprehensively,
and problems can be identified with the whole
knowledge of the members.

Disadvantage:

a) Since§%he EPC members have their original
jobs in their offices, bureaus or sections,
many of them may not devote their time as
members of the committee.

The advantages and disadvantages of each system have
been noted. Particularly, the advantages of OPM, namely, the
easy access and familiarity with the reality problems facing
all levels of school boards and schools. And that the CLEP
Secretariat of the variety of knowledge sources and the
objectivity of observing and identifying the problems focus
our attention.

From the above analysis, the author proposes the OPM
should be the central organization of the identification of
educational planning problems. Also powerful voice should
be given to the CLEP Secretariat, thereby the ideas and
observations of these two systems can be integrated. Within
this structure of the organizational power distribution,
special committees might be made with the members of the OPM,
CLEP Secretariat and other EPC members. I

Determination of planning goals_and develOpment of
.plag§.--The aims of education in Korea are defined in the
Constitution, Education Law and the Charter of National

Education. Yet some of the determination of what is possible,

what is desirable and which should have priority must be

IV-9

made before planners develop plans. The determination of
what portion of national income can be devoted to education,
of what is to be emphasized, public education or private
education, are examples to be determined. The determination
of some of the planning goals are not the task of planners
but must be made in the light of policital realities.

When problems are identified, plans are developed
to achieve the planning goals.

Under the present educational planning System, each
office, bureau, or section in the Ministry of Education has
the prime responsibility for drawing sectorial plans under
the coordination of the OPM. The 0PM develops overall plans
by generalizing and integrating the sectorial plans. The
original function of the CLEP is not the preparation of the
plans, but it is the reviewing of the plans and other matters
on educational planning. The CLEP Secretariat has the function
of data collection, investigation and research on educational
planning to assist theCLEP.' As mentioned in Chapter III,
the EPC also does not have the function of the preparation
of the plans, but have that of investigation and research con-
cerning the educational administration. In the strict sense,
under the present educational planning system in Korea, the
responsibility of the preparation of plans is in the hands
of each office, bureau or section of the Ministry of Educa-
tion.

. Planning should not b§i§§i§§ hog basis but it should

be knowledge and reality oriented. The present system of

educational planning will be re-examined in the viewof the

IV-lO

development of plans in this part of this chapter. The

re-examination will be made by reviewing the strengths and

weaknesses of the CLEP Secretariat and EPC when the function

of the development of plans is given to these systems.

When the function of the deveIOpment of plans is

given.to the CLEP Secretariat, the OPM or EPC, the following

advantages and disadvantages can be considered:

(1)

The CLEP Secretariat

Advantages:

a)

b)

c)

The plans can be developed by competent plan-
ning specialists. They have better chance

to work with knowledgable specialists, because
they have different job status from the civil
service, which is related to the different
rewarding systems.

"Its ability to cut across educational and
bureaucratic lines moves in the education of

total, rather than partial, planning."

_When the CLEP Secretariat develops plans with

the cooperation of the Ministry of Education

officials, planning can have a built-in

,training program for the Ministry officials.

Disadvantages:

a).

 

6

The CLEP Secretariat's very lack of civil
service status may bring some limitations in
the cooperation with the Ministry officials.
Therefore, if it fails to involve the Ministry

officials in developing plans, the plans it

Ibld. , P. 3.

(2)

(3)

IV-ll

makes may remain as paper plans.

b) The CLEP may have difficulty in appointing
able specialists on a full-time basis. And
the part-time CLEP specialists would not
devote fully to the development plans.

The 0PM

Advantages:

a) Since the OPM holds the authority and power
of budgeting, planning can be linked with
budgeting. '

b) The 0PM is organized with relatively many

high ranking officials.

Disadvantages:

a) The 0PM officials are not specially trained
for educational planning.- So, the office
cannot be a knowledge center for educational
planning until its officials are specially
trained. ‘

The EPC

Advantages:

a) Most of the Ministry officials can partici-
pate in developing plans. ’

b) All the planning knowledge and skills that
the Ministry officials have can be used for
developing plans.

c) Since many of the OPM officials are the mem-

bers of the EPC, the advantages of the 0PM

can also be those of the EPC.

IV-lZ

Disadvantages:

a) Since all the EPC members have their original
jobs in their offices, bureaus or sections,
many of them may not devote their time as the
members of the committee.

The above analysis does nbt give a satisfactory
answer in considering which system is the most apprOpriate
one in giving the primary responsibility of the development
of plans.

In relation to this problem, Carss gives a suggestion
from a systems approach standpoint as follows:

It is envisaged that the operational unit would be
managed by administrators. However, whenever an edu-
cational problem is identified, a group of specialists
would be selected from the pool of available talent.
A task force manager would be appointed by the Minister
and it would be this manager's responsibility to select
the team and see that all of the necessary resources
were assembled for the task force to work.
Ihen the work is completed, the task force would be
disbanded and its recommendations handed over to the
operational unit of MOE to implement.7
However, Carss's suggestion can be applied when the objectives
of the Ministry of Education are reappraised and its structure
is reorganized.

