FULL TEXT - International Journal of Contemporary Management

WSPÓàCZESNE ZARZĄDZANIE nr 1/2010
Kwartalnik ĝrodowisk Naukowych i Liderów Biznesu
Creating Human Capital as a SigniÞcant Task
of Managing TSU
Antoni KoĪuch*, Artur J. KoĪuch**
Keywords: territorial self-government units (TSU), human capital
Słowa kluczowe: jednostki samorządu terytorialnego, kapitał ludzki
Synopsis: In consequence of the competition all organizations increase demand for human capital. It is very
important issue for territorial units and its administration. They are blame for use of public money and pursue maximize of results. Free election did not often guarantee educated and ready for manage in public organization people. It is one of fundamental problems of territorial units in Poland, particularly in rural areas.
The development of a market economy creates favourable conditions for the growing influence of management. All market players should understand that only few organisations will succeed by using their intutition and skills, as the operation of an organization in the modern economy calls for quality and for being responsive to the
specific needs of individual clients and groups of clients.
Enhanced competitiveness is also reflcted in the the operation of territorial selfgovernment units (TSU) which are bound to introduce new methods of management
to become competitive. A major challenge to attain this objective is the availability of
an adequately high-quality human capital.
The aim of this study is to assess the human capital of the managerial staff of territorial self-government units and the capacity of the staff to introduce new methods of
management and to improve the competitive advantages of the region..
The study used the results of studies conducted in 2006 in the form of standardised interviews with the managerial staff of selected TSUs in the Oswiecim Powiat.
In total, 45 various executive-level staff members of the Town Hall and 4 in Commune Offices were interviewed. A tabular-descriptive method was used to interpret
the results.
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Introduction
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* Prof. Dr. hab. Antoni Kożuch, Katowice School of Economics.
** Dr. Artur J. Kożuch, Agricultural University in Krakow.
A. KoĪuch, A.J. KoĪuch, Creating Human Capital...
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Local development tasks of territorial
self-government units
Local development is to be understood as concerted and systemic actions of the local community, local government authorities and other entities operating in the commune to create new and improve existing conditions for the development of the local
economy and to ensure spatial and environmental order [Brol, 1998, fasc. 785]. Local development is a long process conditioned by history, industrial, political and cultural traditions of local people. To a large extent it depends on the attitudes of the local community expressed by entrepreneurship and participation in decision-making
management processes.
The main goal of local development is to achieve the maximum public prosperity
within which the level of well-being should take into consideration current needs and
offer opportunities to continue growth and meet future needs. Among the universal
elements of local development the following are most frequently mentioned: [Regulski, 1982, pp. 37–41]
1) residents’ needs – which evolve with the progress of civilisation, appearing in
the sphere of individual experience, and further in group experience, then enter the sphere of information addressed to decision-makers; they are met in
the material sphere and through an increasing number and diversity of products and services which have no material affect; this results in development and
a new quality is created as goods and services which were so far inexistent,
2) the needs of business entities – are factors of development along with residents’
needs;
3) assets and values of the natural environment – which are used for and stimulate the development of business activity and the living conditions of the population,
4) infrastructural management – which influences the costs of taking up and running activity and settlement of new residents; determining further development of a territorial unit,
5) economic, technical, staffing and research capacity – which may be a stimulus
or act as a brake on development,
6) the level of education of the population, including skills and qualifications and
the variety thereof; as the knowledge element is as important for development
processes as traditional elements (work, land, capital),
7) cultural and industrial traditions, grass-root initiatives,
8) institutional resources – the institutions of the market environment, involving
both public authorities and economic bodies and institutional forms of voluntary activity.
When implementing local development projects, one should not overlook the issue of balanced development, understood as the process of growth and change to ensure the meeting of existing needs without limiting the meeting of their needs by future generations. [Klasik, 1998] This means the management of limited and exhaustible
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I. PROBLEMY WSPÓàCZESNEGO ZARZĄDZANIA
local resources, which will lead to the economic growth and the growing well-being of
the local community without endangering the needs of generations to come.
Local development is determined by a number of external factors which consists
of the general economic policy of the state, credit and tax system, availability of means
of production and organisational solutions. It also at the same time depends on local
factors which significantly complement externalities, influence their effectiveness contribute to their specification and through the synergic effect bear results which cannot
be achieved without the local element.
