한국의 정책불응 DB 구축 및 불응연구에 대한 문헌검토:불응사례의 기준별 분류 및 불응요인 분석

하상근 한국지방정부학회 2025 지방정부연구 Vol.29 No.1

In the policy process, the implementation stage is the process of realizing the content of the decided policy and the legislative intent and is a specific activity in which the government's activities directly affect the people. However, in the process of policy implementation, it is not necessarily implemented as the government intended due to the interrelationships and influences of numerous policy participants and the political nature of the implementation process. In particular, if various policy participants do Noncompliance to the policy, the policy will fail, and the policy effect cannot be expected. Accordingly, since the late 1980s, the Korean government and academia have made many theoretical and practical efforts to respond to policy noncompliance. However, since research on noncompliance behavior and noncompliance factors has been conducted mainly on single cases (single diagnosis-single prescription research), noncompliance behavior is being repeated due to limitations in generalizing and theorizing the research results. Therefore, in this study, first, as a case-oriented study, a database of policy non-compliance was constructed through a literature review on the study of policy non-compliance in Korea since the mid-1980s. Second, a framework for analyzing policy non-compliance DB was created through a classification by criteria(policy period, policy type, policy field, research method, non-compliance subject, and non-compliance factor). targeting cases in the constructed policy non-compliance DB and explained it. Third, as a variable-oriented study, the general characteristics and universal regularities of non-compliance factors were identified through analysis of non-compliance factors by policy period, policy type, and policy field in the database of policy non-compliance cases.

정책순응 및 불응의 유형화에 관한 연구

이혁우(Lee, Hyukwoo) 서울행정학회 2017 한국사회와 행정연구 Vol.27 No.4

본 연구에서는 정책순응/불응을 정책대상 집단의 “자발성”이란 양태를 기준으로 자발적 순응, 비자발적 순응, 자발적 불응, 비자발적 불응으로 분류하고, 각각의 유형에서 나타나는 전형적인 성격을 도출하고, 노숙자 쉼터 정책에 대한 분석을 모형의 타당성을 검토하였다. 자발적 순응은 정책집행에서 정책대상 집단의 지지를 얻어야만 가능한 것으로 가장 이상적인 형태이다. 비자발적 순응은 정부의 강제에 의해 원래는 순응하지 않으려는 정책대상 집단을 순응시킨 경우이다. 이런 비자발적 순응에서는 정책대상 집단의 반발과 저항을 극복해야 하기 때문에 자발적 순응에 비해 정부의 정책부담이 크다. 한편 자발적 불응은 정책대상 집단이 정책불응에 따른 불이익을 감수하면서도 따르지 않은 상태를 말하고, 비자발적 불응은 정책대상 집단은 순응하려 함에도 불구하고 강요에 의한 불응이 발생한 것을 말한다. 노숙자 쉼터 정책은 이들 네 가지 유형의 정책순응과 불응의 행태가 모두 나타난 전형적인 정책이다. 이런 면에서 노숙자 쉼터 정책의 성공을 위해서는 각 정책유형에서 나타나는 면에 대한 보완이 필요하다. 이런 자발성에 따른 정책순응과 불응의 양상을 분석함으로써 정책부작동의 원인에 따른 차별적인 정책적 설계가 가능하다는 의의가 있다. 한편 자발성을 토대로 한 정책순응과 불응의 모습에서 확인할 수 있은 정책불응의 원인, 정책순응 집단의 불만의 원인이 사실은 정책 그 자체에 있다는 점이다. 이는 정부가 정책을 고안해 민간에서의 문제들을 해결하려고 하지만, 오히려 정책이 그런 문제를 해결하는데 걸림돌이 되거나 제대로 작동치 않는 정책을 설계하고 마는 우를 범할 가능성이 늘 존재함을 의미하는 것이다. In this study, we classify policy compliance and non-compliance as voluntary compliance, involuntary compliance, voluntary non-compliance, and involuntary non-compliance based on the “spontaneity” aspect of the policy target group, derive the typical characteristics of each type, and examine the validity of this classifying model. Voluntary compliance is the most ideal form of policy enforcement when it is only possible to obtain the support of the target group. The involuntary compliance is the adaptation of the policy target group which is not originally conformed by the government. This involuntary compliance requires the government to overcome the opposition and resistance of the target group. On the other hand, voluntary non-compliance refers to the state in which the policy target group does not follow the policy directives, while the involuntary non-compliance refers to the state that the policy target group cannot help following the policy requirements even though it tries to conform. The homeless shelter policy is a typical policy in which these four types of policy compliance and non-compliance behavior are all present.