Under the present organizational system, a strategy
must be made to integrate all the advantages of each system
of the CLEP Secretariat, 0PM and EPC. It may be a way to

distribute some of the functions of the development of plans

to each of the systems while coordinating the given functions

 

7Brian w. Carss, Implications of A Systems Approach
for Educational Planning in Korea (Interim Report). Repro-
duced by USAID/Korea, October 10, 1969, p. 33.

IV-13

of them. In this point of view, the author proposes the
following distribution of functions and procedures: The
sub-committee of EPC prepares the sectorial plans with the
assistance of the CLEP Secretariat. The CLEP Secretariat
develops alternative solutions and likely consequences for
consideration of decision-makers. The CLEP Secretariat

also prepares draft of overall educational plan for consider-
'ation by EPC and the Minister. The OPM takes the role of
communication and coordination between the CLEP Secretariat
and EPC.

In adopting the above strategy, some of the precon-
ditions must be met. First, the failure or success of the
EPC operation depends largely upon its members' time available
to devote as the EPC members. Second, the formal function.“
of the CLEP Secretariat must be reappraised and readjusted.

Concerning the above strategy, it may raise a ques-
tion as to whether the long-, medium-, and shorteterm plans
should be developed with the same procedure. Some may argue
that: Long-term plan is to give a long-range perspective in
education, and the short-term plan is much related to the
complex regulations and the officials' daily business. So
there may be no problem in giving the functions of the devel-
opment of plans to the systems differently by long- and
short-term plans if the two plans maintain a consistency.

Related to this problem, Waterston gives a clear

suggestion, even though his suggestion is concerned with

economic planning:

 

 

IV-lh

Since an annual plan is the most convenient medium for
adapting a long-term plan to changed conditions, its
formulation is an essential part of the continuous
planning process by which a medium-term plan is revised.
But because an annual plan can make basic changes in a
medium-term plan, the agency which is responsible for
formulating the annual plan is in fact the agency which
determines the ultimate character of the medium—term
plan. An annual operational plan is essentially like
the medium-term plan on which it is based, expressed in
greater detail. For these reasons and also because the
scarcity of planning technicians makes it desirable to
reduce competitive claims upon them by different ‘
agencies, annual and long-term plans should be pre-
pared by the same agency.

The author argues that in the development of plans
the functions of the CLEP Secretariat, 0PM, and EPC should
_not be differentiated by the duration of the plans. This
argument is made with the following reasons: (1) Many edu-
cational problems are long-term as well as short-term;

(2) One of the important objectives of planning is to keep
current educational problems from becoming long-range ones;
(3) Long-term plans in education are not valid for a long
period of time, so they must be updated annually; (h) The
separation of long-, medium-, and short-term planning units
cannot contribute their knowledge and experience to the
rpbolems upon which others are working.

_Research, data collection and evaluation.--For the
purpose of diagnosis, forecasting and choosing priorities,
planning must rely to a certain degree upon research, data
collection, and evaluation. In this part, the role of the,
administrators of the Ministry of Ecucation is examined
separately through these three functions.

(1) Research

Coombs calls for a few essential conditions that

0Albert Waterston, Development Planning: IeS§On§
f Experience (Baltimore: The Johns Hopkins Press, 1909),

0

...d.-..‘
'|-..

3”:- '

IV-lS

research strategy in educational planning mu; provide if it
is to be successful. The selection of research priorities,
sufficient concentration of research-efforts on each priority,
and effective collaboration with the consumers of research

'are included in the essential conditions.9 He further

mentions:

. . . the emphasis on research priorities is not com-
paticle with freedom of choice and creative endeavor on
the part of individual researchers. In any event it

must be recognized that most of the crucial problems
requiring examination are too large for any one researcher
to handle effectively. Such problems must be attacked

by well-balanced and well-integrated teams of researchers,
usually over a wide graphic area and over a substantial

period of time.

The International Conference on Educational Planning

in 1968 suggested that it cannot be simply library research
but must be research and development which is tied to action.11
Under the present educational planning system, the
major responsibility of research is entrusted to the CLEP
Secretariat and EPC. Also, other researchers and research
institutes do research concerning educational planning.
In doing reSearch by the CLEP Secretariat and EPC,
.the research priorities should be selected according to the
identified critical educational problems: the CLEP Secre-

a
‘tariat and EPC should organizenwell-balanced and well-inte-

I

Agrated research team; sufficient time for research activities

 

9Philip H. Coombs, "What Do We Still Need to Know About
‘Educational Planning?" In Educational Planning: The World Year

libok of Education 1967, ed. by George Z. F. Bereday and Joseph
2i. Iawerys (N ew York: Harbourt, Brace and World, 1967), p. 57.

lOIbid-o , pl 58.