The basic unit of territorial self-government in Poland is a commune. Pursuant to
the provisions of the Act on Territorial Self-Government may be defined as a self-government community consisting of residents and a specific territory. The scope of operation of e commune comprises all public matters of local importance which have not
been reserved by other acts for other entities. The activity of a commune self-government with respect to organization and provision of public and social goods aimed at
meeting the needs of local residents is also of importance. These tasks include the financing of socio-economic development, covering the costs of public services provided
free of charge or at a reduced rate, ensuring public safety and maintaining the self-government administration are of key significance.
Self-government authorities are key actors role at the local level, by running farreaching socio-economic policy, implementing new methods of activity, providing aid
and inspiration and supporting initiatives of diverse community groups. The main
components (areas) in the development process which are entrusted to the local government are: the planning and co-ordinating of local development, creating industrial
zones, using local resources, financing and financial support to local development, local promotion and marketing and spatial planning connected with local development.
The management of local development relying on public authorities’ influencing
local residents and the economy is an expression of self-government interventionism.
It is necessary for the local development policy to overcome many institutional, systemic, competence and financial barriers. Considering the limited capacity for creating new jobs, a active role of self-government bodies lies chiefly in the creation of favourable conditions for entrepreneurship development.
A number of tasks which are exclusively in powers of the commune are associated
with the management of the local economy, of which the most important are: 1) the voting of a budget of a commune as the main source for the funding for the tasks implemented by the commune, 2) voting of a local spatial development plan, being a model
for commune spatial development, a systemic instrument to steer the commune development, binding on residents and economic operators, 3) voting on economic programmes making up the strategy of commune development, 4) passing resolutions on
property matters, taxation, incurring loans, taking up investment activity, taking over
the tasks of state government administration and other bodies in matters connected
with local development
Direct economic activity has an important role as one of the many economic functions of territorial self-government. The activities of territorial self-government units as
regards the creation of favourable conditions for the development of economic entities
A. KoĪuch, A.J. KoĪuch, Creating Human Capital...
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providing for the needs of the local community, and in particular creating a new model
of services traditionally provided by the commune authorities on the commune territory are gaining special importance. This refers mainly to the increased indirect impact
of the commune on the activity of business entities established in the commune which
may be achieved through such activities as approval of local spatial development plans
and deciding on the terms of construction and land development; land and premises
management (sale, perpetual usufruct, renting, lease and lending to use, organising
and running open and covered markets); granting permits for the removal, utilisation
and disposal municipal waste, running animal shelters; participation in setting prices
for the use of public utilities (water and electricity supply, sewerage system, waste deposits etc.), providing rules of operation in accordance with environmental protection
laws and influencing the situation by using tax law instruments by setting the public
legal charges in the form of local taxes and charges.
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Human capital and its signiÞcance for modern organizations
and their future
The diversity of organisations and the capacity of organisations to benefit from the
leverage of production factors used results in different capacities to generate innovative ideas and to improve the effectiveness based on new experience. These differences
stem from their staffing and organisational capacity to identify and solve problems,
readiness to adapt to change, continuous learning and the benchmarking of the organisation’s activities against best external practices, and thus the quality of its intellectual
capital. [Hamel, Prahalad 1999]
In the modern management theory, human capital is one of the two basic elements
of the intellectual capital, “constituting the sum of what everyone in the organisation
knows and which is decisive for its competitive advantages” [Strojny 2000]. Another
element is the structural capital, i.e. the human capital transformed into the organisation’s assets. Patents and new technologies which enrich the organisation as a whole
and lead to better financial results are “smart bombs in the economic war of tomorrow”.
Human capital is defined as the resources of knowledge, skills, health and vitality
of a society/nation [Domanski 1998, Kozuch A.J. 2003]. People accumulate knowledge
and skills which are considered to be a major form of capital in the system of the modern economy. [Schultz 1976]. The accumulation of knowledge and capacity is known
as the creation of human capital [Proniewski 1996]. Hence education is considered the
main source of human capital.