학생부종합전형 정책에 대한 입학사정관의 순응·불응 행태 분석

정유리(Jeong, Yuri),송경오(Song, Kyoungoh) 한국교육행정학회 2021 敎育行政學硏究 Vol.39 No.4

본 연구는 학생부종합전형 정책의 주요 집행자인 입학사정관이 정책집행 과정에서 나타내는 순응(compliance)과 불응(non-compliance) 행태를 분석하는 것을 목적으로 두었다. 이를 위해 11명의 입학사정관을 대상으로 심층 면담을 실시하고 분석한 결과, 입학사정관은 정책에 순응할 의도를 가지고 있는 ‘수용’, ‘수정시도’의 의도적 순응 행태와, 순응할 의도를 가지고 있지 않은 ‘형식적 순응’, ‘서류상 순응’의 비의도적 순응 행태를 나타냈다. 또한, 입학사정관은 불응할 의도가 없음에도 ‘더하기’, ‘빼기’와 같은 비의도적 불응 행태와, 정책에 불응할 의도를 가지고 있는 ‘지연’, ‘정책 임의 변경’, ‘정책 취소·변경 시도’의 의도적 불응 행태를 보여주었다. 이와 같은 순응·불응 행태에는 개인적 차원의 특성(입학사정관의 업무, 개인적 능력, 정체성 인식, 재량권 정도 등)과 조직구조 차원의 특성(대학의 관료적 구조, 근무환경 등), 그리고 정책 차원의 특성(정책의 강제성, 재정지원사업의 영향력, 정책의 소망성 등)들이 각각 순응·불응 행태에 영향을 미치고 있는 것을 발견할 수 있었다. 이를 통해 학생부종합전형 정책의 실제 집행 과정을 살펴볼 수 있었으며, 성공적인 학생부종합전형 정책 집행을 위한 입학사정관 차원과 제도적 차원의 방향을 제언하였다. This study was conducted to examine what kind of compliance and non-complinace behaviors admission officers, who are the main executors of the comprehensive evaluation system of high school records(CESSR) policy, in the policy implementation process. As a result of conducting in-depth interviews and analysis of 11 admissions officers for this purpose, the results showed that admission officers showed compliance behaviors of ‘acceptance’ and ‘revision attempts’ with the intention of complying with CESSR policy and unintentional compliance behaviors of ‘formal compliance’ and ‘paper compliance’. Also admissions officers showed unintentional non-compliance behaviors of ‘adding’ and ‘subtraction’ even without no intention of not complying with CESSR policy, and non-compliance behaviors of ‘delay’, ‘discretionary change of policy’, and ‘attempts to cancel or change policy’ with the intention not to follow the policy. The characteristics of ‘personal level’(work of admission officers, personal ability, identity recognition, degree of discretion), ‘organizational structure level’(the bureaucratic structure of the university, work environment), and ‘policy level’(the coercion of CESSR policy, the influence of the financial support project, adequacy of policy) affected the compliance and non-compliance behaviors of admission officers. Through this, it was possible to examine the actual implementation process of the CESSR policy and suggested the direction of the admissions officer level and the institutional level for successful implementation of the comprehensive evaluation system of high school records(CESSR) policy.

