공공정보의 상업적 이용에 관한 법정책학적 연구

Abstract

현 정부에서 정책기조로 삼고 있는 ‘정부 3.0’은 공공정보를 적극적으로 개방 및 공유하여 일자리 창출과 창조경제를 지원하고 최종적으로 국민에게 맞춤형 서비스를 구현하여 행복한 사회를 구축하는 것을 목적으로 한다. 주지하다시피 공공기관이 직무수행을 하면서 생산 또는 보유하고 있는 공공정보는 사회적·경제적 활용가치가 매우 크며, 특히 우리나라는 매우 높은 수준의 정보통신기술을 보유하고 있어 거의 모든 분야에서 정보화가 이루어져 있기 때문에 공공정보의 상업적 활용에 대한 기대가 크다. 이 논문은 공공기관이 보유 관리하는 공공정보의 상업적 이용을 활성화하기 위한 방안을 법정책학적 관점에서 제안한 연구이다. 공공정보의 상업적 이용이 본격적으로 논의된 것은 2013년「공공데이터 제공 및 이용 활성화에 관한 법률」제정을 즈음해서였다. 공공정보는 실제로 상업적 이용에 있어서 큰 가치를 지니고 있음에도 불구하고 이러한 정보들은 법적인 제약을 받아 자유로운 이용이 어렵다. 공공정보의 상업적 이용에 대한 대표적인 저해요소로는 개인정보가 포함된 공공정보의 문제, 공공저작물에 대한「저작권법」적용의 문제, 제3자의 권리가 포함된 정보로 법령에 따른 정당한 이용허락을 받지 아니한 공공정보의 문제 등이 논의 된다. 정보의 활용에 있어서는 보호가치로서의 정보의 관점과 이용가치로서의 정보의 관점을 모두 고려하지 않을 수 없다. 우선, 이 논문에서는 개인정보 및 공공저작물의 보호와 이용이라는 갈등 상황을 줄여나가기 위해 먼저 공공정보를 상업적으로 이용함에 있어 법·정책적 근거로서 국민의 알 권리와 공공정보의 공익성 그리고 보편적 서비스 가능성에 대해 검토하여 현행법 및 제도 개선의 당위성을 찾고자 하였으며, 현행법상 공공정보의 상업적 이용의 법적 근거인「공공데이터 제공 및 이용 활성화에 관한 법률」과 이와 관련되어 살펴볼 법률들은「개인정보보호법」,「저작권법」등을 검토하였다. 이에 더하여 선진 외국에 있어 공공정보 상업적 이용 상황과 규제 실태를 알아보기 위하여 EU, 미국, 영국 등의 개인정보보호 및 저작권 법·정책사례들을 검토하여 우리나라 상황에 적용할 만한 시사점을 도출하고자 하였다. 또한 이 논문에서는 개인정보와 공공저작물에 대한 수요가 점증하고 있는 시대적 흐름에 맞추어 우리나라의 공공정보 이용에 나아가야 할 방향을 고찰하였다. 구체적으로는 첫째, 개인정보이용 관련 개선방안으로는 공공정보로서 이용가능한 개인정보의 범위를 명확하게 규정하고 기술적으로 비식별화 가능성 여부, 개인정보자기결정권의 강화 등을 기준으로 공공정보의 이용과 보호간의 적절한 균형점을 찾고자 하였다. 둘째, 공공저작물 이용활성화를 위한 개선방안과 관련해서는 공공저작물의 경우 자유이용을 위하여 신설된「저작권법」제24조의2와 관련하여 자유이용 대상 공공기관의 범위 확대, 저작권자의 저작인격권 보호에 따른 가공·변형 문제와 저작권 귀속문제, 비용 회수, 공공정보 제공자 및 이용자의 면책 규정 도입을 제안하였다. 셋째, 공공정보 이용활성화 관련 정책적 개선방안과 관련해서는 공공정보 제공과 이용 업무의 활성화를 유도하기 위하여 담당공무원에게 전문적인 교육을 시키고 공공정보 제공에 있어 능동적인 역할을 하도록 인센티브 제도를 도입하는 등과 같이 인적자원 역량을 강화하거나 공공정보 품질의 개선을 위한 인프라를 구축하도록 하며, 공공정보가 국민의 세금으로 생산되어진다는 점을 신중히 고려하여 모든 국민이 공공정보를 이용하는데 있어 합리적인 요금을 지불하여 사회전체의 효율성 증진에 기여하는 방향으로 공공정보 유료화 정책을 제안하였다.| The current administration has set ‘Government 3.0’ as the base of their policy, the purpose of which is to actively open and share public information, give positive aid to job creation and the creative economy, and ultimately establish a happy society by implementing customized service for the people. It is well-known that the information public organization hold in pursuit of their duties has great socio-economical value for use. Moreover, the commercial use of the public information is also highly anticipated, since South Korea has an exceeding level of IT technology and most of its fields have been through informatization. This dissertation is, in perspectives of law-politics, to suggest plans to commercially utilize the public information from the public sectors in perspectives of law-politics. It was in 2013 that the discussion of commercial use of public information was sparked, around the legislation of Act On Promotion of the Provision and Use of Public Data. Although public information holds tremendous commercial value, it is not easily accessible under legal restrictions. Major obstructions against commercial use of public information are the matter of public information, including personal information, the matter of applying Copyright Act, the matter of public information that involves a third party’s rights and is not legally permitted to be used. When it comes to utilization of the information, both its protection values and its utility values should be put into consideration. First, this dissertation examines the people’s right to be informed, the public benefit of public information, and the universal serviceability, regarding the commercial use of public information and seeks justification of the current law and improvement of the system, in order to reduce conflicts between protection and use of personal information or public works. Its legal ground, Act On Promotion of the Provision and Use of Public Data and the relevant laws such as Personal Information Protection Act and Copyrights Act are also inspected. Furthermore, it is to examine cases of personal information protection or copyright laws and policies from European countries, the United States, or the United Kingdom and to look into their use of public information and the regulatory conditions, in an effort to draw implications for the situations in Korea. This dissertation also studies on the right orientation in the use of public information in Korea to meet the demands of the times for public information and public works. Specifically, first, concerning improvement plans for the use of personal information, it is seeking to identify the range of personal information that is available as public information and find the proper valance between the use and the protection of public information according to the technological possibility of de-identification and enhanced personal information control right. Second, in terms of improvement plans to proliferate the use of public works, it suggests expansion of the domains of the public