Developing a Human Resource Empowerment Policy Model for Government Agencies in the Digital Age: A Strauss-Corbin-Informed Grounded Theory Study

Abstract

Background: Digital transformation is changing public-sector work, service delivery, organizational routines, and the competencies required of civil servants. Human-resource empowerment therefore constitutes a coordinated policy problem rather than a set of isolated training activities. This study developed a context-sensitive policy model for human-resource empowerment in government agencies in the digital age. Methods: An applied qualitative study was conducted using a Strauss-Corbin-informed grounded-theory approach. The final sample comprised 15 experts, senior managers, and heads of government agencies in Golestan Province, Iran. Initial recruitment was purposive, and sampling and analysis proceeded iteratively. The research team judged category saturation to have been reached at interview 12; three additional interviews were completed to examine the stability of the emerging category structure. Semi-structured interviews lasted approximately 30–45 minutes, were audio-recorded with informed consent, transcribed, and analyzed in MAXQDA through open, axial, and selective coding. The Strauss-Corbin paradigm functioned as a sensitizing analytic framework, while the specific codes and categories were developed from the interview material. Results: The analysis identified 63 open codes for causal conditions, 41 for contextual conditions, 63 for intervening conditions, 40 for implementation strategies, and 58 for consequences. These codes were organized into seven causal categories, seven contextual categories, 12 intervening categories, seven strategy categories, and 12 consequence categories. The model links workforce skills, organizational culture, leadership, policy frameworks, resources, infrastructure, innovation, and organizational structure with contextual and intervening conditions that shape the feasibility of implementation. The strategy layer includes digital-skills development, an innovation-oriented culture, digital performance evaluation, flexible implementation, technological HR infrastructure, policy governance and transparency, and organizational participation. Conclusion: Digital-era human-resource empowerment in government is conceptualized as an integrated policy architecture connecting people, culture, leadership, technology, incentives, governance, and implementation flexibility. The model links implementation strategies with individual, organizational, and societal consequences identified across the interviews.