동북아 물류중심 정책의 다(多)조직구조적 특성에 관한 탐색적 연구

Exploratory Study on Multi-Organizational Structure of Northeast-Asian Logistics Hub Policy of Korea

본 논문은 동북아 물류중심 정책의 추진에 다수의 주체가 공동으로 참여하는 다조직구조(multi-organizational structure)의 상황에서 어떠한 집행문제들이 발생하는가를 분산성과 중복성, 상충성의 관점에서 살펴보았다. 분석 결과 다음과 같은 특성이 발견되었다. 첫째 동북아 물류중심정책은 건설교통부, 해양수산부, 산업자원부, 재정경제부, 관세청 등 마수의 참여주체가 있음에도 불구하고 통합조정 기능을 수행하는 선도적인 추진주체(Principal Agency)의 부재로 정책추진의 강도가 약화되고 있다 둘째, 부처 간 사업의 중복으로 정책혼선과 예산 낭비가 초래되는 사례가 발생하고 있다. 셋째, 총괄적인 물류기본법령의 부재로 물류관련 정책의 일관성과 안정성이 확보되지 못하고 있다. 이러한 분석을 바탕으로 동북아 물류중심정책의 추진에 보다 탄력성을 불어넣기 위해서는 Principal Agency의 존재툴 명확히 세우고 상설적인 조정 전담역할을 하도록 하고, 관련 부처 간에 명확하게 업무영역을 배분하고 구분함으로써 정책 중복으로 인한 비효율을 방지하며 물류관련 법령을 일원화할 수 있는 총괄적 법체계 개편이 필요함을 결론으로 제시하였다.

This paper investigates the factors influencing policy implementation under a multi-organizational structure and analyses Northeast Asian Logistics Hub Policy as a case study. Three specific characteristics of policy implementation were observed First, a character of dispersion where implementation exhibited numerous focal points rather than coordinated convergence. Second, methods of policy implementation were duplicated across projects and among organizations. Finally, signs of non-consistency were clear in policy implementation with a diversity of approaches represented. The importance of principal agency, a clear division of spheres of work, and the consistency of statutes are considered respectively. The research shows there was no principal agency in the implementation process of the Northeast Asian Logistics Hub Policy. The roles of the Presidential Committee on Northeast Asian Business Hub and the Ministry of Construction were not well coordinated. Due to the absence of focused implementation, the policy was driven by various centers and many inefficiencies and confusions resulted. Second, the duplications of work among organizations often were incurred due to an absence of inter-organizational consultation or mediation among many organizations working in the same field. Finally, statutes related to logistics varied greatly among organizations. Many plans of logistics policy are devised in accordance with different and even contradictory statutes. The non-consistency of statutes and plans between the organizations caused further inefficiencies and misunderstandings. Given these findings, it is recommended that the government establishes or appoints a principal agency, articulates clear inter-organizational divisions of labor, and introduces a consistent regulatory regime for successful implementation of the Northeast Asian Logistics Hub Policy.