(A) study on the factors influencing the idea creation, adoption, diffusion and implementation of national R&D management regulations of Korea : a new institutionalism approach

다국어 초록 (Multilingual Abstract)

In the recent era of technological hegemonies and the paradigm shift brought about by the Fourth Industrial Revolution, the role and importance of national R&D that conducts challenging and creative research that is difficult for the private sector to do has been increasingly emphasized. Along with the growth of national R&D, research management policies and research management institutions have also advanced, and their importance has increased. Until now, the main interest in national R&D projects focused on efficiency at the program level and neglected what is happening in the R&D projects that constitute the programs. Even if the budget and manpower are efficiently allocated at the program level, innovative research performance cannot be ensured if the behavior of the person or agency conducting the R&D is restricted.
This study proposes policy implications by considering the idea creation, adoption, diffusion, and implementation process of a national R&D management institution from the perspective of new institutionalism. Considering the theoretical evolution of the new institutional analysis, this study explored the institutional route centering on the ideas, institutional diffusion considering the temporal dynamics and decoupling according to the interaction of actors with the institution constituting the R&D management institutional complex.
First, from a macro perspective, the institutionalization route formed and introduced was explored, centering on ideas. From the Kim Dae-jung administration to the Moon Jae-in administration, paradigm ideas for national agendas and program ideas from government policy documents were derived using text mining(TF-IDF). The results were compared to each administration's introduction of R&D management institutions, confirming the formation of ideas and four institutionalization routes. Most followed the route of paradigm idea-program idea-institutionalization (Route 1). In the case of institutionalization through paradigm ideas (Route 2), institutionalization through communicative discourse fits the best. In the case of institutionalization through program ideas (Route 3), institutionalization through the coordinative discourse of two-way communication with major actors of the R&D management institutional complex corresponds. When institutionalization proceeded without an idea (Route 4), external variables, such as social issues, acted and constituted radical institutionalization. In addition, the characteristics of the institutionalization route by the administration, the research management process, and the time lag between policy ideas and institutions were confirmed.
Second, the diffusion process of the introduced regulations to each ministry was explored from the mid-range perspective. Focusing on five detailed R&D management institutions the isomorphism theory and institutional characteristics were analyzed to identify their influence on the initial speed and saturation as they constituted the temporal dynamics of institutional diffusion. As a result, the combination of the isomorphism mechanism and the mimetic isomorphism at the introduction stage positively affected the initial speed. As for the institutional characteristics at the developing stage, the decrease in institutional ambiguity, such as a detailed standard through separate guidelines, and power relations through common rules, positively affected the saturation of institutional diffusion. However, institutional conflict that is incompatible with the institution lowered saturation. In case of the 3/5 rule introduced through paradigm idea-program idea-institutionalization (Route 1), the initial speed was not high, but the saturation was high. Research misconduct, institutionalized through Route 4, showed a high initial speed and saturation. Other institutions introduced through Route 3 showed relatively low saturation.
Finally, microscopically, the phenomenon of decoupling was considered in the process of actual implementation of the introduced and diffused R&D management institutions. Paper receipts were analyzed as a case study, which symbolizes the administrative burden of the researcher and is institutionalized through sufficient discourse according to Route 1. From the perspective of new institutionalism, an institutional complex was derived to analyze why paper receipts cannot be abolished, despite government efforts to abolish them in various ways, such as through policies and system improvement. The decoupling mechanism was examined in consideration of institutional characteristics and actor strategies. As a result, five decoupling mechanisms were identified: 1) Decoupling Mechanisms based on the institutional complementarities and the absence of enforcement, 2) Decoupling Mechanism based on Institutional continuity and the limitations of institutional enforcement means, 3) Decoupling Mechanism based on Institutional ambiguities, 4) Decoupling Mechanism based on partial institutional design, and 5) Decoupling Mechanism based on power asymmetries.
Currently, the research management system of the national R&D projects forms a complex system composed of various actors and regulations. In this situation, to minimize confusion in research sites and exert the intended effect of the institution, the introduced institution must diffuse at a high speed and high saturation. To this end, rather than understanding the R&D management institution piecemeal, it is necessary to comprehensively understand a series of processes from a macro, mid-range, and micro perspective to introduce ideas into the regulations, diffusion, and implementation stages.
First, there is a need for a sufficient process of discourse in institutionalization in which ideas are formed, and institutions are introduced. The institutionalization without ideas (Route 4) may occur, but even in this case, sufficient discourse should proceed afterward. It is necessary to actively discuss paradigm ideas, especially in introducing institutions related to the post-management process.
Second, to minimize confusion at research sites and fully exert the intended effect, it is necessary to quickly spread the introduced institutions to all ministries. To this end, the institution should be reflected in the「National R&D Innovation Act」which is a common regulation, as soon as possible. It is also necessary to prepare separate guidelines. In particular, to follow the mimetic isomorphism process, the competent ministry needs to operate the system on a trial basis and share the operating results.
Third, in the process of the actual implementation of the institution, the cause of the interaction and the decoupling of the institutional complex must be resolved. The management regulations of various ministries related to the introduced institution should be quickly revised, and the expertise of the research management support department should be increased to narrow the gap between the institution and the actual execution. Above all, it is necessary to reform the conservative research and administration culture that has been restricted due to concerns about audit agencies. When the administration promotes institutional change, audit agencies should also be able to deal with the institutional changes through active communication and encourage proactive public administration.
With the growth of the national R&D project, it will be important to analyze the research management institution that can affect the research activities of researchers, who are the subjects of the research, in establishing national R&D policies. It is hoped that the results of this study can contribute to providing a systematic management framework of national R&D management institutions.

