Policy Measures for Higher Education Development from the Human Resources Development Perspective

지식기반사회로의 진전과 함께 정보화, 세계화, 고령화, 고등교육의 보편화 현상 등 고등교육을 둘러싼 일련의 사회 변화 추세는 인적자원개발 관점에서 고등교육의 근본적인 변화를 요구하고 있다. 이 연구에서는 21세기 지식기반사회에서 필요한 우수 인적자원개발을 위한 고등교육체제의 모습을 그리고, 이의 실현을 위한 정책과제를 도출·제시하였다. 또한 고등교육 단계 인적자원개발 정책 환경 변화, 인적자원개발 관점에서 본 우리나라 고등교육 의 문제 및 쟁점 이슈, 세계 주요국 및 유럽연합의 고등교육 개혁 동향, 그리고 고등교육 학제의 유연화 및 연계성 확보 관점 등을 분석ㆍ논의하고 이러한 분석 결과, 고등교육기관 유형 및 기능의 전문적 분화, 고등교육기관 학과ㆍ프로그램 개편 및 산학협력 강화, 고등교육기관 학사관리 방식 및 거버넌스 구조 개선, 고등교육의 지역화, 고등 교육의 국제화, 고등교육의 질 평가ㆍ관리체제의 구축ㆍ운영, 그리고 고등교육단계 인적자원개발 행ㆍ재정 지원 강화 등의 방안을 제시하였다. ○ 주요내용 - 고등교육단계 인적자원개발 정책 환경 변화 - 인적자원개발 관점에서 본 우리나라 고등교육의 문제 - 고등교육단계 인적자원개발의 의의와 분야별 쟁점 - 고등교육개혁 외국 사례 - 지식기반사회 인적자원개발을 위한 고등교육 발전 방안Social changes like globalization, aging, social polarization, and massification of higher education, along with the progress to the knowledge-based society, demand fundamental reform in higher education from the viewpoint of human resources development. Higher education in Korea, which has problems of one-type simple development model, lack of adults lifelong learning, and low quality education, however, has not responded properly to these changes. This study was attempted to identify new roles and functions of Korean higher education for the human resources development in the 21st century knowledge-based society and to suggest policy tasks for realizing them. 1. Social Changes around Higher Education Higher education has played a very crucial role in the process of social and economic development and will continue to do. While the main strategy for economic growth in the past was quantity-based input-oriented, it becomes now knowledge-based. Therefore, higher education is expected to have greater effect on changes in economy and society and consequently to lead them. As the human resources development in higher education has become more crucial, higher education institutions need to develop and provide various kinds of education services in its depth and scope from academic education at graduate school to technical training at 2-year college. These changes point out several implications. First, the importance of higher education as a growth engine of national economy is expected to be more emphasized as the knowledge-based economy develops rapidly and consequently industrial structure changes. Since new knowledge and skills, which are the bases of individual, organizational and national competitiveness, are created and disseminated through higher education institutions, demands for education and R&D in higher education institutions will continue to be increased very rapidly. The functions and roles of various kinds of higher education institutions will be redefined and new educational programs will be designed to respond to different manpower demands of changed industrial structure. Second, development of information and communication technology(ICT) will induce fundamental changes in education and R&D system of higher education institutions. Thanks to internet on-line services, it will become more popular to take courses in other colleges and universities, while traditional face-to-face learning-teaching activities will be reduced. Third, changes in economy, society and labor market demand globalization of higher education. Rapid development of ICT and transportation made it possible to expand international exchanges of students and faculty members and to develop joint programs on education and R&D among interested countries. As the higher education market becomes globalized, the common higher education system, which can be applied to several countries, is needed. Fourth, sharp shrink in age cohort of 18-year olds and rapid increase in older people also require quick response of higher education institutions. Decrease in age cohort of 18-year olds will exacerbate the problem of enrollment shortage. Higher education institutions should make restructuring efforts to put scarce resources to areas which needs more manpower. Also they need to develop and provide programs of re-education & training for adult workers and to make the results of re-education & training officially recognized in labor market and society. Fifth, massification of higher education requires higher education institutions to provide various kinds of education programs both quantitatively and qualitatively. 