United Nations Public Service Awards Case Studies

Low birthrates are now a serious issue all around the world. Korea's fertility rate in 2009 was 1.15, the lowest of all OECD members. The country's situation is clearly extreme, prompting the Korean government to implement a multi-pronged policy to raise it. Unfortunately, none of its actions have shown any apparent effect.
The low birthrate is attributable to various factors related to the economic situation, child care, values, society, and occupation. Economic and child care factors are the most important ones. For government employees, an environment favorable to child care has greater effect on childbirth than any other factors.
The alternative human resources bank initiative is a scheme for providing immediate substitutes from a pool of alternative human resources for government employees who take maternity or parental leave. Coworkers of government employees have had to assume the duties performed by those on maternity or parental leave. This has placed heavy psychological stress on government employees intending to take maternity or parental leave, and left organizational sentiment generally unfavorable toward them. Due to the absence of an institutional mechanism utilizing alternative human resources as well as the negative sentiment at work, many female government employees face a great deal of difficulty regarding child care both at home and work, and this, in turn, has made them reluctant to have children.
In 2010, the Korean government (Ministry of Public Administration and Security) implemented the alternative human resources bank initiative in full swing. It is designed to reduce the psychological stress on employees taking maternity or parental leave and fill the vacuum in operations caused by their absence in order to encourage more childbirth among public servants.

What is the initiative about? (the solution)
The number of female government employees has sharply increased, and government support for maternity and child care is steadily growing. Naturally, the number of employees taking maternity or parental leave is gradually increasing. Against this backdrop, filling vacuums in operations caused by the absence of those on leave is likely to emerge as an important issue impacting organizational performance. In the event an employee takes maternity or parental leave, the human resources department may consider certain options including securing alternative human resources and reassigning duties among coworkers. The former is the most desirable option for the sake of organizational management or productivity. Utilization of alternative human resources in the case of maternity or parental leave generates the following benefits. Firstly, coworkers do not need to assume the duties of those on leave of absence, who accordingly can take leave freely without any psychological stress arising from feelings of letting down their coworkers. Furthermore, those on leave of absence have less unease or reluctance toward childbirth since the burden of child care will be somewhat lifted. Secondly, from a government management perspective, the operational vacuum caused by those on leave of absence is minimized, which ensures continuity of administrative services and increases productivity. Thus, business affairs in an organization and child care at home can be taken into account in a balanced manner. ----------------------------------------------------- 1)Psychological stress and vacancy due to maternity or parental leave \| \| Vacancy filled with substitutes \| v 2)Reduced psychological stress and increase in number of parental leaves \| \| \| v 3)Enhanced productivity and higher birth rate

Who proposed the solution, who implemented it and who were the stakeholders?
The Ministry of Public Administration and Security, which is in charge of human resources management and organizational administration of the Korean government, has ascertained how frequently and how long maternity and parental leaves are taken by government employees and conducted an investigation as to how operational vacuums have been addressed. According to its findings, most of the duties of those on leave of absence are vicariously carried out by coworkers. The Ministry collected opinions of each agency on this issue. In a 2009 survey, many government employees replied that there was a pressing need to utilize alternative human resources in the event of a maternity or parental leave and that an institutional scheme toward that end should be established. In April 2010, the Ministry mapped out a plan to galvanize use of alternative human resources and laid down a method for institutional improvement. In parallel, the Ministry concluded a memorandum of understanding in May 2010 with major agencies (Ministry of Health and Welfare, Ministry of Employment and Labor, Ministry of Gender Equality and Family, and Seoul Metropolitan Government) to make a coordinated endeavor to institutionalize utilization of alternative human resources, allowing all of the agencies to participate in the initiative. Since strong determination of human resource managers and division directors at each central administrative agency is essential to utilization of alternative human resources, the Ministry has made multi-faceted efforts to encourage use of the alternative human resources scheme, hosting several rounds of presentations on the scheme for the human resource managers. In 2009, 6,641 government employees took maternity or parental leave. Except those cases where a vacancy is filled through recruitment of new employees or reassignment of duties to coworkers, alternative human resources will likely be utilized. In light of the sharp increase in the number of female government employees in public services and expected promotion of parental leave by reducing psychological stress on government employees who intend to take such leave, utilization of alternative personnel should gradually increase. If an operational vacuum caused by those on parental leave is filled not by vicarious performance of duties by coworkers, but by deployment of alternative personnel through a 300-member alternative human resources pool established by the end of October 2010, about as many new jobs as people in the alternative human resources pool will be created.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
In order to promote use of alternative human resources, the alternative human resources scheme had to be improved. Alternative human resources had been utilized to a minimal degree in the past, but they were civilians, not government employees. This imposed limitations on their use by each government agency in terms of accountability or areas of business performance. To rectify this situation, the alternative human resources needed to be granted the status of government employees. It was also necessary to pay compensation comparable to that of government employees to alternative human resources in order to attract competent people. Development of an integrated alternative human resources bank management system was also necessary to enable each government agency to readily select and deploy alternative human resources. To tackle these challenges, the Ministry first created ‘temporary contract government employees.’ Creation of such new contract government employees, who are temporarily hired during maternity or parental leaves of regular employees, was intended to improve business accountability and expand the scope of duties performed by alternative workers. Furthermore, the Ministry ensured more applications from high-quality human resources by offering compensation on par with that of government employees. Secondly, the Ministry built an alternative human resources bank management system. With development of a system for managing selection, supply, and administration of alternative human resources, the Ministry allowed applicants to search government agencies' recruitment announcements and submit applications more easily. The Ministry also constructed a web-based system enabling human resource managers at each agency to easily search applicants and manage them after their recruitment. Thirdly, the Ministry expanded the human resources pool for the alternative human resources bank. It allows the Ministry to establish an integrated pool of alternative human resources in advance with common business areas of central administrative agencies at the center, and promptly provide alternative human resources to each agency when needed in the event of maternity or parental leave. Such an integrated human resources pool reduces inconvenience of each government agency in individually posting recruitment announcements, receiving applications, and screening documents. The Ministry also induced each central administrative agency to expand its own human resources pool with focus on their respective areas of specialization. The Ministry. furthermore, ensured that each agency would build an optimum alternative human resources pool in view of the number of employees expected to take maternity or parental leave in the next six months and deploy alternative human resources in a timely fashion in the case of maternity or parental leave.

