國·公有地管理計劃의 意思決定에 關한 硏究

국·공유지 관리계획의 의사결정 체계와 개선 방향을 연구했다.

New changes in environment in line with globalization are calling for many changes in the state and National land management system. In the case of Korea, in 1977, the state and National land management plan system was introduced, and as the civil-elected local governments were launched in 1995, much of state and National land management work was delegated by the central government to local governments which were trusted to faithfully perform the work. However, with the absence of decision making models for management plans on the management and disposal of state and public land, efficient management was not achieved. Currently, state and public management plans are established as follows.

The oversight office issues a guideline on state and National land management by June every year to management offices, which then draft and submit management plans to the oversight office by the end of December. The oversight office puts together and fine-tunes such land management plans, has them reviewed by the Cabinet and approved by the President, and notifies the results to management offices in February next year. Upon the receipt of the notification, relevant management offices can execute the approved management plans for the year. State and National land is a national property, and its management is very important.

Thus, this complicated, particular procedure is required, and the importance of decision making on state National and management plans is emphasized much more. However, Korea has yet to establish a decision making model, and executes land management plans according to practices. Thus, in this study, in a bid to work out a decision making model for the plan on state and National land management with the aim of laying groundwork for establishing rational plans on state and National land management, relevant literature was examined, and problems mentioned in previous researches were also reviewed.

Also, an important decision making model was proposed to establish or execute state and National land management plans every year for the next year. Thus, experts on state and National land management were surveyed, the survey results were analyzed on the basis of analytic hierarchy process AHP, and thus the characteristics of important variables and weight of importance in state and National land management plans were derived. Important planning factors were defined to include ownership, management and disposal. The analysis indicated management as the most important factor. Important variables influencing management were defined to include development, loan and exchange.

These factors were compared one-on-one, and AHP analysis results indicated development as the highest priority factor. The importance weight of development is thought to be in line with the current policy. Development was classified into development for sale, development for leasing, and combined development, and of them, combined development type was found to be the most important. Second, important variables of disposal were defined to include sell-off, purchase, and assignment. Of them, sell-off was found to be the most important. As for sell-off, public bidding was preferred the most. Sell-off is very important since it generates state financial revenues.

However, an appropriate balance between ownership and sell-off is needed. Third, the most variables influencing ownership were defined to include maintenance, protection and information. AHP analysis indicated protection as the most important. This suggests that state and National land as National and environmental goods has thus far been left to unauthorized occupation and the creation of idle land, leading to their lowered function and inefficient management. Considering the results of the study, important decision making on state and National management plans plays a very important role in the execution of such plans.

In this study, the AHP technique was used in prioritizing important decisions on state and public management plans. This study is expected to help important decision making on state and National land management plans and execution of such plans.

With regard to efficient management of state and National land, the proposition that plans on state and National land management gradually change according to political, economic and social changes is important; thus, future researches should focus on issues of clarification of the legal identify of state and National land management plan systems, stabilization of relevant legal systems, bolstering of management offices' autonomy and responsibilities such as linkage with mid- and long-term management strategies for state and National properties, and enhancement of work efficiency. 세계화와 함께 불어 닥친 새로운 환경변화는 국공유지관리에 있어서도 많은 변화를 요구하고 있다.

우리나라의 경우 1977년 국공유지관리계획제도가 도입되었으나 1995년 민선지방정부가 출범하면서 중앙정부의 위임사무를 성실히 수행한다는 전제하에 많은 국공유지관리가 지방정부로 위임되었다. 그렇지만 국공유지 보유·관리·처분의 관리계획의사결정모형이 부재한 상태여서 국공유효율적 관리는 구현되지 못하고 있다. 현행 국공유지관리계획은 총괄청이 관리청에 대해 국공유지관리계획 작성지침을 매년 6월까지 시달하면 관리청은 그 작성지침에 따라 관리계획을 작성하여 매년 12월 말까지 총괄청으로 제출하여야 한다. 총괄청은 각 관리청의 관리계획을 집합하여 종합조정하고 국무회의 심의를 거쳐 최종 대통령의 승인을 얻어 다음년도 2월 각 관리청에 통보한다. 이 통보를 받은 해당관리청은 그 확정된 관리계획을 해당년도에 집행할 수 있다. 국공유지는 국가의 재산이라는 점에서 그 관리계획은 중요하다할 것이다. 따라서 이러한 복잡하고 까다로운 절차를 거쳐 집행하게 되므로 국공유지관리계획단계의 의사결정은 더욱 중요하게 부각되고 있다. 하지만 아직 그 의사결정모형이 없었고 관례대로 계획현안에 따른 실행에 불과하였다. 그러므로 본 연구는 합리적인 국공유지관리계획의 수립기반구축을 위한 국공유지관리계획 의사결정모형을 도모하고자 관련 문헌을 고찰하고 선행연구에서 나타나는 문제점을 전반적으로 짚어보았다.

또한 매년 실시하는 다음연도의 국공유지관리계획의 수립 또는 집행에 있어서 중요의사결정모형을 제시하고자하였다. 이에 따라 본 연구의 목적달성을 위하여 국공유지관리전문가의 의식조사를 토대로 AHP기법에 의한 실증분석을 통한 국공유지관리계획 중요변수의 특성과 중요도가중치를 도출하였다. 본 연구에서 국공유지관리계획의 중요요소는 보유·관리·처분으로 하였다. 이들을 분석한 결과 첫째, 보유·관리·처분 중 가장 중요시하는 요소는 관리로 나타났다. 관리 분야에 가장 영향을 미치는 변수들은 개발·대부·교환으로 설정되었다. 이 요소들에 대하여 1:1쌍대비교를 하였고 AHP분석결과 중요도 가중치로 볼 때, 가장 우선해야 할 관리계획으로는 개발로 나타났다. 개발의 중요도가중치는 현재의 정책기조와 맞물리는 현상으로 보인다. 개발에는 분양형개발·임대형개발·혼합형개발로 분류되었는데 혼합형개발이 가장 중요한 것으로 나타났다. 둘째, 처분에 있어서는 그 중요변수로 매각·매입·양여로 설정되었다. 이들 중 가장 높은 중요도를 나타낸 것은 매각이었다. 매각에 있어서는 공개입찰을 가장 선호하였다.