산업사회에서 후기산업사회(정보화사회)로 이동하고 세계화와 지방화 시대가 등장함에 따라, 국가와 지역을 둘러싼 환경에서는 복잡하고 난해한 여러 가지 지역문제들이 나타나고 있다. 따라서 서구국가는 물론 한국에서도 20세기에 들어와 지역발전에 대한 이론과 정책 논의가 확대되고 지식축적이 이루어져 왔다. 이에 본 저서는 우리나라의 시대환경변화라는 역사적 맥락에서 형성되고 변화되어 온 제도와 정책의 동태적 관계를 역사적, 비교론적으로 분석한 것이다. 분석을 위하여 그동안 발전하여 온 지역발전의 개념과 이론적 패러다임에 대한 논의를 살펴보고, 한국 지역발전의 역사적 궤적을 1960년대 이후 1990년대 까지(박정희정부부터 김대중정부)와 2000년대 초반이후의 지역발전계획시기(노무현정부부터 박근혜정부)로 구분하고, 신경제지리학과 역사적 제도주의관점에서 역사적 맥락과 제도 및 정책의 진화과정을 분석한 것이다.

저자 : 배봉준 (구명: 배응환) 고려대학교에서 행정학 박사학위를 취득하고, 주요학문관심분야는 중앙과 지방의 조직영역과 정책영역이다.

제1장 한국 지역발전을 연구하게 된 배경과 이 책의 구성 제1절 지역발전에 대한 새로운 관심과 제기되는 문제들 ····························23 1. 지역발전에 대한 새로운 관심 ··························································23 2. 지역발전에 대해 제기되는 문제들 ···················································27 제2절 지역발전의 선행연구 현황과 본 연구의 차별성 ································29 1. 지역발전의 선행연구 현황 ······························································29 1) 지역발전정책의 선행연구 현황 ································································29 2) 역사적 제도주의이론의 선행연구 현황 ····················································30 2. 본 연구의 차별성 ············································································32 제3절 이 책의 구성 ······················································································32 1. 연구내용 ·························································································32 2. 시기구분 ·························································································36 3. 연구방법 ·························································································38 제2장 한국 지역발전의 개념적·이론적 논의와 분석모형 제1절 지역발전의 개념적 논의 ············································································43 1. 지역과 발전의 개념 ··················································································43 2. 지역발전의 개념 ·······················································································51 제2절 지역발전의 이론적 패러다임논의 ····························································54 1. 학자들의 지역발전이론 ···········································································54 1) 홍기용의 지역개발이론 ···········································································55 2) 황명찬의 지역개발이론 ···········································································57 3) 박종화 외의 지역개발이론 ·······································································63 4) 이원종 외의 지역개발이론 ·······································································68 5) 이희연의 지역개발이론 ···········································································75 2. 지역발전의 이론논의와 정책연계 ···························································83 1) 국내학자들의 지역발전의 이론한계 ·························································83 2) 지역발전의 이론과 정책 연계 - Pike et al의 지역발전의 이론과 정책 - ·····86 3) 본 연구의 지역발전 접근방법 - 신경제지리학과 역사적 제도주의모형 - ··112 제3절 지역발전의 분석모형 ················································································113 1. 신경제지리학과 역사적 제도주의 ·························································113 2. 역사적 제도주의와 지역발전연구 ·························································114 1) 제도주의이론과 공공정책연구 ·······························································114 2) 역사적 제도주의이론의 대두와 발전, 그리고 내용과 방법론 ···················117 3. 역사적 제도주의의 연구분석틀과 분석변수 ········································139 1) 역사적 제도주의의 연구분석틀 ······························································139 2) 연구분석틀의 분석변수 ·········································································142 4. 지역발전의 역사적 맥락 ········································································154 1) 역사적 맥락의 의미 ···············································································154 2) 역사적 맥락과 제도 및 정책의 형성과 변화 ············································156 3) 제도와 정책의 형성과 변화 요인 ····························································161 5. 지역발전제도 ··························································································166 1) 지역발전제도의 의미 ·············································································166 2) 국가(정부)제도와 지역발전 ···································································168 3) 거버넌스제도와 지역발전 ······································································171 6. 