11UNESCO: International Institute for Educational
TPlanning, Educational Planning: A Survey of Problems and
Prospects _'(Paris: UNESCO, 1968), p. 15.

IV-l6

should be given to the research team: and the CLEP Secre-
tariat and EPC should have a communication system with
each other aniwith the outside researchers or research
institutes.

With the consideration of the above necessary con-
ditions for research, the cooperation of the CLEP Secretariat
and EPC in research must be made in the following ways. The
The EPC selects the research priorities with the cooperation

of the CLEP Secretariat. The research team is organized with_
. a .
the CLEP specialists and EPC members. Whenaresearch report

is made, the EPC recommends appropriate action based on the
research findings. However, since the majority of research
needs various highly qualified knowledge and skills and con-
sumes a lot of time, much of the research should be entrusted
to the outside researchers and research institutes.

In relation to research and development, Brembeck
and Kellerrecommend establishing a national institute, "The
Korean Educational Development Institute." The function and
operation of the institute are suggested as follows:

In this Institute a variety of matters could be explored'
and developed: planning, research, innovation and dif-
fusion studies, pilot projects in educational technology,
and curriculum experimentation. To the Institute would
come both practitioners and theoreticians to test ideas
and develop new concepts. . . . To give it good linkage
to both important decision makers and the schools, the
Institute should be well connected to the MOE. It may
serve also a home for CLEP's working activities. . . .
The strategy should be to attach the Korean Education
DeveIOpment Institute to the MOE in such a manner that

it becomes the innovative yeast within the bureaucratic
loafi.. . .'The Institute's doors must be open to per-
sons . . . whether they come from . . . or the MOE . . .
It should be possible for persons, both MOE personnel and
others to move in and out of the Institute for periods of
time with relative ease.12

 

12Brembeck and Keller, op. cit., p. 18.

IV-l?

Presently the Ministry of Education studies a plan
for the establishment of a national educational development
institute by consolidating two research institutes and one
training institute. They are the Central Audio-Visual Edu-
cation Center, Central Educational Administration Training
Center and Central Education Research Institute. The Central
Education Research Institute is one of the largest private
educational research institutes in the nation, and the other
two are the national ones.

(2) Data Collection

“It is clear that any region (or local ared‘which
administers an educational service must have basic statistics
for that service, and the logical method would be aggregation
of local statistics into national statistics? 13 The data
which are collected from regional school boards and other
sources may be in the original form or may have proceeded
for the special report.

Chesswas mentions:

When deciding which data to collect, it would be short-
sighted to collect only data needed for the immediate

future. Educational planning and development are con-
tinuous processes, and study and extrapolation of pasta

trends are an essential part of the planning process.

He further states:

The collection and processing of statistics consumes time
and money, and statisticians are usually in short supply.
Their services should, therefore, be confined to the
purpose of producigg material which is essential for the
planning purpose.

 

*—

13John D. Chesswas, “The Basic Data Is Needed for
:Educational.Planning,“ Educational Planning;, The World Year
zaook of Education 1967, ed. by George Z. F. Bereday and
ffiSseph A. Iawerys (New York: Harcourt, Brace & World, 1967),
p. 74. ‘

lu___Ib_1_d_.09 p0 730 ISIbid.’ p. 714’.

IV-l8

The Ministry of Education has a problem in recruit-
ing the able statisticians with the same pay as the Ministry
officials because of the nationwide shortage of statisticians.
On the other hand, the CLEP Secretariat has an advantage of
employing able statisticians with non-government official
status. But data will be collected more easily from regional
school boards and schools through bureaucratic lines by the
OPM or EPC than the CLEP Secretariat. Consequently, the
author proposes the following procedure in data collection:
The OPM collects data from regional school boards, schools
and other attached institutions and passes it on to the CLEP
Secretariat. The CLEP Secretariat develops a data bank
together with the data collected from other ministries or
institutions. The CLEP Secretariat provides the necessary
data produced for educational planning to EPC or other
ministry officials.

(3) Evaluation

The progress of the plans in implementing must be
evaluated periodically for comparison of the results with
the objectives of the plans. The report of the progress of
the plans, the research findings, and information collected
are all the bases for evaluation.

The progress of implementation of the plans should
be evaluated "first, at the level of the bodies responsible
for implementation, then, at the level of the planning bodies

"16

themselves. In this sense, the units in the Ministry of

 

Q‘s-uh-

16Roger Gregoire, "Conditions for Effective Educational
Planning," In Problems and Strategies of Educational Planning:
lessons from Latin America, ed. by Raymond F. Lyons (Paris:
EMESCO: International Institute for Educational Planning,

1:33), p. 630

. IV-l9

Education should evaluate the progress of the plans they
have implemented, and should report their findings to the
planning bodies.