The capitalisation of the resources of knowledge, skills, abilities to perform work,
health and energy is embodied in the individual, hence the accrued human capital is
a resultant of two processes. On the one hand we have to deal with the accumulated effects increasing the existing human capital in an individual, via adequate investment
in human capital. On the other hand, this existing capital is subject to the process of
ageing and decreases as a result of a complex and multi-aspect process of depreciation
[Domanski 1998].
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I. PROBLEMY WSPÓàCZESNEGO ZARZĄDZANIA
The position in the management process is also connected with an adequate resource of knowledge, skills and abilities. The following roles can be distinguished in
this respect:
– utiliser of existing solutions,
– implementer of new solutions,
– creator of new developments.
In the modern economy the very existence and development of an organisation depend on its innovativeness (in terms of product, processes and organisation). But continuity is also required. It should be noted that it also relies on internal qualities (e.g. human resources flexible enough to upgrade their personal skills and adaptive to changing
environment) and externalities, resulting from the innovative aspects of the environment.
[Jasinski 1997] In fact one can talk about organisations being either leaders or followers.
The modern economy is globalised, favouring intangible assets (ideas, information,
connections) and is strongly internally inter-related. Thus it can be noted that modern public governance is required to encompass not only traditional administration as
such, but also all activities which will bring about the maximum effectiveness of the
implementation of strategic goals envisaged. It also requires such activities be carried
out in the context of public accountability through the flexible operation of administrative authorities, for whom the notion and the functioning in a competitive environment is not alien. It is unquestionable that these requirements can only be met when
the staff is well prepared to meet this challenge.
The essence of the governance process is the continuous management of change
and a continual adaptation to the changing environment. Thus it becomes necessary
to pursue increased effectiveness and enhanced competitiveness of the territorial selfgovernment units. This calls for modern management methods to improve the quality
of decision-making processes, to raise the level of “client” satisfaction (product quality) and improve the rational governance of organisations. Hence the main strength of
an organisation is innovativeness, while the organisation’s success is determined by the
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Social Services as a Social and Economic Growth Factor
A strong relationship between the investment in human resources and the capacity to invest is of special significance for TSUs. Where the public reaches an adequate
level of knowledge and skills and, by itself, starts to come up with demands for new
economic investments while at the same time rejecting the investments which do not
offer an appropriate return on investment, then the economic system is really being
transformed, becoming flexible and open. The raising of the value of the human capital leads, as an effect, to the broadening of “an array of choices available for people, by
developing a map of their preferences, i.e. making them aware that certain choices do
exist. An increased offer of options available to select a concept for arranging the world
and life following a specific system of values requires at the same time a guarantee that
the investment into human capital makes sense” [Domański 1998].
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A. KoĪuch, A.J. KoĪuch, Creating Human Capital...
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Therefore, an in-depth study of sources of competitive advantage, also in reference to TSU, results in broadening the classification of economic resources, commonly
known as tangible and intangible resources, to include skills and competences. It is also
understandable that due to a specific nature of human capital (the human being is the
only source of new knowledge) the related status of managing the capital in public organizations is on a continuous upward trend. As a consequence, specifically an intensification of processes which consist in raising the value of human capital within the
region, both by ensuring social services of an appropriate quality as well as by creating
adequate conditions for sourcing high quality capital externally should be expressions
of this phenomenon in local government bodies.
Noncommercial activity of local government bodies as well as the need to restrict
the scale of squandering and inefficient deployment of public funds is reflected in
the promotion of undertakings aimed to rationalize related activities. Owsiak [2000]
presents a series of related concepts. There is no disputing, however, that as far as
fields related to public services, geographical decentralization and fine-tuning allocation mechanisms for transferring funds to local government bodies (which are in line
with the subsidiary principle) should be considered as the most effective way of rationalizing public funds. Rationalization of expenses is at a high level of aggregation as
it is burdened by a significant level of difficulty. Hence, it should be assumed that potentially best opportunities for recognizing the scope, scale, structure, and hierarchy
of social needs [Sochacka-Krysiak, Małkowska 2003] exist at the primary level (communal level).
Such location is particularly important in terms of tasks related to shaping human
capital. Initiatives aimed to raise its value within the region must refer to two already
indicated directions, e.g. social services initiatives (investment in human capital) and
initiatives aimed to raise regional attractiveness in order to entice required human capital resources.
