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한부영,주재복,김건위,라휘문 한국지방행정연구원 2010 한국지방행정연구원 연구보고서 Vol.446 No.-
It is widely recognized the importance of local competitiveness for improving national competitiveness. Local governments, in particular continuously need to enhance performance to be more competitive. Researchers have been interested in how to design high-performing local governments, and local government themselves have actively tried to adapt to changing environment and have introduced a variety of approaches to increase their performances. Despite such attempts, we have hardly had a robust framework on high-performing local government, and we are not sure to what extent those attempts have contributed to increase government performances in practice. Based on recognizing the limitations, this study tries to devise a comprehensive systemic model of high-performing local government system. Since local government is generally composed of four subsystems such as organization, human resources, budgeting, and control or management subsystem, this study first focuses on deriving critical factors of the four subsystems in terms of making high performance and then integrates them into a comprehensive framework, which is able to be adopted in practical applications of local governments. First, five critical factors are proposed to construct a high-performing organizational structure and process: increasing flexibility in organizational operations and operating constant organizational analysis system; clarifying authority and responsibility of the decision-making; results-orientedness; encouraging creative innovation; and cultivating organizational culture of autonomy. Second, the following factors are recommended to consolidate a high-performing human resources management system: ensuring competence-based recruitment; providing profession-centered opportunities of training and education; results-based and fair HR management; and HR circulation for customer satisfaction. Third, some factors for achieving a high-performing budgeting system are suggested as the following: enhancing flexibility of budget compilation; future-oriented budgeting; competition-oriented budgeting; ensuring responsibility and discretion of budget operation; and allocating budgets based on results. Last, the followings are recommended to accomplish a high-performing control and management system: enhancing interests in importance of the performance management; reinforcing performance management capability; systematic measuring of performances; strategic management of performances; improving acceptability of performance management; and utilizing outcomes of performance management. These critical factors should be interconnected one another to maximize performances of local governments. Therefore, it is greatly necessary to integrate the subsystems into a comprehensive model which encompasses system components of inputs, conversions, outputs, outcomes and feedbacks. Based on the system perspective this study recommends a framework to be adopted, how local governments devise the systemic components to be a high-performing organization. In the comprehensive framework human resources and budgets are considered as inputs, which thus have to be managed in effective as well as efficient manners. Public employees should recruited by competence-based competition and assigned to right posts with allowing equal opportunities to all relevant candidates. Budgeting procedures should also be operated with flexibility, results-based and forward-looking ways. In the conversion process it is very important to respond to citizens`` demands effectively and to acquire their supports, which requires proper management system of organization, personnel and budget. In sum, all of the systemic elements are effectively interconnected and operated to bring about synergic effects. It is so critical to take the followings into account for ensuring local government system to improve performances. First, close links among subsystems should be prioritized. Independent relations among them clearly prevent local governments from producing high-performances. Second, competitiveness of each subsystem should also be enhanced under a balanced comprehensive system of local government. The competitiveness of every subsystem is a necessary condition to attain high-performing local government under the well-interlinked government system. Third, each subsystem has to set clear objectives, which drive it to get intended consequences in rapidly changing contexts. Fourth, public employees need to change their minds towards innovations and performance improvements. As critical components of local government, civil servant and public managers have to recognize importance of performance per se and to embody it in the dynamic system, which leads to a systemized local government. Fifth, it has to ensure to increase inter-subsystemic flexibility. Information and resources should flow through whole government system which is dynamic in nature. Sixth, it has to fashion a regular diagnostic mechanism to examine and to help restore malfunctions of local government. Finally, during employing the proposed systemic framework it is significant to understand some limits of the study that it does not deal with external influences and that there may be other potential ingredients of inputs, processing and feedbacks. It is expected further researches to develop more sophisticated models of high-performing local government.