2. Problems of Korean Higher Education from the Viewpoint of HRD Human resources trained in higher education institutions during the period of 1960's～1980's made great contribution to Korea's economic growth. While the training process of human resources in higher education institutions, which produced standardized professionals and technicians, had been valid in the development period characterized by mass-production, however, it faces serious challenges as the knowledge society is coming. In order to train world class human resources with competitiveness required in the knowledge-based economy, Korean higher education system should solve three main problems: inefficiency in higher education operation, low quality, and paradigm transition. Inefficiency problems come from unnecessary national regulations, premodern governance system, and lack of linkage between higher education and labor market. Market distortion caused by government regulations on college entrance examination, profit-seeking in private universities resulting from weakening of non-distribution constraint, and mismatch between what students study and what their jobs need are examples. International comparisons on indices measuring the quality of higher education like professor-students ratio tell us that higher education in Korea still remains in the stage of mass production. In general, transition from quantitative expansion to qualitative enhancement requires increase in beneficiary's contribution. In Korea, however, large portion of higher education budget has already come from students and their parents. With respect to the paradigm transition, Korean higher education system still has old paradigm designed mainly for the age cohort of 18-22 year-olds and uses e-learning as a tool for mass production through standardized education programs. These three main problems, which exist in duplicative and synchronized ways, are threatening the future of higher education in Korea. 3. Key Issues in Human Resources Development in Higher Education As the importance of HRD increases in national and social perspectives, higher education that has both know-how of and infrastructure for HRD should play a crucial role as a base of HRD operation. It is necessary to discuss on how higher education's three traditional roles of education, research and community services are properly functioning in changing social environments from the viewpoint of HRD. Key issues on HRD in the area of 'education' in higher education include dilemma between low quality of undergraduate education caused by financial subsidy policy oriented to R&D performance at graduate school level and difficulty in enhancing R&D performance due to the burden of undergraduate education, lack of system's capacity of training top quality professionals, institutional obstacles to invite foreign brains, and poor education facilities and equipment. To overcome these problems, it is required to strengthen undergraduate education with the balance of liberal arts & science education and understanding of major studies and to restructure higher education institutions into research-oriented, education-focused and technology-centered institutions. Regarding HRD in the area of 'R&D,' it is pointed out that despite the sharp increase in the number of articles, the research productivity in Korea is far behind compared to that in advanced countries and that Korea still has problems of the lack of research funding, limited research base, and inefficient allocation & utilization of human resources. Industry-university corporation also has problems of mistrust among enterprises, universities, and government and role conflicts between government and enterprises. To solve these problems, it is necessary to make policy environments for conducting interdisciplinary joint research and inviting foreign brains and to prepare more strong research infrastructure. 