These initiatives should be considered the core of investment activities aimed to obtain an adequate quality of human capital within the region. To a large extent, their effectiveness depends on planning and evaluating resources required to ensure regional
growth. However, local government operations should be considered a consolidating
factor as the governments are in a position to significantly influence the final result
of initiatives carried out through appropriate support initiatives. There is no doubt
that the influence of local governments on shaping and sourcing new values is specifically significant here as not only taking various decisions and launching initiatives lies
within the discretion of local governments, but also outcomes of these initiatives are
intensified by the degree and type of impact on local residents.
Also, much depends on the manner of developing the existing human capital. In
order to raise the value of human capital, it is necessary to ensure its presence within
the region. Studies carried out [Czyżewski, Góralczyk-Modzelewska, Saganowska, Wojciechowska, 2001] are of key importance to raising the value of human capital in the
following areas: broadly interpreted services and conveniences related to health protection, services and conveniences which impact life expectancy, vitality, human stamina and vigor; three forms of education: education offered and received through the
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I. PROBLEMY WSPÓàCZESNEGO ZARZĄDZANIA
formal educational system, on-the-job vocational education and professional development as well as ongoing adult education; migrations; data collection and scientific research. Hence, there is no doubt that social services and their rationalization are of special importance to regional growth.
Increased importance of human capital as a factor supporting economic growth
creates one of the conditions of managing regional growth effectively, i.e. the need for
the evaluation of existing human capital and identification of investment directions.
Thus, the following questions are legitimized: in what way are the region’s residents
prepared to participate in the global economy; what potential do they represent; and
what is their potential to compete? How the significance of human capital is perceived
by local government administrators as well as whether they acknowledge the requirement for related investment initiatives are equally important issues.
It is important in the scenario whereby an ongoing globalization process makes
numerous issues common issues. Hence, those in charge of investment in human capital (regardless of an administration level) should make sure that education represents
a growth factor on the one hand, i.e. ensure that it produces competitive advantage;
while on the other hand – that it eliminates barriers resulting from differences in educational systems or from restricting the significance of related investment activities
under local government policies. As a result, it seems particularly important to ensure
that local governments are supported by adequately qualified staff which understands
demands of contemporary organizations and is in a position to prepare adequate tools
for their future operations and growth through proper administration.
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Quality of human capital in the researched territorial
self-government units
The aim of the studies which have been carried out was to assess the levels of education of respondents and to find out whether they were suitable for managing public organisations.
Among the respondents who replied to the question concerning the level of education (41 persons), as much as 73.2% were university graduates, and 26.8% were secondary education. However the structure of their educational backgrounds seems inadequate, since 31.4% declared economy, 9.8% law and 9.8% administration to be their
educational background. Only one person was a graduate in management as such.
3.5% respondents declared they had the knowledge in management of organisations, but only 22.2% had specialist knowledge in the management of public organisations (Table 1). It should also be noted that as many as 31.3% respondents (as regards
managing organisations in general) and 40.0% (as regards managing public organisations) attribute their management skills to their status of a graduate, which, when compared with their seniority (on average 16 years), seems too remote in time to positively
assess their specialist knowledge. Courses and postgraduate education were declared
respectively by 18.8% and 20.0% of the respondents, respectively, while others claimed
their knowledge was based on professional experience.
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A. KoĪuch, A.J. KoĪuch, Creating Human Capital...
Inadequate knowledge of managing organisations, including public organisations,
is also confirmed in replies to questions in which respondents were asked to assess how
horizontal the organisational structure is using the scale from 0 (min.) – 10 (max.).
This question was part of a survey using the INVEST method developed by M. Pearn,
C. Roderick and Ch. Mulrooney [Batorski 1999], to assess the organisation’s capacity to transform itself into a “learning organisationn”. The average score was 5.9, but
as many as 17.8% of the respondents were unable to address the question and did not
give any reply whatsoever.