중간매개집단의 정책불응에 대한 시민태도 영향요인 연구: 건강보험 보장성 강화정책(문재인 케어)을 중심으로

하상근 ( Ha Sang-keun ) 동의대학교 지방자치연구소 2022 공공정책연구 Vol.39 No.1

This study is an empirical study related to the attitudes of general citizens on the policy noncompliance of the medical group to the health insurance coverage enhancement policy (Moon Jae-in Care) in August 2017. The model of this study was designed based on previous studies on policy noncompliance factors by focusing on Moon Jae-in care. The independent variable (factors affecting civic attitudes) was designed by dividing it into policy factors, intermediary group factors, and policy agency factors from the viewpoint of institutional rationality and rational choice theory. And the dependent variable was designed as an attitudes of civil for non-compliance of policy of the medical group belonging to the Korean Medical Association. As a result of the analysis, it was found that 273 out of 380 respondents (71.8%) supported Moon Jae-in care. As a result of causal analysis through logistic regression analysis of citizens attitude (dependent variable) to policy non-compliance, statistically significant variables for both dependent variables were ‘policy desirability’ and ‘willingness to compliance’. In other words, in the case of ‘desirability of policy’, it was confirmed that the more citizens thought that the policy goals and policy means were desirable, the more they had opposite and negative attitudes toward the policy non-compliance of the medical group. And in the case of ‘willingness to compliance’, the more the doctors thought that they did not deteriorate psychologically and economically or that there was no loss, the more citizens had opposite and negative attitudes toward doctors’ non-compliance behavior.

비전문취업(E-9) 외국인근로자와 고용주의 정책불응에 대한 고찰과 정책개선 방안에 관한 연구 : 외국인근로자 체류관리 정책을 중심으로

유승희(Seunghee Yu) 비판과 대안을 위한 사회복지학회 2021 비판사회정책 Vol.- No.73

본 연구는 외국인근로자 체류관리 정책의 특성이 정책불응 요인(소망성, 경제적 손익, 강제력)과 관련하여 비전문취업(E-9) 외국인근로자와 고용주의 정책불응(불법체류, 불법고용)에 어떻게 영향을 미칠 수 있는지를 문헌고찰의 방법으로 분석하였다. 분석 결과, 취업활동 기간 및 사업장 변경 제한은 외국인근로자의 정책에 대한 소망성을 낮추어 정책불응으로 이어질 수 있는 것으로 나타났다. 고용주의 경우, 사업장 변경 제한은 정책의 소망성을 높여 정책불응을 낮출 수 있다. 고용주가 외국인근로자를 취업기간 만료 후에도 계속 고용하고 싶을 경우, 외국인근로자에 대한 취업기한 제한은 고용주의 정책 소망성을 낮추어 정책불응으로 이어질 수 있다. 경제적 손익 측면에서 볼 때, 외국인근로자와 고용주가 정책불응 시 얻는 이익이 그에 대한 처벌 및 정책순응 시 주어지는 혜택을 포기했을 때 생기는 손실보다 더 크기 때문에 그들이 정책에 불응할 수 있다. 또한 불법체류 · 고용에 대한 적발의 어려움, 불법체류 · 고용에 대한 제재 및 처벌 정책과 자진신고제의 상충 등은 정책의 강제력을 낮추어 외국인근로자와 고용주의 정책불응으로 이어질 수 있다. 본 연구는 이러한 결과를 바탕으로 외국인근로자 체류관리 정책을 개선할 방안을 제시하였다. This study aimed to examine how foreign worker stay control policies influence policy non-compliance (illegal stay and employment) with non-professional employment (E-9) foreign workers and their employers in relation to the factors of policy non-compliance (policy desirability, economic profit and loss, and enforcement power). For the analysis, we used the method of literature review. We found the restrictions on the period of employment and change of workplace lowered foreign workers" desire for policy, which could lead to policy non-compliance. In the case of employers, restrictions on workplace change can increase policy desirability and reduce non-compliance with policies. If an employer wants to continue hiring foreign workers even after the employment period expiration, limiting the employment period may lower their desire for policy, leading to policy non-compliance. Foreign workers and their employers may fail to comply with the policy because the benefits from non-compliance with the policy are greater than the penalties and economic losses from policy non-compliance. Difficulties in detecting illegal stay and employment, and the conflict between punishment policies and the voluntary reporting system reduce the enforcement power of the policy, leading to non-compliance. Based on these results, we suggested ways to improve foreign worker stay control policies.