b. What were the key development and implementation steps and the chronology? No more than 500 words
Utilization of the bank has been pursued in the following three stages: < 1st stage > Improved human resources management system (Creation of new category of government employees) < 2nd stage > Building of alternative human resources management system < 3rd stage > Set up of alternative human resources pool ----------------------------------------------------- In the first stage, the governmental human resource management system was improved. In January 2010, the ‘Rule on the Appointment of Public Officials’ was revised to introduce the ‘maternity or parental leave prior announcement system.’ Accordingly, those planning to apply for a leave of absence is required to notify a person with employment authority of their intention and the period of such leave at least one month in advance. This allows the human resources management department at each agency adequate time to secure alternative human resources. In September 2010, with revision of the ‘Regulation on Contract Public Officials’, the position of temporary contract government employees was newly created to give alternative human resources the status of government employees. Similarly, the ‘Regulation on Compensation for Public Officials’ was revised to pay alternative human resources the same compensation and allowances as those of the first-class salary level for the corresponding rank of regular government employees. In the second stage, a web-based alternative human resources management system was built in September 2010 to simplify the alternative human resources hiring process and streamline their selection and management. Recruitment of government employees generally involves public announcements, receipt of applications, written tests, and interviews. As it is a time-consuming process, simplified procedures were needed to choose alternative human resources in the event of maternity or parental leave. The hiring process for ‘temporary contract government employees’ who replace those on maternity or parental leave was simplified in a way that omits written test on recruitment when necessary. The function to select and manage alternative human resources was newly added to the existing webpage for government job opportunities (http://gojobs.mopas.go.kr). This allows job seekers as alternative human resources to search job opportunities easily, and agencies in need of alternative human resources to swiftly employ qualified alternative human resources by means of the search function. Towards this end, the webpage provides a function to search applicants for the position of alternative personnel, which enables each agency to quickly search qualified alternative human resources among applicants who registered their resumes in advance. In the third stage, an alternative human resources pool was set up. With the improved personnel management scheme, hiring process, and recruitment administration system in place, the Ministry of Public Administration and Security initially built a 200-member alternative human resources pool in October 2010 to replace regular employees taking maternity or parental leave for up to six months in the area of common affairs of all central administrative agencies. In consideration of the level of use of alternative human resources by each agency, the Ministry plans to retain more personnel for the alternative human resources pool in the future. Other central administrative agencies have been independently building an alternative human resources pool since September 2010. The pool should continue to grow since each agency will continually select alternative human resources.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
In promoting the alternative human resources bank, there were numerous difficulties associated with creation of a new type of government employees called ‘temporary contract government employees.’ Under the existing human resources management and organizational schemes for Korean government employees, those who took maternity leave or less than six months' parental leave constituted a part of the hiring quota even during their leaves of absence. This imposed restrictions on new recruitments to take their place. This situation necessitated deployment of civilians as alternative human resources. In order to boost utilization of alternative human resources, it was necessary to grant the status of government employees to alternative human resources. The creation of a new type of government employees that can replace those on maternity leave or less than six months' parental leave was a major watershed. Departments in charge of government employee management schemes were not initially enthusiastic toward the creation of the new type of government employees. They cited possible confusion regarding the existing government employee classification system and difficulties in human resources management. This issue was addressed when understanding of the need for use of alternative human resources was promoted and the Ministry presented a method to thoroughly manage alternative human resources. Agencies managing governmental budgets likewise felt burdened, specifically with regard to the higher labor costs occasioned by increasing utilization of alternative human resources. Given the growing administrative productivity that use of alternative human resources enabled as well as the increased efficiency resulting from the higher morale of employees who may take maternity or parental leave, however, the benefits clearly outweighed the costs, according to the findings of analysis. Use of alternative human resources therefore garnered a positive response, and each of the central administrative agencies that will actually disburse funds to cover labor costs decided to endeavor to secure the financial resources necessary to bear whatever increase in labor costs may occur. Another important challenge was to redress a lack of understanding of human resource managers at each agency who will actually hire alternative human resources. These officers and the division directors at each agency generally prefer to have coworkers assume the duties of absent employees instead of bringing in alternative human resources in the event a short-term operational vacuum due to maternity or parental leave. The process of selecting alternative human resources and familiarizing them with the day-to-day business affairs is quite complicated, and many managers and directors believe that deployment of alternative human resources may hamper organizational management. Under these circumstances, the Ministry held several presentations on utilization of alternative human resources to promote understanding of the initiative among the human resource managers at each agency. The Ministry decided to promote use of alternative human resources by noting the level of their use in governmental performance assessments regarding human resource management.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
The resources needed to improve the alternative human resources bank system are largely human resources and budgets. Concerning human resources, one team leader and two working-level officers of the Ministry played a pivotal role in the entire process ranging from institutional improvement to construction of an alternative human resources pool. Five officers in charge of related schemes (fifth-grade public officials) also took part in the process. Budgets include funding to build an alternative human resources pool and funding to utilize the pool. The funding to build an alternative human resources pool covers costs incurred for development of an alternative human resources bank management system and for selection of personnel constituting the pool. The Ministry spent $16,168 in constructing the alternative human resources bank management system. Since each agency may select, recruit, and manage alternative human resources by the system, it sustains no costs individually. Labor costs account for nearly all of the costs of using alternative human resources. As cyber education is used to train selected alternative human resources, virtually no additional costs are incurred.