지역발전정책 ··························································································175 1) 지역발전을 위한 정책개입의 필요성 ······················································175 2) 지역발전정책의 개념과 구성요소 ···························································180 3) 지역발전정책의 정책싸이클 ···································································186 제3장 한국 지역발전의 진화분석 제1절 한국 지역발전의 역사적 전개 개괄 ·················································191 1. 한국 지역발전의 시기구분 ·····························································191 2. 국토종합계획시기의 지역발전개요(박정희정부부터 김대중정부까지) ··193 1) 1960년대 이전까지의 지역여건과 정책대응 ···········································193 2) 박정희정부: 1960년대의 지역발전 ·························································194 3) 박정희정부: 1970년대의 지역발전 ·························································194 4) 전두환정부, 노태우정부: 1980년대의 지역발전 ······································195 5) 김영삼정부, 김대중정부: 1990년대의 지역발전 ······································196 3. 지역발전계획시기의 지역발전개요(노무현정부부터 박근혜정부까지) ··196 1) 노무현정부의 지역발전 ·········································································197 2) 이명박정부의 지역발전 ·········································································198 3) 박근혜정부의 지역발전 ·········································································199 제2절 국토종합계획시기(박정희정부부터 김대중정부)에 지역발전의 역사적 맥락과 제도 및 정책 ·······································································200 1. 제도와 정책의 역사적 맥락 ····························································200 1) 경제개발5개년계획과의 연계 ·································································202 2) 시대환경변화 ························································································203 3) 과거지역정책의 검토와 반성 ··································································204 2. 제도와 기구 ··················································································204 1) 지역발전의 통치제도: 지역개발법률 ······················································204 2) 지역개발의 통치기구: 개별정부부처 ······················································207 3. 주요 정책 ······················································································210 1) 지역발전정책의 이론적 토대와 공간구분 ···············································210 2) 지역발전계획: 국토종합계획 ··································································212 2) 지역발전시책(사업) ···············································································215 4. 정책성과 ·······················································································229 제3절 노무현정부시기에 지역발전의 역사적 맥락과 제도 및 정책 ···········230 1. 제도와 정책의 역사적 맥락 ····························································230 1) 지역환경변화 ························································································230 2) 지역정책의 세계적 흐름 ········································································232 3) 과거지역정책의 검토와 반성 ··································································232 4) 노무현정부의 국정철학과 국정과제 ·······················································235 2. 제도와 기구 ·················································································238 1) 지역발전의 통치제도: 국가균형발전특별법 제정 ····································238 2) 지역발전의 통치기구: 지역발전거버넌스 ···············································243 3. 주요 정책 ······················································································249 1) 지역발전정책의 이론적 토대와 공간구분 ···············································249 2) 지역발전정책과 예산 ·············································································250 3) 지역발전시책(사업) ···············································································271 4. 정책성과 ·······················································································309 제4절 이명박정부시기에 지역발전의 역사적 맥락과 제도 및 정책 ···········313 1. 제도와 정책의 역사적 맥락 ····························································313 1) 지역환경변화 ························································································313 2) 지역정책의 세계적 흐름 ········································································313 3) 과거지역정책의 검토와 반성 ··································································314 4) 이명박정부의 국정철학과 국정과제 ·······················································317 2. 제도와 기구 ··················································································319 1) 지역발전의 통치제도: 국가균형발전특별법 전면개정 ·····························319 2) 지역발전의 통치기구: 지역발전거버넌스 ···············································323 3. 