정책옹호연합모형(ACF)을 적용한 관광통역안내사 자격제도의 정책변동 분석

Abstract

본 연구는 관광정책의 영역에서 중요한 현상으로 나타나고 있으나, 이론적 측면에서 논의의 초기단계에 있는 정책변동에 대해서 분석하였다. 최근 관광정책 변동에 관한 학문적 관심이 증대되고 있으나 이에 대한 개념 구조 및 분석틀에 대한 체계적인 정립이 미흡한 실정이다. 따라서 본 연구는 관광정책 변동에 관한 분석 체계를 정립하고 이를 구성하는 분석 요인과 세부 분석 요소간 영향관계를 파악하는 것을 목적으로 하였다. 또한 이러한 과정을 통해서 정부의 정책 역량 강화를 위한 시사점을 도출하고자 하였다. 이를 위하여 관광통역안내사 자격제도의 의의, 정책변동의 개념과 모형, 선행연구에 대한 이론적 고찰을 통하여 관광통역안내사 자격제도의 정책변동 과정을 분석하기 위한 분석틀을 설정하였다. 본 연구에서 설정한 분석틀은 안정적 외적변수, 역동적 외적변수, 정책하위체제, 정책결정 등 네 영역으로 구분하였으며, 각 영역을 구성하는 분석 요인과 세부 분석 요소를 정의하였다. 또한 본 연구에서 파악하고자 하는 내용을 중심으로 연구명제를 설정하고, 분석 요인간 영향 관계를 분석하였다. 구체적으로 안정적 외적변수, 역동적 외적변수가 정책변동에 미치는 영향, 정책변동 과정에서 정책하위체제를 구성하는 행위자간 상호작용, 집단간 정치적인 권력과정을 통해서 산출된 정책 결정과 영향에 대해서 분석하였다. 관광통역안내사 자격제도의 정책변동 과정에 대한 분석 결과는 다음과 같다. 첫째, 관광통역안내사 자격제도의 정책변동 과정에서 환경 변화에 해당하는 외적변수는 정책옹호연합에서 동원한 수단을 통하여 자원으로 작용한 것으로 나타났다. 둘째, 정책하위체제를 구성하는 옹호연합은 자신들의 신념과 주장을 정책변동에 반영시키기 위해서 외적변수를 자원으로 활용하기 위한 전략적 수단을 동원하며, 특히 역동적 외적변수의 비중이 높은 것으로 밝혀졌다. 셋째, 정책변동 과정에서 생성된 정책산출물은 관련법 개정 및 정부 시책 변화를 가져왔으며 이로 인한 정책영향으로 제도 변화에 따른 개선 요구가 지속적으로 나타나 다시 정책에 영향을 미치는 순환구조를 보임으로써 정책변동 과정을 순환적 과정으로 인식한 과정론적 접근을 지지하는 것으로 나타났다. 결론적으로 관광정책 변동과정을 이해하기 위해서는 정책결정의 합리성을 확보하기 위한 체계적인 접근뿐만 아니라, 정책행위자간 권력 과정을 이해하기 위한 통합적 관점에서의 접근이 요구된다고 할 수 있다. 즉 관광정책 결정은 합리적인 정책평가를 통해서 이루어져야 하나, 집단간 정치적인 권력 과정을 통해서 정책변동이 진행될 수 있다는 현실 인식에 기초한 접근을 병행할 필요가 있다. 또한 정책변동 과정에서 정책결정의 합리성을 확보하기 위해서는 정책변동 과정의 역사적 맥락에 대한 이해를 토대로 정책하위체제를 구성하는 정책행위자간 정책학습 과정과 정책중개자의 역할에 대한 분석이 요구된다. 본 연구는 관광통역안내사 자격제도의 정책변동 사례를 대상으로 정책옹호연합모형에 대한 설명력을 확보하고자 하였다. 향후 관광정책 변동 사례에 대한 지속적인 연구를 통해서 관광정책의 고유성을 확보할 수 있기를 기대한다.|This paper investigates policy change, which is at its initial stage of debate in terms of theory but emerges as an important phenomenon in tourism policy. Although academic interest in tourism policy change is increasing nowadays, the systematic establishment of its concept and analysis framework is insufficient. In this context, this study aims to establish the analysis system for tourism policy change and identify the impact relations between analysis factors and detailed analysis factors. Through this process, this study also presents some implications to enhance government capability to devise and implement the policies. Toward this end, this study sets up a framework to analyze the policy change process of the tour guide qualification system through a theoretical examination of its significance in the tour guide qualification system, and policy change concept and model as well as a review of preceding studies. The analysis framework in this study is divided into four areas: stable external variables, dynamic external variables, subsystem of policy, and policy decision making. The analysis factors and detailed analysis factors making up each area are also defined. Study propositions are presented according to the details to be identified in this study, with impact relations between analysis factors. Specifically, this study investigates the impacts of stable and dynamic external variables on policy change and the interactions between actors constituting the subsystem of policy in the policy change process as well as policy decision making and impacts drawn through the political power struggle process among groups. The following are the findings on the policy change process of the tour guide qualification system: First, external variables which mean the environmental changes in the policy change process show the function as resources through the means by policy advocacy coalition. Second, the advocacy coalition for the subsystem of policy mobilizes strategic means to use external variables as resources to reflect their conviction and assertion with regard to policy change. In particular, the dynamic external variables have considerable weight. Third, policy outcomes generated in the policy change process bring about the revision of the relevant laws and government policy change. Accordingly, improvement request arising from system change as a resulting policy impact continuously emerges and affects the policy again circulation structure. In this regard, the process approach supported by perceiving the policy change process as a circulation process is