Is the initiative sustainable and transferable?
Considering the increasing interest in child care, requests for parental leave and the needs for alternative human resources are likely to grow steadily. The Korean government believes that the alternative human resources bank system constitutes an effective approach allowing compatibility of work and home. It plans to continually push for the initiative to encourage childbirth and intends to continue improving the system in the future. Civilian businesses also need to proactively examine and adopt the alternative human resources bank system. It is also deemed necessary for foreign governments to positively review possible introduction of the alternative human resources scheme because it turns out that duties of those taking parental leave are mostly assumed by their coworkers even in major countries including the U.S., Germany, and Japan.

What are the impact of your initiative and the lessons learned?
In a process of improving the alternative human resources scheme including creation of ‘temporary contract government employees’ and setting up an alternative human resources bank, the Ministry identified the needs of female government employees including those on maternity or parental leave. Considering the large number of high achieving female workers whose careers have been interrupted and wish to serve as alternative human resources, the Ministry became aware of the demands for flexible jobs and ascertained the necessity to make such jobs available. Many agencies expressed strong interest in building an alternative human resources bank. Also, a consensus was forged concerning the need to create a family-friendly working environment where work and home coexist in harmony. This led to efforts to grant leaves in more cases such as abortions or stillbirths, expand the flexible work system, and render more workers entitled to parental leave. These were all huge steps toward making the human resources management system more family-friendly. Only one month after establishment of the alternative human resources bank, it is premature to make a numerical judgement on alternative human resources utilization. If use of the alternative human resources bank is promoted, however, substantial headway should be made in many respects. On the personal front, the psychological stress on employees taking maternity or parental leave will be lifted thanks to timely deployment of alternative human resources. This is likely to spark a significant increase in use of parental leave. From an organizational perspective, agencies which previously experienced enormous difficulties in managing their organizations due to maternity and parental leave will now be able to maintain business continuity and enhance organizational productivity since those on maternity or parental leave will be replaced by alternative human resources in a timely fashion. In addition, the easing of the psychological stress on female government employees will help increase business efficiency and subsequently contribute to organizational productivity. On the social front, if childbirth incentives undertaken by the government including the alternative human resources scheme spread to the private sector, a family- or childbirth-friendly environment will be created throughout society, and this should gradually rectify the national challenge of the low birthrate. In order to enhance the effectiveness of the alternative human resources initiative, which should afford the many important benefits mentioned above, constant monitoring and rethinking are required. It is also necessary to respond quickly to any problems that may arise in the process of operating the scheme. There must be on-going training and education to improve the professionalism of alternative human resources, together with selection of alternative human resources tailored to meet operational needs and their deployment in the right place.


Institution Name:		Ministry of Public Administration and Security
Institution Type:		Government Agency
Contact Person:		Hansu Kim
Title:		Director of Balanced Personnel Division
Telephone/ Fax:		82-2-751-1681
Institution's / Project's Website:		82-2-751-1467
E-mail:		hansukim@korea.kr
Address:		8 Cheonggyecheon-ro, Jung-gu
Postal Code:		100-170
City:		Seoul
State/Province:
Country:

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information