주요 정책 ······················································································329 1) 지역발전정책의 이론적 토대와 공간구분 ···············································329 2) 지역발전정책과 예산 ·············································································331 3) 지역발전시책(사업) ···············································································350 4. 정책성과 ·······················································································384 제5절 박근혜정부시기에 지역발전의 역사적 맥락과 제도 및 정책 ··········388 1. 제도와 정책의 역사적 맥락 ····························································388 1) 지역환경변화 ························································································388 2) 지역정책의 세계적 흐름 ········································································388 3) 과거지역정책의 검토와 반성 ··································································389 4) 박근혜정부의 국정철학과 국정과제 ·······················································390 2. 제도와 기구 ··················································································391 1) 지역발전의 통치제도: 국가균형발전특별법 일부개정 ·····························391 2) 지역발전의 통치기구: 지역발전거버넌스 ···············································396 3. 주요 정책 ······················································································399 1) 지역발전정책의 이론적 토대와 공간구분 ···············································399 2) 지역발전정책과 예산 ·············································································401 3) 지역발전시책(사업) ···············································································419 4. 정책성과 ·······················································································451 제6절 한국 지역발전의 종합비교 - 역사적 맥락과 제도 및 정책의 진화 - ··456 1. 지역발전의 이론적 토대 비교 ························································456 2. 제도와 정책의 역사적 맥락 비교 ····················································458 3. 제도와 기구 비교 ··········································································461 4. 주요 정책 비교 ··············································································468 5. 정책성과 비교 ···············································································473 6. 한국 지역발전의 역사적 진화모형 ·················································473 제4장 결 론 제1절 연구요약 ··························································································477 제2절 정책함의 ··························································································479 참고문헌 ··································································································483

18세기 후반부터 19세기에 걸쳐 지속된 산업혁명으로 등장한 다양한 사회문제들은 Adam Smith의 ‘보이지 않는 손’인 시장에 의해 자율적으로 해결될 것이라는 낙관론에서 벗어나 정부의 개입을 요구하게 되었다. 산업화로 나타난 최초의 문제는 공장이 들어선 도시의 환경오염과 과밀 및 주거부족 그리고 위생과 보건문제였으나, 이후에는 도시지역과 상대적으로 낙후되거나 저개발된 지역 간의 격차문제가 대두되었다. 이에 20세기에 들어와 도시계획가와 지역개발론자들은 산업화로 확산되기 시작한 지역문제를 정책대상과 연구대상으로 인식하게 되었고 여기서 지역발전현상은 중요한 화두로 부상하게 된 것이다. 산업화가 진행되는 과정에서 1980년대 이후에는 세계화라는 글로벌시대가 도래하고 또한 정부통신기술혁명에 의한 후기산업사회(정보화사회)가 대두되어 국가와 지역을 둘러싼 환경에서는 복잡화하고 난해한 여러 가지 지역문제를 발생시키고 있다. [ 저자서문 ] 서문: 지역발전의 긴 여정 연구 국가발전의 과제로서 지역발전(regional development)이 등장하게 된 것은 19세기 중반이후부터이다. 18세기 후반부터 19세기에 걸쳐 지속된 산업혁명 으로 등장한 다양한 사회문제들은 Adam Smith의 ‘보이지 않는 손’인 시장에 의해 자율적으로 해결될 것이라는 낙관론에서 벗어나 정부의 개입을 요구하 게 되었다. 산업화로 나타난 최초의 문제는 공장이 들어선 도시의 환경오염 과 과밀 및 주거부족 그리고 위생과 보건문제였으나, 이후에는 도시지역과 상대적으로 낙후되거나 저개발된 지역 간의 격차문제가 대두되었다. 이에 20세기에 들어와 도시계획가와 지역개발론자들은 산업화로 확산되기 시작 한 지역문제를 정책대상과 연구대상으로 인식하게 되었고 여기서 지역발전 현상은 중요한 화두로 부상하게 된 것이다(Glasson, 1975: 10-11; 한국지역개발학회 편, 2002: 15). 산업화가 진행되는 과정에서 1980년대 이후에는 세계화라는 글 로벌시대가 도래하고 또한 정부통신기술혁명에 의한 후기산업사회(정보화사 회)가 대두되어 국가와 지역을 둘러싼 환경에서는 복잡하고 난해한 여러 가 지 지역문제를 발생시키고 있다. (중략) 마지막으로, 제4장 “결론” 부분에서는 지금까지의 연구과제에 대한 분석결 과를 요약하고, 일정한 함의를 제시하였다. 이상에서 살펴본 이 연구의 진행과정에 대한 간략한 개관과 함께, 학자와 실무가들을 한국 지역발전의 연구와 실제 세계에 초대하고자 한다. 이 책을 학습한다면 그동안 변화되어 온 지역발전의 이론과 정책을 이해할 수 있고, 이러한 이론과 정책이 우리나라 지역발전의 역사적 전개과정에서 어떻게 반 영되어 통치를 하고 있는가를 이해하고 설명하며 처방할 수 있는 능력을 함 양할 수 있다고 본다. 이 책이 나오기 까지는 다음과 같은 조직과 많은 분들의 도움이 있었다. 무엇보다도 이 저술은 저자가 한국연구재단의 저술출판지원사업(2017-2019: NRF- 2017S1A6A4A01021515)의 지원을 받아 연구한 결과물이다. 본 연구결과 가 나오기까지 학문적 자극과 물질적인 예산지원을 하여 준 교육부 및 한국 연구재단과 본 지원사업의 주관기관인 충남대학교 산학협력단, 그리고 조그 마한 연구결실을 출판하도록 도움을 주신 충남대학교 출판문화원과 출판담 당자분들께 감사를 드린다. 또한 이 연구를 하는 데 필요한 정부간행물과 연 구보고서를 수집하는 데 도움을 주신 행정안전부 자치분권지원과장인 한치 흠 박사님에게도 감사를 드리고, 그동안 학문적 관심을 공유하여 온 여러 동 료 학자들에게도 고마움을 전한다.