Table 1. Stated levels of knowledge of management among the staff of units covered by the study
(Deklarowany poziom wiedzy wśród kadry JST według badania)
Knowledge stated
Claimed knowledge of management
of this:
management of public organizations
Claimed knowledge of management acquired during their studies
of this:
management of public organizations
Claimed completion of specialist courses and training to acquire and deepen
the knowledge of management
of this:
management of public organisations
Yes
No
16
29
10
–
5
–
4
–
3
13
2
–
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Source: own study.
It seems that, since in most cases the organisational structures of those entities were
similar, the respondents’ knowledge of organisational structures was questionable, and
thus was their knowledge of management in general. This phenomenon raises questions as to the future of such organisations, all the more so as a similar distribution of
replies was noted among respondents who declared that they had adequate qualifications in management and in the management of public organisations (the average level
of horizontality of the organisation’s structure was 5.9 and 6.4 respectively).
This indicates that there is a need to revaluate the opinion about the capacity of
managing public organisations by participants in the survey. It is also evidence of the
need for further investment into the human capital and of the significant backwardness in this area noted in TUSs.
The type and method of the budget execution are also important from the point of
view of the analysis of the accrued human capital accumulated in TSUs. All units surveyed use linear budgets which does not require creativity and commitment on the part
of the TSU staff. The use of revenues and expenditures following budget headings and
contractors’ accountability causes the staff members to do their jobs without particular
care for quality and no motivation for acquiring new knowledge and experience. This
results in a significant depreciation of the human capital, which, in turn, is reflected in
the functioning of a TSU as a whole.
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I. PROBLEMY WSPÓàCZESNEGO ZARZĄDZANIA
The fact that as many as 55.6% of respondents in the population surveyed declared
that last year they participated in training to increase their knowledge of management
of public organisations should not be discounted. The lack of motivation for upgrading the quality of work, achieving better effects of the funds used on the TSU operation and the fact that the investment into the human capital did not translate itself into
remuneration for work performed resulted in a significant lowering of learning effectiveness: 48.0% of individuals declaring their participation in training were unable to
specify the theme and the scope of courses they completed.
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Conclusions
Creating human capital is the driving force of every organisation (including TSU).
For this reason its people, their knowledge, skills, experience and attitudes determine
the organisation’s success. The main source of competitive advantages of TSUs in future will be their ability to learn and the adequate human capital assets.
TSU operation will require better management and introducing methods to improve the quality of management. This will need the promotion of a activity-based
budget which contains a list of tasks along with specific measurable effects to be
achieved and persons responsible for actually performing these tasks. This will result
in a greater empowerment of the human capital and will motivate the investment into
this capital by the staff of commune organisations.
It is also of particular importance that individuals who perform administration
functions in local government bodies are encouraged to nurture their willingness and
determination to learn the essence of human capital and its significance to the local
growth process. They must engage in any initiatives aimed to raise its value within the
region, which will contribute to achieving the overriding goal, i.e. ensuring proper operations and growth, and consequently – satisfying needs of residents in an increasingly adequate manner. The initiatives should be simultaneous with the needs and
trend analysis concerning the growth of human capital within local government bodies.
However, specific circumstances are a problem in this respect. As a result of common suffrage, governance is given to persons who do not have adequate knowledge and
education (politicians, community leaders). Often their qualifications are based chiefly
on their belief in their own abilities, experience and willingness to be active. Hence, for
the development and the future operation of TSUs it is necessary employ (or, in case of
existing staff, retrain) persons who have adequate qualifications, knowledge and education to form an organisational structure which, independently on the political choices,
will pursue the accomplishment of strategic goals.
A. KoĪuch, A.J. KoĪuch, Creating Human Capital...
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3. Biniecki J., Szczupak B., (2001), Strategia rozwoju lokalnego, [w:] A. Klasik, F. Kuznik (red.), Zarządzanie strategiczne rozwojem lokalnym i regionalnym, AE, Katowice.
4. Brol R., (1998), Rozwój lokalny – nowa logika rozwoju gospodarczego, [w:] M. Obrębalski (red.), Gospodarka lokalna w teorii i praktyce, AE, Wrocław.
5. Czyżewski A., Goralczyk-Modzelewska M., Saganowska E., Wojciechowska M., (2001), Regional Differentiation of Human Capital in Poland. Studies and Theses, Warsaw: The collection of works of Research Centre for Economic Statistical Studies, Bulletin no. 277.