organizations for free use, being consistent with the Article 24-2 of Copyright Act. Then, in keeping with the moral rights protection, it presents deformation problem, cost recovery, immunity for public information provider/user. Third, as for policy improvement plans for encouraging public information use, it proposes enhancement of human resources and establishing infrastructure for the quality of public information, for example, by professionally educating the employees to facilitate the related tasks and by implementing an incentive system for them to take initiatives in providing public information. Carefully considering the fact that public information is created with the tax money from the people, it is proposed to charge for the public information, for the efficiency of the whole society, which means all people should pay a rational amount of fee to use public information.; The current administration has set ‘Government 3.0’ as the base of their policy, the purpose of which is to actively open and share public information, give positive aid to job creation and the creative economy, and ultimately establish a happy society by implementing customized service for the people. It is well-known that the information public organization hold in pursuit of their duties has great socio-economical value for use. Moreover, the commercial use of the public information is also highly anticipated, since South Korea has an exceeding level of IT technology and most of its fields have been through informatization. This dissertation is, in perspectives of law-politics, to suggest plans to commercially utilize the public information from the public sectors in perspectives of law-politics. It was in 2013 that the discussion of commercial use of public information was sparked, around the legislation of Act On Promotion of the Provision and Use of Public Data. Although public information holds tremendous commercial value, it is not easily accessible under legal restrictions. Major obstructions against commercial use of public information are the matter of public information, including personal information, the matter of applying Copyright Act, the matter of public information that involves a third party’s rights and is not legally permitted to be used. When it comes to utilization of the information, both its protection values and its utility values should be put into consideration. First, this dissertation examines the people’s right to be informed, the public benefit of public information, and the universal serviceability, regarding the commercial use of public information and seeks justification of the current law and improvement of the system, in order to reduce conflicts between protection and use of personal information or public works. Its legal ground, Act On Promotion of the Provision and Use of Public Data and the relevant laws such as Personal Information Protection Act and Copyrights Act are also inspected. Furthermore, it is to examine cases of personal information protection or copyright laws and policies from European countries, the United States, or the United Kingdom and to look into their use of public information and the regulatory conditions, in an effort to draw implications for the situations in Korea. This dissertation also studies on the right orientation in the use of public information in Korea to meet the demands of the times for public information and public works. Specifically, first, concerning improvement plans for the use of personal information, it is seeking to identify the range of personal information that is available as public information and find the proper valance between the use and the protection of public information according to the technological possibility of de-identification and enhanced personal information control right. Second, in terms of improvement plans to proliferate the use of public works, it suggests expansion of the domains of the public organizations for free use, being consistent with the Article 24-2 of Copyright Act. Then, in keeping with the moral rights protection, it presents deformation problem, cost recovery, immunity for public information provider/user. Third, as for policy improvement plans for encouraging public information use, it proposes enhancement of human resources and establishing infrastructure for the quality of public information, for example, by professionally educating the employees to facilitate the related tasks and by implementing an incentive system for them to take initiatives in providing public information. Carefully considering the fact that public information is created with the tax money from the people, it is proposed to charge for the public information, for the efficiency of the whole society, which means all people should pay a rational amount of fee to use public information.