Under the present educational planning system, the
OPM is responsible for the affairs of the evaluation of the
prOgress-of the implementation of the plan. However, since the
evaluation function needs some of the qualified knowledge and
the strategies for improving implementation Should be devel-
oped, it is proposed that the primary responsibility of
evaluation should be given to the CLEP Secretariat. So, the
CLEP Secretariat charts the progress of implementation and
develops strategies for improving the implementation with the
‘assistance of the 0PM and EPC.

. Revision and readjustment.—-Educational planning is_a
continuous process. 'To solve the identified critical educa-
tional problems, planning goals are determined and the plans
are developed. The developed plans are handed over to each
of the operational units in the Ministry of Education to be
implemented. Furthermore, to examine theappropriateness and
effectiveness of the development plans for solving the prob-
lems, research is done or entrusted; data are collected; and
the progress of implementation of the plan is evaluated.

In.this rapidly changing society, the problems iden-
tified may be changed in their context: the planners may
become aware that their forecasting was in error; the results
of evaluation of the progress of a plan may require planners
to readjust the plan; the social demand for education may be

changed; and new educational methods or techniques may be

_... r..._,' is“- ,

IV-ZO

developed. Under these circumstances, continuous improve-
ment of the plans is one of the primary tasks of the
planners.

Therefore, on the basis of the results of evaluation,
and with the research findings, the scheme must be devised
to improve the plans, and lastly the plans must be revised
and readjusted.

In giving the function of revision and readjustment
of educational plans to the educational planning systems
such as the CLEP Secretarian the 0PM and EPC, it is most
proper to adapt the same method proposed when discussing
the function of the development of plans. That is, the
responsibility of revision and readjustment of the sectorial
plans must be given to EPC, and that of overall plans to

the CLEP Secretariat.

 

‘1 ”W. 1

m C...

“I’MW‘Hw-

D I'rr 1‘.‘ Wm- wfsthfl~m‘v ' o a: '

m .
4 ." v" RMuWI‘m-fl-“flm r.”

' navy-Ow"

CHAPTER V

SUMMARY AND RECOMMENDATIONS

Since the turn of the century, Korean education has
developed so greatly not only quantitatively but also quali-
tatively that an education isno longer considered the privi-
lege of a select elite, but rather it is the right of every
able citizen, and provision of educational opportunities has
become the government's responsibility.

Many areas of education have been the targeuéf
exploration and concern. One major area of concern is educa-
tional planning. The existing limited facilities, human
resources and finances should be used more effectively and
with best best results. .Beginning to develop long-term as well
as short-term educational planning, Korea is reCOgnizing that
successful planning in education should be based on scientific
investigation of theoretical foundations and examination of a
multitude of factors including the reality factor which
affects the planning and conSequent effects.

In this context, this study aimed to investigate the
role and function of the administrators of the Ministry of
Education in Korean educational planning. The study developed
several specific areas of purpose. First, the study reviewed
the historical backgrounds of Korean education and investigated

the social and cultural foundations of its educational system.

V-l

V-Z

Second, the study explored the theoretical foundations of edu-
cational planning. Third, the study examined the organizational
structure, powers and responsibilities of the Ministry of Edu-
ca ion and of the officials in that institution. Finally, the
study attempted to examine the role of the administratoes of
the Ministry of Education in Korean educational planning.

The historical background of Korean education and its
social and cultural foundations were reviewed and investigated
in Chapter I. The history of Korean education was explored in
three parts. They are: (1) the period from the beginning of
Korean history to the fall of Sinla in A.D. 936, (2) the
period from the Goryeo (936-1382) to the Reformist movement of
1894, and (3) the period from 1894 to the present. The beginning
of formal education in Korea was made, as far as the oldest
historical references are concerned, in the 2Three Kingdom
Era." In the Sifila Dynasty, there were the training programs
known as Hwarang-do and the Kukhak was established as the
national higher learning institution.' In other kingdoms, namely
in the Gokuryo and Paikjare, there were similar educational
institutions. The aims of education in these kingdoms were
chivalry and morality which are the characteristics of fedual
society. The educational systems in this era were influenced
by the T'ang, the dominant group in China during that period.

The second stage of educational development, from the
Goryeo to the Reformist movement of 1894, was characterized by
the growing supremacy of Confucianism which deeply moulded Korean
society and Korean mentality with its practical philosophy and

common sense morals. The influence of these traditional

V-3

Chinese philoSOphies has been directly Opposite to progressive
educational thoughts and practices.

During the Goryeo Dynasty, the public educational
institutes developed further; the public service examination
system was firmly established: and private schools were also
established.

The latter half of the Yi Dynasty saw a growing con-
cern in practical sciences among manyascholars. But this move-
ment was not developed and inherited enough by following genera-
tions.

‘The final stage in our historical investigation was
characterized by the importation and practice of new educational
thoughts. The reformist movement started in 1984 and ended with
the Japanese annexation of Korea in 1910.