국문 초록 (Abstract)

4차 산업혁명, 기술패권의 시대에 민간이 하기 어려운 도전적이고 창의적인 연구를 수행하는 국가연구개발사업의 역할과 중요성이 강조되고 있다. 2001년 4조 4,853억원이었던 국가연구개발사업의 예산규모는 2022년 29조 7,770억원 규모로 확대되었으며 국가연구개발사업의 연구개발과제의 수는 2001년 21,237개에서 2020년 73,501개로 증가하였다. 이러한 국가연구개발사업의 성장과 함께 연구과제를 관리하는 연구관리정책과 연구관리제도 또한 고도화되고 그 중요성도 높아졌다. 그러나 그동안 국가연구개발사업에 대한 주된 관심은 사업단위의 효율성에 치중되고 사업을 구성하는 연구개발과제의 단위에서 벌어지는 일은 크게 주목하지 않았다. 그러나 사업단위에서 예산과 인력을 효율적으로 배분하여도 궁극적으로 과제단위에서 연구개발을 수행하는 자의 행위가 제약된다면 혁신적인 연구성과를 담보할 수 없다.
본 연구는 제도를 중심으로 현상을 이해하는 신제도주의의 관점에서 국가연구개발관리제도의 아이디어 형성과 도입, 확산과 실행과정에 영향을 미치는 요인들을 고찰하여 정책적 시사점을 제안한다. 신제도주의 제도분석의 이론적 진화를 고려하여 아이디어를 중심으로 제도화 경로를 탐색하고, 시간적 동태성을 고려한 제도확산, 연구관리제도복합체를 구성하는 제도와 행위자의 상호작용에 따른 탈동조화(Decoupling)를 살펴보았다.
먼저 거시적으로 아이디어를 중심으로 제도가 도입되는 제도화 경로를 살펴보았다. 김대중 정부부터 문재인 정부까지 5개 정부를 대상으로 텍스트마이닝을 통해 국정과제로부터 패러다임 아이디어, 정부안건으로부터 프로그램 아이디어를 도출하였다. 그 결과를 각 정부의 제도도입 결과와 비교분석하여 제도가 형성되는 4가지 제도화 경로를 확인하였다. 대부분은 패러다임 아이디어-프로그램 아이디어-제도화로 이어지는 경로(경로1)를 따랐다. 패러다임 아이디어-제도화의 경우(경로2)는 정부의 일방향적인 소통적 담론을 통한 점진적 제도화가 이에 해당하였다. 프로그램 아이디어-제도화의 경우(경로3)는 연구관리복합체의 주요 행위자와의 양방향 소통의 조정적 담론을 통한 제도화가 이에 해당한다. 아이디어 없이 제도화가 진행된 경우(경로4)는 사회적 이슈 등 외적변수가 작용하여 급진적 제도화에 해당하였다. 또한 정부별, 연구관리 프로세스별 제도화 경로 특성과 정책아아디어와 제도 간의 시차도 확인하였다.
다음으로 중범위적 관점에서 도입된 제도가 각 부처에 확산되는 과정을 탐색하였다. 5개 세부관리제도(3책5공, 연구부정행위, 회계법인 위탁정산, 성실수행 인정기준, 제재부가금)를 중심으로 동형화 이론과 제도특성이 제도확산의 시간적 동태성으로서 초기속도와 포화도에 영향을 미치는 요인을 분석하였다. 그 결과 도입단계에서 동형화 매커니즘의 중첩과 모방적 동형화 매커니즘은 초기속도에 긍정적 영향을 미쳤다. 전개단계의 제도특성으로 별도지침을 통한 제도모호성의 감소와 공통규정을 통한 권력관계 작용은 제도확산의 포화도에 긍정적인 영향을 주었다. 그러나 제도와 집행간의 격차와 양립하기 어려운 제도와의 갈등은 포화도를 낮추었다. 특히 경로1을 통해 제도화된 3책 5공 제도의 경우 초기속도는 높지 않았지만 궁극적으로 포화도가 높게 나타났다. 경로4를 통해 제도화된 연구부정행위 제도는 초기속도와 포화도 모두 높게 나타났다. 경로3을 통해 도입된 이외의 제도들은 상대적으로 포화도가 낮게 나타났다.
