Human Resources Development and Leadership with a Special Focus on Local Governments

21세기 지식기반사회에서 지역의 성장과 발전은 지역 스스로가 지식을 창의적으로 습득하고 활용할 수 있는 유능한 인적자원을 얼마나 체계적으로 개발하고 관리, 활용하는가에 따라 결정된다. 지역의 지속적 발전을 담보하기 위하여 각 지방자치단체의 경우 예를 들면, 장성군은 ‘교육군'으로, 부산광역시는 ‘인간존중, 인재중심의 Human-Polis'로, 광주광역시는 ’삶과 앎이 하나로, 인간동력 사회 구현’의 비전하에 인적자원의 개발과 활용에 대한 중장기 계획을 마련하고 이를 추진하고 있다. 이러한 시대적 흐름에 맞추어 이 보고서는 지방자치단체의 인적자원개발 현상에 대한 진단과 향후 활성화 방안, 지방자치단체장 및 고위정책결정자의 인적자원개발 리더십의 표준모델과 리더십 강화를 위한 방안을 제시하였다. 이 보고서는 중앙정부와 지방자치단체 인적자원개발의 정책 전략과 과제 수립, 지방자치단체의 인적자원개발 리더를 육성하기 위한 기초 자료로 활용될 수 있을 것이다.1. Introduction The development of local human resources has been seen by local autonomous governments as the key to reforming the regional human resources structure and to strengthening the competencies needed to implement regional projects. The number of policy measures implemented by local governments that have as their goal the education and usage of local human resources, which are rightfully seen as the driving force behind local development, has increased exponentially. This study focused on two aspects of this drive to strengthen and invigorate local human resources development: First, given that this drive to develop local human resources is still in its infancy, this study conducted an analysis of the present state of local autonomous governments human resources development efforts and the future direction of this drive. Second, this study also attempted to identify policy measures to strengthen the skills that the leaders of local autonomous governments need to possess in order to effectively implement human resources development projects in their respective regions. The research methods employed in this paper included a case study and a survey. The case study consisted of an analysis of interviews with 24 managers and specialists from the human resources departments of 12 local autonomous governments, as well as the analysis of other related materials. With regards to the survey, the results of 175 completed surveys, which had originally been sent out to 248 local autonomous governments, were analyzed. 2. Results of the case study The results of the analysis of provincial and local governments were used to form a comparison of their respective human resources development policies and of their leadership abilities. The main findings of this comparison can be found below: 1)Comparison of the human resources development policies of provincial and local governments Although both governments recognized the importance of developing human resources, provincial governments were found to focus more on developing human resources as a means of strengthening overall competitiveness, and on using these human resources as the engine of economic growth. On the other hand, local governments were found to concentrate on the actual development of human resources through such means as the provision of educational and training programs. The responsibility for the development of human resources was found to be decentralized at both the provincial and local government level, with this responsibility spread out across several departments. As far as the problems associated with the development of human resources, this study found that both provincial and local governments exhibited an inability to properly plan and implement related policy measures, a shortcoming which can be attributed to the fact that the human resources development policies are still in their infancy at both levels of government. Moreover, this study also found that the concerned managers understanding of the importance of the development of human resources remains quite basic. Another problem uncovered was that of a general lack of necessary resources, resources such as specialists, finances, and infrastructure. Furthermore, our study also uncovered that the partnership between the central government and the departments responsible for the development of local human resources remains rather underdeveloped. On the other hand, the study also found that certain positive steps had been taken with regards to the development of human resources; these include the establishment of responsible organizations and the formulation of related policies. However, as these human resources development policies are still in the early stages, these positive steps have yet to translate into concrete achievements. Another positive development which was unearthed by this study was the fact that local governments believe that administrative services and the overall sense of community has been improved as a result of the educational and training programs that have been made available to local government officials and residents. 2) Comparison of the leadership skills of the provincial and local governments On the issue of leadership, our study found that in both levels of government there was a general recognition that policy-makers and the leadership group should possess the ability to formulate the vision, objectives, and direction for such policy; to form a common sense of purpose with all other concerned parties; and to secure the finances needed to implement these policy measures. This study revealed that at both the local and provincial government levels there is a need for those in charge of developing human resources to possess the following competencies: organizational skills; a keen business sense; ability to formulate a vision and to make decisions; desire to see things through to fruition; resource management skills; persuasion skills; ability to form network linkages; ability to see things through to fruition; specialization; and personnel management skills. As far as linkages and cooperation were concerned, the study revealed that there is indeed a need for both provincial and local governments to maintain a close cooperative relationship with human resources development managers at the central government level, as well as with those of other local governments. This study also found that the following factors were crucial in order to assure that the leadership group at both the provincial and local government levels successfully achieve their policy goals: the leadership should possess