The resistance to Japanese imperialism.was mature within
and without the country by the time of the Liberation. In 1948
the Government of the Republic of Korea as a constitutional
republic was founded in the southern half of the country and

has been develOping into a democracy.

The aims of education were promulgated in Article 1
of the Education law which says, ”The preparation of independent
life and citizenship which are necessary for the development of
a democratic nation and the achievement of the prosperity of all
mankind," and further specified in Article 2.

However, in spite of such lofty ideals, Korean educa-
tion involved a multitude of difficulties. Lack of both school
facilities and competent teaching and administering personnel

was eunrbely felt from the very outset of all new attempts at

g.» warp-S" v F$~Mm? -

V-4

educational reform. For Japanese trained Korean educators and
administntors, the reformsfrom a completely authoritarian and
bureaucratic educational system to a democratic one were drastic.
In other words, the philosophy accustomed to non-democratic
ideals for thousands of years before liberation was too deeply
rooted to change over night.

Despite the accumulated difficulties, determined efforts
were made in rebuilding Korean education with the active assis-
tance of international agencies such as the United Nations
Korean Reconstruction Agency and the United States Government.

Exploration of the theoretical foundations of educational
planning was dealt with in Chapter II. Definition, objectives,
the phases of educational planning as well as the necessary con-
ditions for successful educational planning were drawn there.

Originally, the planning system was introduced and
developed by the military and industry. Later, the principles
'were applied to other fields and each came to have some special
arspects. As far as the field of education is concerned, the
<3reation of the International Institute for Educational Planning,
vniich was founded by UNESCO in 1963, was a big step in the devel-
<opment of educational planning. This institute as well as the
cather international organizations such as the OECD and the
leorld.Bank have contributed in publishing and distributing a
Imiltitude of literature concerning-educational planning.

Some scholars draw the definition of educational plan-
njzng with emphasis on the aspects of a continuous and systematic
Enfiacess and some on an indication of what educational planning

ougflrt to be. They include elements such as the future, action

V-S

and preparing or designing of something. Most of the experts
distinguish educational planning fnm execution and implementa-
tion. In this study, educational planning was defined as
follows: educational planning is the process of preparing
a set of decisions for action in the future to achieve the
specific goals of education.

Educational planning is a system for obtaining the
best possible results out of available alternatives.

From the literature review, the following dimensions
of the objectives of educational planning were noted: the
dimension of the educational planning objectives as an instru-
ment for effective administration; giving decision-makers
alternative solutions; developing a planning educational system;
training and strengthening the people who are concerned with
education through their participation; an instrument to promote
comprehensiveness and consistency in educational policies;
stimulating desirable educational development and changes; and
a measure of control to achieve a planned goal.

The phases of educational planning refer to the flow of
'work through the system in such a way that respective responsi-
‘bilities in the different stages can be fully delineated and
achieved. The stage of educational planning and the respective
:responsibilities were discussed in eight steps. They were:
(1) the initiation, (2) research and gathering of informtion,
(3) deve10pment of alternative plans, (4) review and discussion
(Df the alterntive plans, (5) revision of plans, (6) selection
(of a course of action for implementation, (7) evaluation of

IITOSEeSS in implementation, and (8) adjustments to improve

implementation.

V-6

For successful educational planning, the following
conditions are noted as necessary. They are: linkage of budget
with planning; having a built-in training prOgram; making plan-
ning the knowledge center; creation of a continuous "critical
mass" of ability and production; taking place both hirizontally
and vertically; overall planning; readjustment of long-term
plans annually; giving a status and importance to the planning
office and its functions; and connecting planning with imple-
mentation. TOgether with the above conditions, the integration
of educational plans with other national economic or social
plans, the strengthening of research functions, human reltion-
ship between planners and executors, and communication among
different levels of the educational system and with other
ministries are explored as necessary conditions for successful
educational planning.

Chapter IV presented the structure, powers and respon-
sibilities of the central educational administrative system,
particularly emphasizing those of the Ministry of Education
which is the highest educational administrative organization in
Korea. In section 1 of the chapter, the general overview of the
organization and function of the Ministry of Education was
dealt with. The organizations concerned with the educational
planning system in the Ministry of Education were discussed in
section 2, and the Council for Long-Term Comprehensive Educa-
tional Planning (CLEP) which was organized as an advisory
'body to the Prime Minister was discussed in section 3.

Under the Minister and one Vice-Minister, the Ministry

of Education is organized with two offices, six bureaus,

V-7

thirteen sections and seventeen action officers or coordinators.
The Ministry of Education is responsible for the affairs of
education, science, physical education, compilation of the
government authorized textbooks, and authorizationof the books
used for school work. The Minister of Education establishes
all of the educational policy, and exercises final decision-
making power to implement its policy. He is the most respon-
sible figure who controls and coordinates the matters of educa-
tional administration at all levels.