장애인전용주차구역제도에 대한 정책순응 요인

양숙미,전동일 한국지체.중복.건강장애교육학회 2012 지체.중복.건강장애연구 Vol.55 No.2

This study is to identify the affecting policy compliance factors on system of the parking area for the handicapped, and to present the alternatives of the effectiveness of the policy. We implement a survey research on the 211 non handicapped citizen. The sampling method was extracted randomly the 50 places from the 16 Cities and Do in our country. The handicapped people and officers investigated to the policy compliance. We executed a logistic regression analysis. As a result, factors of the policy(Policy desire characteristic, Clarity), Policy objective group(Knowledge), and Policy implement agency affected on the system of the parking area for the handicapped. System of the parking area of the handicapped have the characteristics of regulative policy, therefore if the policy becomes the institutional success, there must be active participation of the non handicapped citizen. Consequently, in order to success of the policy, contents of the policy must recognize clearly to non handicapped people and the policy implement agency's ability must to empowered. 본 연구는 장애인전용주차구역제도에 대한 정책대상 집단, 즉 시민의 정책순응에 영향을 미치는 요인을 파악하여 정책효과를 높이는 방안을 제시하는데 목적이 있다. 분석자료는 2011년 장애인차별금지법 이행 및 차별개선 모니터링 연구’를 위해 수집된 자료 중 장애인전용주차구역제도를 위반한 비장애인 사례를 활용하였다. 연구결과 정책순응에 영향을 미치는 요인으로 정책요인(정책 소망성, 명확성) 중 명확성이, 그리고 정책대상 집단 요인으로는 정책인식(지식) 요인이, 정책담당 기관요인으로는 정책집행능력과 홍보요인이 영향을 미친 것으로 나타났다. 즉 장애인전용주차구역 제도가 비장애인에 대한 규제 정책의 성격을 갖고 있기 때문에 성공적인 제도시행이 되기 위해서는 비장애인의 적극적 참여가 있어야 한다. 본 연구결과를 통한 함의는 장애인전용주차구역제도의 내용이 정책대상 집단인 비장애인시민에게 명확하고 실효성 있게 인식되어야 하며, 정책집행기관의 능력(적발가능성, 처벌의 엄격성)이 제고되어야 한다.

공공분쟁 결과의 정책 불응에 대한 현황 및 구조분석

김강민 ( Gang Min Kim ),하갑래 ( Gap Rae Ha ) 단국대학교 분쟁해결연구센터 2012 분쟁해결연구 Vol.10 No.1

This study looked over the general status, participatory structure, interests structure, and final conflict solving structure after resolving the conflict by using the concept of policy non-compliance. About 10% of the total public conflicts ended up having policy non-compliance, and the frequency of the non-compliance has increased in every year when we looked into the average of the frequency. It was shown that the ratio of policy non-compliance was higher as residents participated more. In addition, conflicts that civil groups were involved in have higher tendency to make people disobey after resolving the conflicts but dissatisfying the groups because such conflicts usually had lots of interest groups and became a societal issue. When we looked over civilian-led and government-led policy conflict cases, government-led policy conflicts made people disobey more. This is because most of the policy programs are implemented unilaterally by the government rather than by residents’ participation. When it comes to the structure of final resolve of conflicts, the non-compliance occurred more as issues and interested groups remained as an unresolved condition.

비자발적 불응의 개념과 전개 메커니즘

이혁우(Lee, Hyukwoo) 서울행정학회 2012 한국사회와 행정연구 Vol.23 No.3

Involuntary non-compliance is the unique situation which occurs when a target group cannot comply with a policy in spite of their willingness to do so. This state of affairs stems from errors in policy design. In this situation, while members of the target group may not expect meaningful policy benefits. they tend to adapt their behavior in order to avoid being penalized. However, this behavior may be opportunistic and lead to policy failure. In order to understand involuntary non-compliance more deeply, this study attempts to establish a dynamic model, which categorizes policy compliance according to decision and implementation. In involuntary non-compliance, most of the problems occur in the implementation stages, such as the target group’s opportunistic behavior, unintended consequences of policy design, and policy failure. To verify this model, this study analyzes a unique case; regulations to enhance the employment rate for universities.