「Community services」 of higher education in post-industrial knowledge- based society include lifelong learning, regional innovation, school-industry corporation, and increase in externality through development of higher education as a industry. It is necessary to put more emphases on policies for regional innovation and to make visa process easier to induce foreign brains and consequently to increase the competitiveness of Korean higher education. 4. Trends in Other Countries' Higher Education Reform Analyses on higher education reform policies in 7 countries(Japan, U.S., U.K., France, Germany, Finland, China) and EU suggest following implications: 1) it is required to make an overall review on roles and functions of several types of higher education institutions, and relationships between higher education institutions, governments and enterprises; 2) based on the review, it is necessary to redefine roles & functions of higher education institutions according to their types and characteristics, and to design systematic linkages and corporation relationships among themselves; 3) it is recommended to strengthen real working relationships between higher education institutions and enterprises, and to improve linkages between higher education institutions and regional stakeholders for regional and national economic development; 4) for easy access to higher education by adult learners, it is necessary to develop new education curriculum and programs, to change school management scheme like student enrollment and course-taking, and to increase financial aids to adults; 5) for the quality improvement of higher education, it is required to introduce strict and fair evaluation systems and to develop world class high quality universities; 6) it is recommended to further attempt internationalization of curriculum, mutual recognition of degrees by academic field, exchange of professors and students, joint research, and joint degree programs through corporation with other countries and international organizations. 5. Higher Education Development Policies for HRD in the Knowledge-based Society Based on the above analyses, 7 major policy directions and specific policy tasks are identified: 1) diversification and specialization of higher education institutions: diversification of higher education institutions, diversification of provision of higher education services, establishment of systematic corporative relationship among various higher education institutions, development of elite institutions by higher education institution type, and strengthening of universities' role in national research system; 2) restructuring of departments and programs in higher education institutions and strengthening of industry-university corporation: design and operation of education & R&D programs specialized by type of higher education institutions, implementation of incentive policies to facilitate industry-university corporation, and strengthening of career guidance services in colleges and universities as lifelong learning institutions; 3) changes in school management and governance structure: flexible school management to properly respond to the diversity of education & training demands, introduction of new governance system that has more autonomy and accountability, and constant restructuring of