How to improve the Governance to adopt Competency-based Training System in Korea

본 연구는 산업수요중심의 훈련제도를 성공적으로 정착시켜 나가기 위해 어떠한 방향으로 거버넌스를 개선해 나가야 할 것인가를 제시하는 것을 목적으로 수행되었다. 특히, 산업수요중심 거버넌스 체계에서 가장 중요한 축이라 할 수 있는 산업체의 참여를 촉진하기 위해 어떠한 노력이 필요한가를 제시하고자 하였다. 이를 위해 국내 대표적 산업수요중심 훈련제도인 NCS(국가직무능력표준)와 일학습 병행제의 적용 실태와 쟁점을 살펴보고, 국내 산업별 인적자원개발위원회(ISC)를 중심으로 산업체의 산업수요중심 훈련제도 참여 실태와 문제점을 파악하였으며, 해외의 능력중심 훈련제도들을 중심으로 제도의 특성과 거버넌스, 그리고 거버넌스에서 산업체의 역할이 무엇인가를 분석하여 제시하였다.1. Overview The ever increasing youth unemployment coupled with the ageing workforce requests ever more efficient training system. To address these issues more effectively, the Korean government has recently introduced a numerous demand-driven, competency-based training arrangements such as National Competency Standards(NCS) and Work-Study Training Programs which is similar to Swiss Apprenticeships. One of the major characteristics of these competency-based arrangements is that they need strong involvement of industries for their successful operation. This is quite a challenging task considering the tradition of weak industry involvement in VET in Korea and the fact that industries do not have long experience with solving their HRD problems collectively. In other words, we need to transform the present VET governance structure to make the new arrangements work. This study aims to identify key policy issues to be addressed in order to establish a new governance system to support newly introduced demand-driven training arrangements. The study focuses on the role of industries and their organization as a new stakeholder in the governance. To achieve this goal, the study went through the following steps. First. it looked at the making of newly adopted training arrangements in Korea, how they are being operated and what the major issues are, with focus on the role of industries. Secondly, it analysed the current status of 11 Korean Industry Skill Councils established so far, with focus on the roles they play in operation of new training arrangements. In the process, we conducted a in-depth interview of the major personnels in each ISC to gather information on how ISCs are adapting to new training arrangements and what their major challenges are. Thirdly, we looked at the overseas examples of competency-based training arrangements which played actual models of newly adopted training arrangements in KoreaWe analysed the governance of the Training Package system in Australia and that of Swiss Apprenticeship with special focus on the role of industries and skill sector councils. Then, we also analysed the financial support mechanisms for the Sector Skill Councils practiced in United Kingdom, to benchmark on how to measure the achievements of sector councils, which can be used as a basis for their subsidy. Finally, based on implications drawn from the results, we made policy suggestions on what policy initiatives to be undertaken to improve the current VET governance in Korea. 2. Major Results and Their Implications In Chapter 3, we looked at the current status of 11 Industry Skills Councils in Korea. They are all involved in the operation of newly introduced government training arrangements. Their roles aredevelopment and continuous improvement of National Competency Standards, development of New Qualifications, which can be obtained by participating in Work-Study Programs, and consultation of forms regarding how to adopt NCS-based HR system, etc.. While the ISCs in Korea widely accept their roles as a parter in the new governance structure, they all pointed out that there are rooms for improvement. They wanted increased partnership with the government and bottom-up communication style in implementing the training arrangements. They also wanted their roles in the new training arrangements to be more specific and focused on the core activities that reflect key functions of sector councils. They asked for the clear blueprints of their prospects provided by the government. The foreign examples of competency-based training arrangements in Australia, Switzerland and U.K surveyed in Chapter 4 provides implications for the direction of improvement of our VET governance system. The ISCs in Australia are assigned clear roles in the operation of competency-based training, which are development of Training Package qualifications and standards. Each ISC is given quite a degree of freedom in pursuing other activities that fall into the category of mjor functions of sector skill councils in Australia. The case of Swiss Apprenticeship provides an example where industries are involved throughout the whole VET process, from the development of job standards to direct delivery of training. Sector councils in Switzerland are involved, with the help of Swiss Federal Institute for Vocational Education and Training(SFIVET), in the process of development of qualifications and job profiles, development of VET curriculums, and development of learning materials for each learning venue(school, workplace, off-jt learning center). Industries are involved in process of test and certification. The case of U.K shows an example of how to subsidize the core activities of sector councils involved in the VET process. In U.K., Sector Skills Councils are evaluated based upon their performance according to the Key Performance Indicator(KPI). They are given more autonomy in their activities since they can set up their own evaluation indicators within the guidelines specified at the contract. Also, in U.K., the inspection of ISCs are performed by a non-governmental organization, which is U.K. Commission for Employment and Skills, which emphasizes the role of the private sector in the governance. 3. Policy Suggestions Finally, we made following policy suggestions based on the outcomes of our analysis. First, we propose that the capacity of the industries be strengthened to meet their role as an important stakeholder in the governance. To do so, the financial autonomy of ISCs needs to be secured, clear and specific roles need to be assigned for the ISCs to perform, and the identity of ISCs needs to be made clear to themselves as well as to other parties in the governance. Also, the ISCs need to continuously improve their representativeness and expertise to assume their roles properly. Second, the competency-based training arrangements that are recently introduced need improvement themselves. These arrangements play the role of subject materials ISCs work on. If the material is not right, the final products can’t be good ones. The classification system of NCS needs to be improved, and policy initiatives need to be taken to make the qualifications ISCs develop widely-accepted in the market. Third, public-private partnerships needs to be strengthened. In Korea, the private sector has still a week bargaining power in public-private relationship. To work together in the governance, this kind of relationship needs to be changed. There should be more communication between the pubic(government) and private(industries) sector and it should be a two-way, bottom-up style communication. Finally, there should be a ongoing dialogue between the industries and training institutions, since their roles need to be redefined in the new competency-based training system. There should be ongoing cooperation and discussion on who should take which roles and how to deliver the competency-based training in detail.요 약 제1장 서 론_1 제1절 연구 개요 3 제2절 산업수요중심 훈련제도와 새 거버넌스 구축 13 제2장 국내 산업수요중심 훈련제도 거버넌스 구조분석_21 제1절 서 론 23 제2절 NCS의 산업수요중심 훈련제도 거버넌스 구조분석 24 제3절 일학습 병행제의 산업수요중심 거버넌스 구조분석 45 제3장 산업수요중심 훈련체제 구축을 위한 국내 산업 인자위(ISC) 실태분석_67 제1절 서 론 69 제2절 국내 산업별 인적자원개발위원회(ISC) 현황 75 제3절 국내 인자위 FGI 조사 및 결과 83 제4절 소 결 124 제4장 해외 산업수요중심 훈련제도의 거버넌스 분석_133 제1절 해외 산업수요중심 훈련제도 분석의 의의 135 제2절 호주의 능력중심 훈련제도의 거버넌스 분석 138 제3절 스위스 도제제도의 거버넌스 분석 169 제4절 영국의 산업별 기구 재정 지원 사례 196 제5절 소 결 223 제5장 결 론_227 제1절 요약 및 논의 229 제2절 제 언 245 SUMMARY_255 참고문헌_261 부 록_267 1. 부록표 269 2. 산별 인자위 실태파악 및 의견수렴을 위한 면담조사지(FGI) 29