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국가직무능력표준(NCS) 정책의 순응행태에 대한 질적 연구 : 수도권 전문대학을 중심으로

  • 이경옥 (Lee, Kyung Og, 대학원 교육학과 교육행정학 및 고등교육학전공)

초록/요약

ABSTRACT A Qualitative Study on the Behaviors of Compliance in the Policy of National Competency Standards(NCS): Focusing on the colleges in the metropolitan area Lee, Kyung Og Department of Educational Administration & Higher Education College of Education Korea University Directed by Prof. Shin, Hyun-Seok The purpose of this study was to investigate the behaviors of compliance with the policy of National Competency Standards (hereafter, NCS) implemented at the 2-3 years colleges. The NCS was introduced to the colleges under the name of the government financial support project, the Specialized College Development Project (hereafter, SCK) in late 2014. The NCS is the systematized contents of knowledge, skills, and attitudes to perform the tasks depending on the sectors and levels in the industrial field. The SCK was designed to cultivate college students as core professionals and to make the colleges as the center institution in the higher vocational education in order to actively cope with the external environmental changes such as a decline in the number of children receiving school education, a decrease in the college admission rate, and changes in the industrial structure. Taking the NCS as a means of policy, it leads the colleges to nurture talent in accordance with the needs of the industry. The subjects are those who run the NCS center founded by the regulations to deal with all kinds of work related to curriculum development and reorganization with the NCS-based curriculum on campus, and those who formerly worked as a representative of the NCS in the office of academic affairs. They are the policy target group and intermediaries or street-level bureaucrats as well as the policy implementers. With the bottom-up approach, this study conducted qualitative research on seven NCS　directors and two former NCS senior staff. It has three research questions, which are as follows.; (1) How do the subjects perceive the policy environment surrounding the National Competency Standards?: (2) What behaviors have the subjects shown while implementing the NCS policy?: (3) Is there a relationship between the NCS policy implementation behaviors of the subjects and the realization of policy goals? The results of the study are as follows. The subjects understood not only the government-led education policies, but also the current state of the college by entering the NCS policy enforcement task. As the representatives of the NCS at college, they should have background knowledge of what the policy was, which made them look over the circumstances that colleges have faced and gave them rationale about why colleges had to take government-led financial support projects without consideration. They have widened their understanding from the superficial level of recognition of policy projects to the stage of measuring the gains and the losses the colleges might get. However, they failed to anticipate the sense of urgency and the unprecedented speed as implementing the policy which has asked colleges to change the curriculum the professor used to use while at the same time carrying out college structural reforms. Their upgraded levels of understanding constituted the basis for various responses and behaviors when to implement the NCS policy guidelines. Second, based on Sorg’s typology(1983) integrated with Hall & Loucks’ levels(1977) and with other studies such as Sanggeun Ha(2011), GeunHu Park(2015), and Combs(1981), the most general types of behaviors they showed were the intentional compliance and unintentional non-compliance. Their policy-specific behaviors are conforming, voice I, excessive, and deficient. The unintentional non-compliance means that policy implementers intend to comply but fail to do. Moreover, some intentional non-compliance behaviors acting as bluffing, replacement, or ritualism were also revealed. Their levels-of-use of the NCS policy has reached the routine use beyond the mechanical use described by Hall & Loucks(1977). The level of routine use indicates that they no longer prepare to improve the consequences of the NCS policy by themselves as well as they have made no further efforts to change. However, in order to meet the needs of the users, amelioration to make a difference and refinement to increase the effectiveness of education have been carried out, but no integration to unite with NCS policy implementation was found. Sorg(1983) considered routine use and amelioration as not-conforming but implementing. In other words, it is non-compliance. Also, responding behaviors such as ritualism, bluffing, replacement are viewed as not-implementing and not-conforming. Those are non-compliance behaviors. However, from the viewpoint of the researcher of this study, the subjects regarded those as implementing and conforming. They considered those to be partial compliance rather than full compliance. If compliance is defined to occur when an outward-looking behavior is consistent with a particular norm or rule, then all types of implementation behavior that do not match the policy guidelines are judged to be non-compliance. However, if compliance is defined to follow the contents and guidelines of the policy determined for the achievement of the policy goal, the range of compliance is broadened. Their behaviors such as amelioration, replacement, routine use, and bluffing are categorized as partial compliance or passive compliance. From the researcher's perspective, Sorg's (1983) typology of implementation behaviors such as conforming/implementing, implementing/not conforming, and not conforming/not implementing were not clearly distinguished. It is impossible to clearly distinguish between compliance and non-compliance in the real world situations as to distinguish between degree of compliance and degree of non-compliance is improbable. To assort compliance with non-compliance is simply hard. It is in accord with the opinion of scholars that compliance and non-compliance are on a single continuous line, so taking one does not mean discarding the other(Young, 1979; Sangkeun, 2006). Third, the behaviors (compliance and non-compliance) of the subjects in the implementation of the NCS policy guidelines did not appear to have a direct or significant influence on achievement of policy intentions. Their real intention is to have resistance and antipathy to the situation of following the detailed guidelines on the college curriculum, but at least they try to follow the guidelines externally. Their non-compliance behaviors did not have the powerful influence on policy performance. Although the success and failure of policies in policy implementation depend on the compliance of the target groups, their compliance and non-compliance behaviors did not exert any great influence on realizing the outcomes or effect of policy. On the contrary, the NCS policy has led the subjects accept the changes in their curriculum. Their acceptance is the quite unexpected result. It is rather rare for a policy to influence on the policy target group and to make them use the government-led curriculum in the higher education institution. However, the policy objectives originally intended such as specializing in universities, achieving 80% of the employment rate, establishing an autonomous growth base. and establishing identity as a higher vocational education institution was less related or causal. The four objectives would not be separable. They should be connected to one another. In order for the connection link to work properly, the NCS system must be settled properly at college. Therefore, it is essential that the success of the policy needs compliance of the policy target group. However, the link was not connected because of the policy itself. The main cause of the factor is the lack of policy contents (ability units and learning modules) that form the core of the NCS. If the policy design is well structured, the implementation is likely to be successful; otherwise it is likely to fail. The other comes from the fact that the policy makers seem to have not considered socio-economic conditions in the policy design. Increasing the employment rate cannot be simply solved by the curriculum changes. The target group considered the standardized curriculum(NCS) to be forced uniformization or specialization to the colleges. The subjects in the study, in fact, show contrary responses to the intentions of the policy in employment rate, specialization, and university autonomy. Fourth, the subjects showed high commitment to focus on implementing NCS policies, which can be seen in the features of the bottom-up approach. Their responding methods focus on enforcing policies. For this reason, it was judged that their implementing methods and behaviors were regarded as compliance. However their implementing acts appear in two forms.: one is that they are not interested in achieving the goals set by the policy, and the other is that the achievement of the goals can be understood to be achievable at any time in their discretion or influence. The subjects in the study reached 100% in the introduction rate of the NCS, and the rate of introduction of NCS-based subjects varied according to the college. Another evidence comes from the fact that they set the percentage of NCS-based courses to the percentage set by the surrounding colleges. They showed that they stayed on the minimum level required by the guidelines of the policy, and neglected to achieve further goals. This action does not fit the line set by the government in its policy. There are two possible interpretations that the official authority of the external policy decision-makers is neglected, known as a downside of the bottom-up approach. All outcomes, while the subjects are implementing, are represented by numerical values and converted into quantitative and qualitative evaluation scores. They are therefore sensitive to the official power of policy-makers who can engage in implementation from externally. They also react sensitively to the distribution of resources that are allocated differently according to the score. For these reasons, the official authority of the external policy decision-makers was not neglected by them. However, the subjects were found to have the discretion and influence to adjust the numbers converted into the scores at any time. They have the potential to adjust the variables. When the departments signaled that they could do up to the line they drew, they showed an implicit permission or acceptance according to some kind of unrevealed guidelines set by the university. In the NCS policy, the point that neglecting indirect variables affecting the behavior of policy implementers that the bottom-up approach says is expected to be reconsidered. However, it was unclear what their discretion is for. KEY WORDS: National Competency Standards, compliance, non-compliance, behaviors, bottom-up approach, policy implementation