the competencies needed to formulate the policy vision and objectives; the human resources development policy should be planned and implemented in a systematic manner; the concerned parties should be induced to participate in the decision-making process; and the necessary specialists and financial resources should be secured. On the other hand the following factors were identified as currently being detrimental to the leadership groups ability to successfully implement policy: the presence of short term-based policies; the leaderships possession of negative attitudes towards the process; a general lack of input and participation; and a lack of financial resources and specialists. On the issue of leadership problems, our study revealed that the leadership groups of both the provincial and local governments did not possess a clear-cut vision or direction for their policy-making processes, and that they also lacked the specialists and financial resources needed to support their policies. In addition, provincial governments were found to be attempting to implement regional innovation systems and strategic plans that were not in keeping with their economic situation, while local governments were found to not possess a proper understanding of the nature of a regional innovation system. As far as the overall objectives were concerned, provincial governments were found to be concentrated on establishing a human resources development system correlated to the National Human Resources Development system, and on using this system to create jobs. On the other hand, local governments were found to be concentrated on extending the number of educational and training programs. Meanwhile, both governments recognized the need to improve the competencies of policy-makers and of the leadership group in order to have them take on a role that more closely resembles that of a CEO. On the issue of the expectations toward those leaders charged with carrying out the development of human resources, our study found that the leadership group was expected to prepare a support system capable of fostering the development of human resources policy; to secure the necessary finances and specialists; and to construct cooperative relations with those concerned with the development of human resources in the central government and other local governments. Finally, the following steps were identified as means of strengthening leadership: the provision of educational and training programs in order to develop leadership competencies; the introduction of a leadership certification system; and the construction of a cooperative system among local governments. 3. Results of the survey 1)Present state of local autonomous governments human resources development This survey revealed that 58.3% of the local governments polled have been implementing indigenous human resources policies for less than 5 years, while 12% have been doing so for less than a year. Thus, the period in which local autonomous governments have been implementing policies related to the development of human resources has actually been quite short. When asked about the main reasons behind the launching of human resources development programs, 62.9% of the respondents answered that such a step had been taken at the behest of the local leadership group; 17.7% responded that this step had been taken as part of an overall central government or higher body's policy; while 9.1% answered that these programs had come about as a result of the efforts of local government officials. This result clearly indicates the importance of the leadership group in bringing such programs to fruition. Meanwhile, 67.8% of the respondents answered that the objective of this drive to develop regional human resources was to improve government services by heightening the job performance of government officials; while 62.6% answered that it was to increase regional competitiveness; and 33.9% answered that it was to develop the capabilities of local residents and to improve the quality of life. Finally, 15.5% answered that the overall objective was to achieve social integration by supporting marginalized groups. On the other hand, 62.6% of the respondents answered that the main focus of the human resources development drive in the future should be the fostering of a sense of community and the establishment of a communal culture; while 55.2% answered that it should be the provision of educational and training programs for government officials; 32.8% felt that it should be the construction of the necessary infrastructure, institutions, and laws related to the development of human resources; and 31.6% answered the education of the human resources in strategic industries. The survey revealed that the average amount of capital invested by provincial governments in these human resources development programs was 179.27 billion won(5.3% of the total budget). Of this total, an average of 172.88 billion won(96.4% of the total funds invested) came from their own budgets while 5.97 billion won(3.3% of the total funds invested) was provided by the central government. Meanwhile, the average amount of capital invested by local governments was found to be 3.23 billion won(1.4% of the total budget). Of this amount, an average of 1.84 billon won(57% of total funds invested) came from their own budgets, while on average 1.45 billion won(45% of total funds invested) was provided by the central government or higher bodies. The survey also uncovered that local autonomous governments policy measures have been designed to: bring about immediate improvements in the specialization of human resources(90.3%); create a regional youth culture(89.1%); heighten the use of female laborers(80.0%); and to activate lifelong education opportunities for residents(78.3%). Moreover, our survey found that the majority of local autonomous governments planned to continue to pursue these objectives in the future. With regards to the problems associated with the development of human resources: the human resources brain drain(3.43); lack of cooperation from the central government(3.35), lack of infrastructure (3.19), and lack of finances(3.18) were found to be the most common answers. Interestingly, the leadership group(1.81) and government officials(2.31) understanding of human resources development were not identified as being serious problems. When asked to name the positive effects of the ongoing development of human resources drive, the respondents listed the improvement in services brought about as a result of the concurrent improvement in government officials job performance(3.62); the development of local residents capabilities and improvement in the quality of life(3.37), as well as a general increase in the level of understanding and interest in the development of human resources(3.34). 