Roles and functions of the Auditorial Control Officer,the
Public Relations Officer and the Student Military Training
Officer and six bureaus together with one office were discussed.

From this, it is evident that the Ministry of Education
is more or less related to educational planning. But section 2
of the chapter specifically focused upon the Office of Planning
and Management (OPM) and the Education Planning Committee (EPC)

of the Ministry of Education.

The OPM is a system established for the facilitation
of‘the business of the other offices, bureaus, and sections by
developing and coordinating educational policy and plans.

The EPC has been organized for the purpose of making
contributions to the establishment of educational policy through
investigating and research regarding the educational administra-
tion and by means of maximizing the individual ability of every
official of the Ministry of Education. This committee has seven
garb-committees and, also, may appoint special sub-committees.
Each sub-committee reports the results of its findings and

:research regularly to the Minister of Education. The reports

 

(T)

I

V-8

which are considered to have a special importance are issued to
the memberstof research institutions for their advice.

The CLEP was established early in 1969 as an advisory
body to the Prime Minister. The purpose of the council is to
serve as a medium through which the matters of long-term
educational planning can be presented, discussed and reviewed.
Specifically, the functions of the Council are as follows:

a. The analysis and forecasting of the school popula-
tion, manpower supply and demand, magnitude of
educational finance.

b. The plans for the maintenance or reform of educa-
tional system, curriculum, teacher supply and
demand, educational finance and educational facilities.

c. Sectoral educational plans concerning the elementary
and secondary education, higher education, science
and vocational education, social education, etc.

d. Other matters concerning long-term educational
planning;

The Council may appoint sub-committees for functional
purposes, and may ask for information, data and other necessary
cooperation from related organizations. Also, the Council can
appoint a few educational specialists. The Secretariat, which
is organized with specialists, maintains a network of coopera-
tion and liaison with other ministries and local educational
administrative institutions.

Chapter IV presented the role and function of the admin-
istrxors of the Ministry of Education.' Special attention was

focused on the functional relationshiptbetween the CLEP

.wr‘-‘o‘-- . c-

V-9

Secretariat and the organizations concerned with educational
palnning in the Ministry of Education.

For this purpose, the aspectsof educational planning
were classified into prOblem identification, research data
collection, determination of planning goals and development of
plans, evaluation, and revision and readjustment. Also, the
chapter began with the examination of the development of
educational planning in Korea.

Long-term educational planning in Korezagtarted in the'
fifties for the purpose of providing the seats for the children
of compulsive education age. In the sixties the Korean govern-
ment applied a managerial approach for the development of admin-
istration. In 1962, the first long-term comprehensive educational
planning was launched and in 1965 further elaboration was made
with the aide of a UNESCO Advisory Team. Recently, the newly
established CLEP and its secretariat have completed a fifteen
year long-term comprehensive.educational plan with the parti-
cipation of many people. . h

The roles of the administrators of the Ministry of
Education in educational planning was discussed in four parts.
They were: (1) problem identification, (2) determination of
planning goals and development of plans, (3) research and
evaluation, and (4) revision and readjustment. Alse, the CLEP
Secretariat, OPM and EPC were examined in relation to these
functional aspects. And the role model was developed with the
consideration of the strengths and.weaknesses of each organ-
ization when it was supposed to perform the fucntions.

The planning work begins with the awareness of the

V-lO

needs for planning. There the identification of the problems
should precede all other work.

The OPM has easy access to and is familiar with the
practical problems confronting all levels of school boards and
schools. The CLEP Secretariat has a variety of knowledge
sources andcan objectively observe and identify the problems.

From the analysis, the author proposed that the OPM
should be the centralrorganization of educational problems.
Also powerful voice should be given to the CLEP Secretariat,
thereby the ideas and observations of these two systems can be
integrated. Within this structure of the organizational power
distribution, Special committees might be made with the members
of the OPM? CLEP Secretariat and other EPC members.

As a next step, within the bounds of the Constitution
eum.Education Law, what is possible, what is desirable and
which should have priority must be determined before planners
develop plans. When problems are identified, plans are developed
to achieve the planning goals.

Presently, each office, bureau, or section in the
Ministry of Education has the prime responsibility for drawing
sectoral plans under the coordination of the OPM. The OPM
develops overall plans by generalizing and integrating the
sectoral plans. The original function of the CLEP ls not
the preparation of plans, but it is reviewing of the plans and
other matters on educational planning.

Under the present organizational system, a strategy
must be made to integrate all the advantages of each system of

the C’EP Secretariat, OPM and EPC. It may be a way to distribute

.ap.- q~.,-——,—, - v

-' "~v—-- .- 5‘..—

V-ll

some of the functions of the development of plans to each of
the systems while coordinating their given functions From
this point of view, the author proposes the following distri-
bution of functions and procedures: The sub—committee o. EPC
prepares the sectoral plans with the assistance of the CLEP
Secretariat. 'The CLEP Secretariat develops alternative solu-
tions and likely consequences for consideration by decision-
makers. The CLEP Secretariat also prepares a draft of overall
educational plans for consideration by EPC and the Minister.
The OPM takes the role of communication and coordination
between the CLEP Secretariat and EPC.