재난발생에 있어서 정책불응의 학습 메커니즘과 문화요인의 탐색 - 여객선 사고를 중심으로

배점모 한국거버넌스학회 2006 한국거버넌스학회보 Vol.13 No.1

Author studied passenger ship accident occurred in our country from 1984 to 1993 and representative big three accidents from the perspective of policy non-compliance. Author found a few facts from this study. Firstly, accidents in Korea occurred periodically almost every year and those were caused by almost same reasons. Secondly, there was a policy non-compliance to the safety regulation given by government and related agency. Thirdly, policy non-compliance was learned and reinforced by successive weak punishments and little rewards. Fourthly, cultural factors were indirect factors of passenger ship accident. Cultural factors causing case accidents were as follows. Cultural factors were peace-at-any-price principle, formalism, escape-crisis-for-a-moment principle, fan administration (quickly-attentive-but-quickly-forgotten principle), Hawthorne effect, corruption, absence of safety consciousness. Author stressed that education and enlightenment activities which could impove Korean safety culture were necessary. 본 논문에서는 한국에서 발생하는 여객선 사고에 정부의 정책에 대한 불응이 있는지를 살펴보고, 불응의 학습 메커니즘과 이러한 메커니즘에 작동하는 문화환경요인들을 살펴보았다. 우리나라에서 불응현상이 학습되고 지속적으로 여객선사고를 일으키는 것은 상벌시스템 작동의 비효율성, 귀인오류와 책임회피, 정보공개의 미흡과 책임회피, 외부통제나 압력의 취약성, 행정조직의 중복성, 예산상의 부족 등의 매개변수는 물론이고, 나아가서는 문화․환경요인이라고 할 수 있는 부정적인 문화인 무사안일주의, 형식주의, 온정주의, 모면주의 냄비행정, 호오손 효과의 존재와 부패와 시민의 안전의식 부족 등이 문제가 되어 발생하는 경향이 있다. 사고의 지속적인 발생에 영향을 미치는 문화요인은 수없이 많은 세월을 거치면서 이루어진 역사의 침전물로서 모든 사람의 의식과 행동을 지배한다는 점에서, 이를 건설적인 방향으로 바꾸기 위해서 보다 바람직한 안전문화 정착과 시민의식 함양을 위한 교육과 계몽활동이 필요하다고 보며, 범정부적인 노력과 민간부문의 안전문화 조성을 위한 지속적인 노력이 이루어져야 할 것이다.

학생선수 학습권보장제 정책불응 원인분석 및 개선방안

이용식,박진경,정영린,김원경,장지훈,최만식 한국체육정책학회 2016 한국체육정책학회지 Vol.14 No.2

The objective of this study was to analyse the cause of policy non-compliance and to search the way of improvement in the target organization and executive organization of security policy on the rights for learning. This study carried out the questionnaire study, Analytic Hierarchy Process(AHP), the expert meeting as methods. We identified three main findings. First, we suggested four methods to improve non-compliance for security policy on the student athletes’ academic engagement: Making Transcript of School Record based on the instruction 127 of Ministry of Education, revising administrative guideline Annex-8, modifying rules on the reasonable training hours of athletic clubs, Securing school facilities for the clubs and extra curriculum for student athletes when athletic clubs are formed and systematizing training with local sports science centers. Second, we suggested five ways to improve non-compliance of student-athletes’ minimum academic achievement policy: Revising the minimum academic achievement level, upgrading the level of principal agent of execution from the school head to the superintendent of school in cities and provinces for effective student athletes’ minimum academic achievement, cooperating with metropolitan and provincial offices of education and sports associations for the effective implementation of student-athletes’ minimum academic achievement policy, preparing and distributing the guideline of minimum academic achievement by the government and making sanction actions against to the noncompliance of execution. Third, we suggested four methods to improve non-compliance of eradication policy of student athletes’ camp training: Reinforcing the restriction of student athletes’ move from a team of their city to a team of other cities, supporting building or remodeling dormitories for student athletics with local governments, expanding dorms for student athletes and restricting the training in the early morning.