higher education institutions; 4) strengthening of universities' role as a main actor for regional innovation: provision of education & training opportunities for enhancing individual's employability and supply of manpower for industry through regional partnership; 5) internationalization of higher education: internationalization of curriculum by college type, establishment of international network among higher education institutions, operation of joint venture with foreign universities, and improvement of institutional infrastructure for utilizing foreign brains; 6) introduction of quality evaluation and management system: development of various evaluation models by higher education institution type, development of more scientific evaluation methods, operation of evaluation system through international network, and opening of evaluation results to the public; 7) strengthening of administrative and financial support: development of incentive measures for inducing diversification and specialization of higher education institutions and programs, increases in financial aids to adults learner and enterprises, securing of more budget, and development of new institution for mutual recognition of credits, degrees and qualifications of various kinds of higher education institutions.요 약 제1장 서론 제1절 연구의 필요성과 목적 1 제2절 연구 내용 4 1. 고등교육단계 인적자원개발 정책 환경 변화 개관 4 2. 인적자원개발 관점에서 본 우리나라 고등교육의 문제 분석 5 3. 고등교육단계 인적자원개발 의의와 분야별 쟁점 논의 5 4. 고등교육개혁 외국 사례 분석 6 5. 지식기반사회 인적자원개발을 위한 고등교육 발전 방안 모색 6 제3절 연구 방법 7 1. 관련 문헌 및 통계 수집 분석 7 2. 고등교육 개혁 사례 연구 7 3. 전문가 협의회 구성 운영 7 제2장 고등교육단계 인적자원개발을 둘러싼 환경 변화 제1절 고등교육환경 변화 9 1. 고등교육의 양적 확대 9 2. 고등교육의 질적 변화 20 제2절 경제환경 변화 25 1. 경제성장 패러다임 25 2. 경제규모의 변화 및 전망 26 3. 경제구조의 변화 및 전망 31 제3절 사회환경 변화 32 1. 정보화와 지식기반사회 32 2. 인구성장과 인구구조의 변화 35 3. 세계화 43 제4절 노동환경 변화 48 1. 노동공급의 변화 및 전망 48 2. 고용구조의 변화 및 전망 51 3. 신규인력 수급차 변화 및 전망 55 제5절 정책적 시사 62 제3장 인적자원개발 관점에서 본 우리나라 고등교육의 문제 제1절 인적자원개발 관점의 우리나라 고등교육 문제 접근 모형 67 제2절 산출(production)의 효율성 문제 77 1. 정부의 대학 규제 77 2. 지배구조 83 3. 불일치(mismatch) 85 제3절 산출물(products)의 질적 수월성 문제 86 1. 대량 교육 체제 87 2. 재원의 높은 가계부담 91 3. 국제 경쟁력 94 제4절 탈산업 지식기반 패러다임 전환의 문제 96 1. 인적자원개발이 미흡한 성인교육 97 2. 성인교육과 유리된 고등교육 99 3. e-learning과 투자 101 제4장 고등교육단계 인적자원개발의 의의와 분야별 쟁점 제1절 인적자원개발 관점에서 본 고등교육의 의의 105 1. 인적자원과 인적자원개발 105 2. 인적자원개발과 고등교육 107 3. 인적자원개발의 진지로서 고등교육 109 제2절 인재육성분야의 인적자원개발 113 1. 학부생 교육과 대학원 기능의 충돌 114 2. 고급 인력육성의 문제 116 3. 최종직업기관으로서의 고등교육 119 4. 정책적 시사 123 제3절 연구개발 분야의 고등교육 인적자원개발 125 1. 연구개발 분야의 성과와 과제 126 2. 연구개발 분야의 인적자원개발 문제 127 3. 산학협력 분야의 인적자원개발 문제 131 4. 정책적 시사 137 제4절 사회참여(봉사) 분야의 인적자원개발 논의 138 1. 사회참여(봉사)의 역사적 맥락과 현재 138 2. 지역사회의 요구와 고등교육 인적자원개발 140 3. 산업으로서 요구와 고등교육 인적자원개발 143 4. 정책적 시사 145 제5장 외국의 고등교육 개혁 방향 제1절 일본 149 1. 고등교육 개혁의 배경 149 2. 고등교육 개혁의 방향 150 3. 고등교육 개혁의 내용 154 제2절 미국 161 1. 고등교육 개혁의 배경 161 2. 개혁 변화의 방향과 내용 164 제3절 영국 170 1. ’90년대 초반까지의 고등교육 개혁 동향 170 2. ’90년대 이후 영국 고등교육 개혁의 방향 173 제4절 프랑스 177 1. 고등교육 개혁 배경 177 2. 고등교육 개혁 방향 179 3. 상보(subsidiarite) 관계의 3천년대 행정체계 수립 182 4. 고등교육 개혁 내용 - LMD(Licence-Master-Doctorat) 개혁 185 5. 국가연구체계에서의 대학과 공공연구기관간의 역할 재정립 논의 187 제5절 독일 188 1. 고등교육 개혁 배경 188 2. 독일 대학교육의 개혁 내용 190 제6절 핀란드 196 1. 고등교육의 개혁 배경 196 2. 고등교육 개혁 196 제7절 중국 199 1. 고등교육 개혁 배경 199 2. 고등교육의 개혁 200 제8절 유럽 연합(EU) 204 1. Erasmus 계획 204 2. 볼로냐 선언 205 3. 대학 개혁 9대 방안 206 제9절 정책적 시사 207 제6장 지식기반사회 인적자원개발을 위한 고등교육 발전 방안 제1절 지식기반사회 인적자원개발을 위한 고등교육체제의 미래상 213 1. 고등교육체제의 미래상 구상 시 고려사항 213 2. 고등교육기관의 유형 218 3. 우리나라 고등교육체제의 미래상 223 제2절 기본방향 227 1. 고등교육기관 유형과 기능의 전문적 분화 227 2. 고등교육기관 학과/프로그램 개편 및 산학협력 강화 228 3. 고등교육기관 학사관리 방식 및 거버넌스 구조 개선 229 4. 고등교육의 지역화 추진 229 5. 고등교육의 국제화 추진 230 6. 고등교육의 질 평가ㆍ관리체제 구축ㆍ운영 230 7. 행ㆍ재정 지원체제의 정비 231 제3절 정책과제 231 1. 고등교육기관의 다양화ㆍ전문화 231 2. 고등교육기관 학과/프로그램 개편 및 산학협력 강화 234 3. 고등교육기관 학사 운영 방식 및 거버넌스(governance) 구조 개선 235 4. 지역혁신 주체로서의 대학의 역할 강화 236 5. 고등교육의 국제화 237 6. 고등교육의 질 평가ㆍ관리체제 구축ㆍ운영 239 7. 고등교육 단계 인적자원개발 행ㆍ재정 지원 강화 241 SUMMARY 245 참고문헌 25