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목차

I. 서론 1
1. 연구의 필요성 및 목적 1
2. 연구문제 7
II. 이론적 배경 8
1. 전문대학 현황과 재정지원사업 8
가. 전문대학의 변천과 직업교육 8
나. 전문대학의 현황과 문제점 10
다. 전문대학 재정지원사업 15
2. 국가직무능력표준 27
가. 국가직무능력표준의 개념 및 도입배경 27
나. 국가직무능력표준의 발전과정 31
다. 국가직무능력표준의 구성요소 33
3. 정책집행과 접근방법 42
가. 정책집행의 의미와 중요성 42
나. 정책집행연구의 접근방법 44
4. 정책집행에 있어서의 순응과 불응 52
가. 순응과 불응의 개념 및 행위자 52
나. 순응과 불응의 관련요인 및 유형 59
다. 순응의 확보방안 72
라. 순응과 불응에 관한 선행연구 75
III. 연구방법 78
1. 질적 연구 78
가. 면 담 79
나. 면담의 형태 80
다. 면담 수행 과정 및 분석 81
라. 문헌자료 86
2. 연구 참여자 86
IV. 연구결과 93
1. 정책 환경 입문하기 93
가. 관심 없던 문제 알아가기 93
나. 하나뿐인 선택지 96
다. 독이든 성배: 선정돼도 문제인 재정지원사업 98
2. NCS기반 교육과정: 각자도생 101
가. 도입: 지나친 순응에서 협상 가능한 순응까지 101
나. 정책지침의 변주 108
다. 운영 및 평가하기: 각자의 방식대로 순응에 최적화하기 127
3. 정책순응과 정책의도 148
가. 변화를 내 안으로 149
나. 잘못 설정된 지역연계 특성화 154
다. 달성 불가능한 취업률 159
라. 자율과 교육 사업 164
마. 정체성 혼란: 직업교육기관 vs. 직업교육훈련원 167
V. 요약, 결론 및 제언 172
1. 요약 172
2. 결론 176
3. 제언 180
참고문헌 184
Abstract 196

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