2)Present state of the leadership provided by local governments with regards to the development of human resources and related improvement measures The survey found that the leadership group of the provincial and local governments has adequately carried out the following tasks: the sustained implementation of changes and reforms(3.24); establishment of a vision and strategy for the development of human resources(3.23); and the establishment of policy plans(3.20); construction of cooperative linkage systems(3.19). On the other hand, their ability to perform the following tasks: the enactment of regulations designed to foster the development of human resources(2.76); monitoring of the implementation of policy measures designed to foster the development of human resources(2.76); securing of the resources needed for the development of human resources (2.84); and the construction of the necessary infrastructure(2.84), was found to be wanting. However, both leadership groups recognized the importance of carrying out these tasks in the future. As far as the competencies that are required by the leaders to implement the job tasks related to the development of human resources are concerned, the present leadership group was found to score highest in the leadership competency cluster, which includes such competencies as sincerity(3.82) and communication skills(3.64). The second highest scoring cluster was the result-oriented competency one, which includes such competencies as customer service(3.62), decision-making ability(3.58), and problem solving ability(3.53). Coming in third was the reform-oriented competency cluster, which includes such competencies as creativity and innovation(3.53), the possession of a strategic mindset(3.47), and the ability to formulate a vision(3.46). However, in the future it is expected that the leadership group will have to first and foremost possess reform-oriented competencies such as creativity and innovation(4.52), the possession of a strategic mind(4.17), and the ability to formulate a vision(4.15). The second most important competency cluster that leadership groups will have to possess in the future was found to be the leadership one, with such competencies as sincerity(4.22) and the establishment of a cooperative system(4.12) considered to be especially vital. Meanwhile, the result-oriented competency cluster was seen as being the third most important with such competencies as customer service(4.15), and the ability to resolve problems(4.10) scoring highest in this cluster. Meanwhile, while the present leadership group scored very low in terms of competencies related to human resources development specialization, they also tended to regard this cluster as being less important. In addition, the construction of partnerships and a cooperative system for the development of human resources scored an average of 2.0, thus revealing that this policy field remains rather underdeveloped. The brightest spots in this particular policy field were found to be the development of educational training programs in cooperation with external educational training institutes and the introduction of external educational training programs. The majority of the problems faced by the leadership group of local autonomous governments with regards to the development of human resources were related to the issue of the resources needed to support the development of the related leadership skills, with the lack of finances(3.47) and specialists(3.27); the central governments failure to provide standard guidelines(3.24); and the low applicability of resources(2.97) identified as the most glaring shortfalls. Meanwhile respondents tended to view the problems directly related to the leadership group(i.e., lack of vision and direction) as being less important than the problems related to the implementation of human resources development measures. The following steps were suggested as being needed to invigorate the leadership groups leadership skills: the education and usage of human resources development specialists(3.65); the establishment of cooperation and linkage systems(3.60); the provision of finances and autonomous rights(3.59); increased participation and support from those related to the development of human resources(3.57); as well as the provision of leadership training programs(3.52).요 약 제1장 서론 제1절 연구의 필요성과 목적 1 제2절 연구의 내용 및 구성 4 1. 연구의 내용 4 2. 연구의 절차 5 제3절 연구의 방법 6 제4절 연구의 제한점 8 제5절 용어의 정의 9 제2장 인적자원개발과 리더십의 선행연구 분석 제1절 지방자치단체 인적자원개발의 실태, 사례 및 과제 11 1. 지방자치단체 인적자원개발의 실태 11 2. 지방자치단체의 인적자원개발의 사례 17 3. 지방자치단체 인적자원개발의 과제와 방향 21 제2절 지방자치단체 인적자원개발 리더십의 실태, 사례 및 강화 방향 24 1. 인적자원개발 리더십의 실태 24 2. 지방자치단체 인적자원개발 리더십의 사례 35 3. 지방자치단체 인적자원개발 리더십의 강화 방향 39 제3장 지방자치단체의 인적자원개발 및 리더십 사례연구 개요 및 결과 제1절 조사 개요 41 1. 조사모형 41 2. 조사방법 42 제2절 조사 결과 43 1. 사례조사 기관 및 참가자 인적사항 43 2. 광역자치단체의 사례조사 결과 45 3. 기초자치단체의 사례조사 결과 51 4. 광역 및 기초자치단체의 인적자원개발 및 리더십 비교 58 제3절 시사점 63 1. 중앙정부차원의 지역인적자원개발 및 리더십 강화 방안 63 2. 지방자치단체차원의 지역인적자원개발 및 리더십 강화방안 65 제4장 지방자치단체의 인적자원개발 및 리더십 설문조사 개요 및 결과 제1절 조사의 개요 67 1. 조사의 방법 67 2. 조사의 내용 72 제2절 조사의 결과 76 1. 설문참여 지방자치단체 및 응답자의 일반사항 76 2. 지방자치단체 인적자원개발 현황 및 실태 78 3. 지방자치단체 인적자원개발 리더십 현황 및 실태 91 제3절 시사점 117 1. 지방자치단체 인적자원개발의 실태와 강화 방안 117 2. 지방자치단체 인적자원개발 리더십의 실태와 강화 방안 118 제5장 지방자치단체의 인적자원개발 및 리더십 강화 방안 제1절 지방자치단체의 인적자원개발 및 리더십 강화 방안 개요 121 제2절 지방자치단체의 인적자원개발 및 리더십 강화 방안 123 1. 지방자치단체 인적자원개발 강화 방안 123 2. 지방자치단체의 인적자원개발 리더십 강화 방안 131 제6장 결론 제1절 요약 137 제2절 제언 140 SUMMARY 143 지방자치단체의 인적자원개발 및 리더십 설문조사지 157 지방자치단체별 인적자원개발 및 리더십 사례조사결과 173 참고문헌 22