Furthermore, the author argues that, in the development
of plans, the functions of the CLEP Secretariat, OPM and EPC
should not be differentiated by the duration of plans.

Planning must rely to a great extent upon research,
data collection and evaluation, for the purpose of diagnosis,
forecasting and choosing priorities.

Successful conditions for the successful research
strategy include the selection of research priorities, concentra-
tion of research efforts on each priority, and effective colla-
boration with the research consumers.

Under the present educational planning system the
major responsibility of research is entrusted to the CLEP Sec-
retariat and EPC. But, to be effective, the CLEP Secretariat
and EPC should organize a welleintegrated research team with 42¢)
efficient communication system. Also, much of the advanced
research work should be entrusted to outside researchers and

research institutes.

V-12

On the other hand, for practical and survey type data,

the following specific procedures seem to be most suitable.
The OPM collects data from regional school boards, schools and
other attached institutions and passes it on to the CLEP Sec-
retariat. The CLEP Secretariat develops a data bank together.
with the data collected from other ministries or institutions.
The CLEP Secretariat provides the necessary data produced for
educational planning to EPC or other ministry officials.

If the progress of the plans in implementing must be
evaluated periodically in terms of the objective of plans, the
report of the progress of the plans must be the basis of evalu-
ation work. Here, it is proposed that the primary responsi-
bility of evaluation should be given to the CLEP Secretariat
rather than to the OPM which is the current practice. 80, the
(HEP Secretariat charts the prOgress of implementation and
develops strategies for improving the implementation with the
assistance of the OPM and EPC.

As a final phase and as a first phase, in another sense,
continuous improvement and readjustment of the plans must be
considered. Educational planning is a continuous process. In
other words, critical educational problems should be identified.
‘Plans should be developed; the effectiveness of the development
plans should be determined; and, with these results: the plans
must be revised and readjusted, thus enabling the development
of better programs.

In giving the function of revision and readjustment of
educational plans to the educational planning system such as

the CLEP Secretariat, the OPM and EPC, it is most proper to

V-13

adopt the same method proposed when discussing the function of
the development of plans. That is, the responsibility of
revision and readjustment of the sectoral plans must be given

to EPC, and that of overall plans to the CLEP Secretariat.

Recommendations

The purposecOf this study was the development of the
role and function of the administrators of the Ministry of
Education in Korean educational planning. In the context of
this purpose, several specific areas were reviewed and devel-
oped. They were the historical background of Korean education,
the theoretical foundations of educational planning, the central
educational administrative system in Korea, and the role of the
administrators of the Ministry of Education in Korean educa—
tional planning. From this investigation, several recommenda-
tions are made for Korean educational planning and its devel-
opment. I

I. Continuance of the Council for Long-Term Comprehen-

sive_Educationa1 Planning (CLEP): In order to maintain a

 

continuous relationship between the CLEP and the administrators
of the Ministry of Education in the educational planning process,
it is essential to retain the CLEP institutionally. For the
development of education in Korea, a new long-term comprehensive
educational plan was completed by the initiative_of the CLEP

and its Secretariat. On the basis of the long-term prospective
and strategies of this plan, a medium-term educational program
has also been drawn up by the administrators of the Ministry

of Education. However, the long-term plans should be updated

V-13

adopt the same method proposed when discussing the function of
the development of plans. That is, the responsibility of
revision and readjustment of the sectoral plans must be given

to EPC, and that of overall plans to the CLEP Secretariat.

Recommendations

The purposeuof this study was the development of the
role and function of the administrators of the Ministry of
Education in Korean educational planning. In the context of
this purpose, several specific areas were reviewed and devel-
oped. They were the historical background of Korean education,
the theoretical foundations of educational planning, the central
e ucational administrative system in Korea, and the role of the
administrators of the Ministry of Education in Korean educa-
tional planning. From this investigation, several recommenda-
tions are made for Korean educational planning and its devel—
opment.

I. Continuance of the Council for Long-Term Comprehen-
gigg_§ducationa1 Planning (CLEP): In order to maintain a
continuous relationship between the CLEP and the administrators
of the Ministry of Education in the educational planning process,
it is essential to retain the CLEP institutionally. For the
development of education in Korea, a new long-term comprehensive
educational plan was completed by the initiative of the CLEP
and its Secretariat. On the basis of the long-term prospective
and strategies of this plan, a medium-term educational program
has also been drawn up by the administrators of the Ministry

of Education. However, the long-term plans should be updated

v-15

'uoation should concentr

\1" i
’i*_’\ .
1.. a, (i

ate its efforts on his

A ' _. ‘ I z I u .
ruH.LLhu he the hinlsilu Hi «:w

's {L7w52wn :5 the ninizxry vi unurszion is or ought to be
planning. Under the present functional organizational system,
the administrators have limitations in giving their time to
ifl:unning Inwutunn {Anyy urn <nu3rhurd<wuxi by ITMJLIHO vuirk.