6. Domański S.R., (1998), Kapitał ludzki. Stan i perspektywy, Rada Strategii Społeczno-Gospodarczej przy
Radzie Ministrów, raport nr 27. Warszawa.
7. Hamel G., Prahalad C.K., (1999), Przewaga konkurencyjna jutra, Business Press. Warszawa.
8. Jasinski A., (1997), Innowacje i polityka innowacyjna, Wydawnictwo Uniwersytetu w Bialymstoku.
9. Klasik A., (1993), Strategic planning, PWE, Warszawa.
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11. Nowińska E., (1997), Strategia rozwoju gmin na przykładzie gmin przygranicznych, Wydawnictwo AE
w Poznaniu.
12. Owsiak S., (2000), Public Finances: Theory and Application, PWN, Warszawa.
13. Planowanie i zarządzanie strategiczne. Poradnik dla menedżerów miast w samorządach terytorialnych,
(1997), Fundacja Rozwoju Demokracji Lokalnej, Warszawa.
14. Proniewski M., (1996), Polityka kształcenia jako czynnik rozwoju regionalnego (na przykładzie Niemiec),
Wydawnictwo Filii Uniwersytetu Warszawskiego, Białystok.
15. Regulski J., (1982), Ekonomika miasta, PWN, Warszawa.
16. Schultz T.W., (1976), Investment in Human Capital, The Free Press, New York.
17. Sochacka-Krysiak H., Małkowska R., (2003), Usługi społeczne w jednostkach samorządu terytorialnego,
[w:] Zalewski A., (red.), Nowe zarządzanie publiczne w Polskim samorządzie terytorialnym, Warsaw
School of Economics, Warszawa.
18. Zalewski A. (red.), (2005), Nowe zarządzanie publiczne w polskim samorządzie terytorialnym, SGH,
Warszawa.
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Budowanie kapitaáu ludzkiego jako waĪne zadanie
w obszarze zarządzania JST
Rozwój gospodarki rynkowej współgra ze zwiększeniem stopnia odziaływania nowoczesnego
zarządzania. W warunkach rynkowych premiowane będą organizacje wykorzystujące
intuicję i umiejętności, gdyż funkcjonowanie organizacji w nowoczenej gospodarce wymaga
odpowiedniej jakości zarządzania i reagowania na potrzeby indywidualnych klientów i grup
interesariuszy.
Coraz większa konkurencyność wśród organizacji widoczna jest również w funkcjonowaniu
jednostek samorządu terytorianego (JST), które są zobligowane do wdrażania nowych metod
zarządzania w celu zwiększenia swojej konkurencyjności. Największym wyzwaniem na drodze
do osiągnięcia tego celu staje się dostępność wysoko wykwalifikowanych pracowników.
Celem niniejszego artykułu jest ocena kadry kierowniczej jednostek samorządu
terytorialnego, jak również gotowość personelu do wdrażania nowych metod zarządzania
i podnoszenia przewagi konkurencyjnej regionu.
Artykuł oparty jest na wynikach badań przeprowadzonych w 2006 r. w formie wywiadów
standaryzowanych z przedstawicielami kadry kierowniczej wybranych JST w powiecie
oświęcimskim. Łącznie przeprowadzono wywiady wśród 45 różnych członków kadry
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I. PROBLEMY WSPÓàCZESNEGO ZARZĄDZANIA
kierowniczej urzędu miasta i wśród 4 pracowników urzędów gmin. Celem badania była ocena
poziomu wykształcenia respondentów i odpowiedź na pytanie, czy posiadają oni odpowiednie
kwalifikacje do zarządzania organizacjami publicznymi.
Wśród respondentów, którzy odpowiedzieli na pytanie dotyczące poziomu wykształcenia,
73,2% (41 osób) posiadało wykształcenie wyższe, 26,8% średnie. Struktura wykształcenia
respondentów była różnorodna, bowiem 31,4% ukończyło kierunek ekonomiczny, 9,8% prawo,
a 9,8% administrację. Tylko jedna osoba była absolwentem zarządzania.