마지막으로 미시적으로 도입되고 확산된 제도가 실제 실행되는 과정의 탈동조화 현상을 고찰하였다. 연구자 행정부담을 상징하며 경로1을 통해 충분히 담론을 거쳐 제도화된 종이영수증을 사례로 분석하였다. 정부가 정책, 제도개선 등 다방면으로 종이영수증 폐지를 위한 다양한 노력을 기울임에도 연구현장에서 종이영수증이 왜 폐지되고 있지 못하는지 연구관리제도복합체를 도출하고 제도특성과 행위자 전략을 고려하여 그 인과기제를 살펴보았다. 그 결과 1) 제도의 상호보완성 및 강제집행 부재에 따른 인과기제, 2) 제도의 지속성과 집행수단 한계에 따른 인과기제, 3) 제도의 모호성에 따른 인과기제, 4) 부분설계에 따른 인과기제, 5) 권력관계에 따른 인과기제를 확인할 수 있었다.
현재 국가연구개발사업의 연구관리 체계는 다양한 행위자와 제도로 구성된 복합체이자 복잡계를 형성하고 있다. 이러한 상황에서 혁신적인 연구성과를 창출하기 위해 노력을 들여 설계하고 도입한 연구관리제도가 빠르게 범부처적으로 확산되어 그 의도한 효과를 발휘하는 것이 중요하다. 이를 위해 연구관리제도를 단편적으로 이해하기보다 거시적, 중범위적, 미시적 관점에서 아이디어가 제도로 도입되고 확산되며 실제 적용에 이르는 일련의 과정을 통합적으로 이해하여야 한다.
첫째, 아이디어가 형성되고 제도가 도입되는 제도화에 있어 충분한 담론의 과정이 진행될 필요성이 있다. 아이디어 없이 제도화된 경우에도 사후적으로 담론의 과정을 진행하고, 사후관리 프로세스와 관련된 제도도입에 있어서는 패러다임 아이디어 측면에서부터 활발히 논의될 필요가 있다.
둘째, 연구현장의 혼선을 최소화하고 의도한 효과를 충분히 발휘하기 위해서는 도입된 제도가 범부처에 빠르게 확산될 필요가 있다. 이를 위해서는 공통규정인「국가연구개발혁신법」에 제도를 조속히 반영하고 제도의 세부내용을 담을 수 있는 별도지침을 마련할 필요성이 있으며 모방적 동형화 과정을 따를 수 있도록 주무부처는 제도를 시범적으로 운영하며 그 운영 사례를 공유할 필요가 있다.
셋째, 제도가 실제 실행되는 과정에서 제도를 둘러싼 복합체의 상호작용과 탈동조화의 원인을 해소해야 한다. 도입된 제도와 관련된 여러 부처의 관리규정을 신속하게 개정하고, 연구관리 지원부서의 전문성을 높여 제도와 집행 간의 격차를 줄여야 한다. 무엇보다 감사기관에 대한 우려로 고착화된 보수적 연구행정문화를 개혁해야 한다. 행정부에서 제도변화를 추진할 때 감사기관과의 활발한 소통을 통해 감사기관도 제도변화를 인지할 수 있도록 하고, 적극행정을 장려해야 한다.
연구관리제도는「국가연구개발혁신법」제정에서 볼 수 있듯이 혁신적인 국가연구개발사업 성과를 이룩하는데 주요한 밑거름으로 자리매김한 만큼 본 연구가 연구관리제도가 체계적으로 설계되고 관리될 수 있는 토대가 될 수 있기를 기대한다.