IV. Training of Staffs: The planning process in the
Ministry of Education should emphasize its roles in the con-
tinual reorientation and training of the staffs of the Ministry.
In Korea where there is a centralized and authoritative educa-
tional administrative system, the attitude toward planning of
the leaders in the Ministry of Education has a Significant
influence on those who work in the educational administrative
system.

V. Strengthening of Research: The strengthening of

 

the planning system should include the giving of importance

to research. It is the tendency that the important educational
policies in the nation are based on research findings. The
Ministry of Education also should be operated'for facilitating
the research activities of every administrator. Also, importance
should be given not only to the concentration of reSearch
priority, but also to the utilization of their findings. For
the facilitation of research,the plan for the establishment

of a national educational development institute should be

realized.

BIBLIOGRAPHY

on, em. Educational Planning. Syracuse, New York: Syracuse tniv.
Press, 1964.

neccy, C. E., ed. gualitative aspects of educational planning. Paris:
Unesco, 1969.

 

Bereday. George Z. P. and LaueryS. Joseph: A-v ed° Educational Planning’
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Horld, Inc., 1967.

 

ahola,Harbans and Blanke, Virgil. "Organization for Educational Improve-
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Chirikos, Thomas N. and Wheeler, A. C. R. "Concepts and Techniques of

Educational Planning," Review of Educational Research, XXXVIII, No. 3,
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Etzioni, Amitai. Modern Organizations. Englewood Cliffs, New Jersey:
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Griffiths, V. L. Educational Planning. London: Oxford Univ. Press, 1962.

 

Hartley, Harry J. Educational Planning-Programming- Budgeting;.A Systems
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Hang, nil—soc. Educational Administration:The Basis of the Democratization
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1957. (Korean)

Kim, 3”"ng-il, "A study of Historical Roots of Educational Administration
in the Republic of Korea," Journal of Social Sciences and Humanities,
No. 2?, June 1965. (Bulletin of The Korean Research Center, Seoul,
Korea)

 

Koh, syung Chul. ed. Aspects of Administrative Development in D"outh Korea.

ha amazoo, Michigan: The Korea Research and Publication,lnc., 1967.

 

Lee, Hahn-Seen. KoreazTime, Change,_and Administration. Honolulu: East-
West Center Press, 1968.

Luaxcy, Horace P. "Dimentions of the Educational Planning Processes in
Selected Michigan School Districts." Unpublished Doctoral dissertation,
Michigan State University, College of Education, 1969.

Iieier, R' hard L. Developmental Planning. New York: McCraw-Hill Book Company,

 

.Mornhet, Edgar L. and Ryan, Charles 0. ed. Designing Education for the Future,
Mon 3. Planning and Effecting Needed Changes in Education. Rew York:
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\‘

On, Chum—suck. New Korean Educationalifhstory. Seoul: Hyun Dai Kyo Yook
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'-i-:-‘-

cial Sciences

 

Rhee, Yoo Sang. "Korean Education, 1956~1965." Journal of So
and Humanities. No. 31, December 1969. (bulletin of The Korean Research
Center, Seoul, Korea)

 

Richmond, W. Kenneth. Educational Planning: Old and New Persnectives. London:

ichae 3 Joseph, 1966.

The Central Education Research Institute. Education in Korea, 1968-1..
Seoul, the ministry of Education, Repuolic of Korea, 1968.

UNESCO. "Organization of Educational Planning in Member states: Republic
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UNESCO: international Institute for Educational Plar ning. Educational
Planning: A Bioliovranhy. Paris: the institute, 1969.

 

ULESCO. Secretariat. Elements of Educational Planning. Paris: Unesco,1963.

UNESCO-UNKRA Educational Planning Mission to Korea. Rebuildinngducation
Hen

in the uhlic of Korea: Report. Paris: Unesco, 1Q 54.

 

l

Haterston, Albert. Development Planning: Lessons of Experience.d 5 Mt more,
Maryland: The Johns Hopkins Press, 1969.

. Planning Educational Development in Korea: A Report of the
Preliminary Study Team_. Seoul: Ministry of Education, Korea, 1968.

 

. Summary of Long-Term Comprehensive. Educational Plan ( he
first draft). Seoul: The CL 8P Specialist Group, 1970.4(Korean)

 

Kimeographs
(From Dr. Brembeck)

1) Education Planning Project: An Evaluation and Recommendations.
OCtOber 2, 19700

2) The Process and Organization of Educational Planning. December
10, 1969. (Discussion Draft Only)

Kimeographs-prepared by the Korean CLEP Specialist Group. (Korean)

1’

 

 

 

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