Niewystarczająca wiedza w zakresie zarządzania organizacjami, w tym organizacjami
publicznymi, znalazła potwierdzenie w odpowiedziach na pytania, które dotyczyły
zaopiniowania horyzontalności struktury organizacyjnej przy użyciu skali od 0 (min.) do 10
(maks.). Pytanie to stanowiło część badania ankietowego wykorzystującego metodę INVEST
autorstwa M. Pearna, C. Rodericka i Ch. Mulrooney’a, którego celem było zbadanie potencjału
organizacji do przekształcania się w organizację uczącą się. Przeciętna odpowiedź to 5,9, jednak
17,8% respondentów nie było w stanie odnieść się do tego pytania i nie odpowiedziało na nie.
Badanie zakwestionowało wiedzę respondentów na temat struktur organizacyjnych
i wiedzę w zakresie zarządzania w ogóle, co zrodziło pytanie o przyszłość takich organizacji.
Analiza wskazała również na potrzebę reewaluacji opinii na temat umiejętności zarządzania
organizacjami publicznymi przez uczestników badania. Dowodzi to także konieczności
inwestowania w kapitał ludzki ze względu na znaczne braki w tym obszarze.
Rodzaj i metoda programowania budżetu są ważne również z perspektywy analizy kapitału
ludzkiego w JST. Jednostki objęte badaniem opierają się na budżetach liniowych, które nie wymagają
kreatywności i zaangażowania ze strony pracowników JST. Powoduje to znaczną deprecjację kapitału
ludzkiego, co z kolei znajduje odzwierciedlenie w sposobie funkcjonowania JST.
Interesujace jest, że 55,6% respondentów badania zadeklarowało uczestnictwo w szkoleniu
podnoszącym ich wiedzę w zakresie zarządzania organizacjami publicznymi w ostatnim roku,
co nie może zostać tu pominięte. Jednak niewystarczająca motywacja do podnoszenia jakości
pracy, osiągania lepszych wyników i fakt, że inwestycja w kapitał ludzki nie przekłada się na
wynagrodzenie są czynnikami wpływającymi na obniżenie efektywności procesu uczenia się:
48,0% uczestników szkoleń nie było w stanie określić tematu i zakresu ukończonych kursów.
Budowanie kapitału ludzkiego jest siłą napędową każdej organizacji, w tym JST. Dlatego
też ludzie, ich wiedza, umiejętności, doświadczenie i postawy stają się determinantami sukcesu
organizacji. Głównym źródłem przewagi konkurencyjnej JST w przyszłości będzie więc ich
zdolność do uczenia się i kapitał ludzki.
Funkcjonowanie JST będzie wymagać bardziej efektywnego zarządzania, w tym wdrażania
metod doskonalących jakość zarządzania. Będzie to oznaczać coraz szersze wykorzystanie budżetu
zadaniowego oraz zachęcanie pracowników do angażowania się w proces podejmowania decyzji.
Szczególnego znaczenia nabiera również zachęcanie osób pełniących w lokalnych samorządach
funkcje administracyjne do refleksji nad znaczeniem kapitału ludzkiego dla rozwoju lokalnego.
Osoby te powinny włączać się w inicjatywy podnoszące wartość regionu, co z kolei przyczynia się
do osiągnięcia celu nadrzędnego, tzn. zapewnienia właściwego funkcjonowania i wzrostu regionu,
czego konsekwencją jest wychodzenie naprzeciw potrzebom mieszkańców.
Pewne uwarunkowania jawią się jednak jako bariery dla realizacji tych postulatów.
Konsekwencją powszechnego prawa wyborczego jest przekazywanie władzy osobom
nieposiadającym odpowiedniej wiedzy i wykształcenia (politycy, liderzy społeczni). Ich
kwalifikacje oparte są często na przekonaniu o własnych umiejętnościach, doświadczeniu i chęci
angażowania się w życie publiczne. Z tego względu dla rozwoju oraz przyszłego funkcjonowania
JST niezbędne staje się zatrudnianie osób posiadających odpowiednie kwalifikacje, wiedzę
i wykształcenie (lub w przypadku już zatrudnionego personelu – przekwalifikowanie). Powinny
one budować strukturę organizacyjną, która – niezależnie od wyborów politycznych – służyć
będzie osiąganiu ustanowionych celów strategicznych.