목차 (Table of Contents)

• Chapter 1. Introduction 1
• 1.1. Research Background 1
• 1.2. Research Composition 4
• 1.3. Integrated Research Model 6
• Chapter 2. National R&D Management Institutions 10
• 2.1. An Overview and Implementation System of the National R&D Management Institutions 10
• 2.2. Institutional Change in R&D Management of 5 Administrations 16
• 2.2.1. Kim Dae-jung Administration(1998.2.25-2003.2.24) : Preparation the Foundation of R&D Management Institutions 17
• 2.2.2. Roh Moo-hyun Administration(2003.2.25-2008.2.24) : Embodiment the R&D Management Institutions 18
• 2.2.3. Lee Myung-bak Administration(2008.2.25-2013.2.24) : Improvement of Research Management Institution for Universities 22
• 2.2.4. Park Geun-hye Administration(2013.2.25-2017.3.10) : Improvement of Research Management Institution for Enterprise Perspective on Regulatory Reform 25
• 2.2.5. Moon Jae-in Administration(2017.5.10.-2022.5.9) : Integration and Balancing of R&D Management Institutions 29
• Chapter 3. Literature Reviews of The New Institutionalism Analysis 44
• 3.1. Branches of New Institutionalism and Theoretical Evolution 44
• 3.2. Idea Creation and Adoption : Ideas, Discourse and Institutionalization 46
• 3.3. Diffusion : Temporal Dynamics, Isomorphism Theory and Institutional Characteristics 52
• 3.4. Implementation : Institutional Complex and Decoupling 57
• Chapter 4. A Study on the Idea Creation and Adoption of the National R&D Management Institution 60
• 4.1. Detailed Research Models 60
• 4.2. National Agendas as a Paradigm Idea 61
• 4.3. Government Policy Documents as a Program Idea 65
• 4.3.1. Government Policy Documents and Text Mining Method 65
• 4.3.2. TF-IDF Analysis Results 69
• 4.4. Analysis of the Institutionalization Route 77
• 4.4.1. Major Institutions by Institutionalization Route 78
• 4.4.2. Characteristics of Institutionalization by Route 81
• 4.4.3. Characteristics of Institutionalization by Government and Research Management Process 84
• 4.4.4. The Time Lag between Ideas and Institutionalization 87
• 4.5. Conclusion 88
• Chapter 5. A Study on the Diffusion of the National R&D Management Institutions 92
• 5.1. Detailed Research Models 92
• 5.2. Selection of Major R&D Management Institutions 95
• 5.3. R&D Management Regulations and Institutional Diffusion Curve 98
• 5.4. Diffusion Curve and Factors of R&D Management Institutions 103
• 5.4.1. The 3/5 Rules 103
• 5.4.2. The Research Misconduct 107
• 5.4.3. The Consignment Settlement 109
• 5.4.4. The Sincerity Criteria 113
• 5.4.5. The Monetary Sanction 115
• 5.5. Conclusion 118
• Chapter 6. A Study on the Implementation and Decoupling of the National R&D Management Institutions 125
• 6.1. Detailed Research Models 125
• 6.2. The R&D Management Institutional Complex 126
• 6.2.1. Actors 127
• 6.2.2. Institutions 128
• 6.2.3. Conclusion 129
• 6.3. Analysis on the Logic of Paper Receipt Abolition Policy 130
• 6.4. Analysis of Decoupling Phenomenon : Why Paper Receipts Are Maintained 134
• 6.4.1. Decoupling Mechanisms Caused by the Institutional Complementary and Absence of Enforcement 134
• 6.4.2. Decoupling Mechanism Caused by Institutional Continuity and Limitation of Institutional Enforcement Means 135
• 6.4.3. Decoupling Mechanism Caused by Institutional Ambiguities 136
• 6.4.4. Decoupling Mechanism Caused by Partial Institutional Design 137
• 6.4.5. Decoupling Mechanism Caused by Power Asymmetries 139
• 6.5. Conclusion 142
• Chapter 7. Policy Implications and Limitations 144
• 7.1. Conclusions and Policy Implication 144
• 7.2. Limitations and Future Research Topics 150
• Appendix 153
• References 175

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