noted. In conclusion, to understand the tourism policy change process, not only a systematic approach to securing the rationality of policy decision making but also an approach from an integrative point of view to understand the power struggle process among policy actors is required. In other words, decision making on the tourism policy should be performed through rational policy assessment; note, however, that an approach based on the perception of reality that policy change can be carried out through political power struggle between groups needs to be taken simultaneously. To secure the rationality of policy decision making in the policy change process, an analysis of the policy learning process among policy actors constituting the subsystem of policy and the policy intermediary's role is necessary based on an understanding of the historical context of the policy change process. This study has attempted to explain the advocacy coalition framework targeting the policy change cases of the tour guide qualification system. To study tourism policy change further, the studies targeting policy change cases in the tourism field should be followed consequently.; This paper investigates policy change, which is at its initial stage of debate in terms of theory but emerges as an important phenomenon in tourism policy. Although academic interest in tourism policy change is increasing nowadays, the systematic establishment of its concept and analysis framework is insufficient. In this context, this study aims to establish the analysis system for tourism policy change and identify the impact relations between analysis factors and detailed analysis factors. Through this process, this study also presents some implications to enhance government capability to devise and implement the policies. Toward this end, this study sets up a framework to analyze the policy change process of the tour guide qualification system through a theoretical examination of its significance in the tour guide qualification system, and policy change concept and model as well as a review of preceding studies. The analysis framework in this study is divided into four areas: stable external variables, dynamic external variables, subsystem of policy, and policy decision making. The analysis factors and detailed analysis factors making up each area are also defined. Study propositions are presented according to the details to be identified in this study, with impact relations between analysis factors. Specifically, this study investigates the impacts of stable and dynamic external variables on policy change and the interactions between actors constituting the subsystem of policy in the policy change process as well as policy decision making and impacts drawn through the political power struggle process among groups. The following are the findings on the policy change process of the tour guide qualification system: First, external variables which mean the environmental changes in the policy change process show the function as resources through the means by policy advocacy coalition. Second, the advocacy coalition for the subsystem of policy mobilizes strategic means to use external variables as resources to reflect their conviction and assertion with regard to policy change. In particular, the dynamic external variables have considerable weight. Third, policy outcomes generated in the policy change process bring about the revision of the relevant laws and government policy change. Accordingly, improvement request arising from system change as a resulting policy impact continuously emerges and affects the policy again circulation structure. In this regard, the process approach supported by perceiving the policy change process as a circulation process is noted. In conclusion, to understand the tourism policy change process, not only a systematic approach to securing the rationality of policy decision making but also an approach from an integrative point of view to understand the power struggle process among policy actors is required. In other words, decision making on the tourism policy should be performed through rational policy assessment