Ewebbook.me.go.kr/DLi-File/010/150580.pdf2 국립공원백서 1. 공단의 조직 ·····················································

목 차 1

목 차

제1부 국립공원의 이해 ················································· 21

제1장 국립공원제도의 역사 ················································ 23

제1절 국립공원 제도의 탄생 ··············································· 23

1. 국립공원의 이념 ··························································· 23

2. 세계 최초 옐로우스톤국립공원의 탄생 ···························· 26

3. 미국 국립공원제도의 정착 ············································· 28

제2절 국립공원의 정의와 개념 ············································ 29

1. 국립공원에 관한 국제적인 협의 ····································· 29

2. IUCN, CNPPA의 결의 ················································· 32

3. 국가별 국립공원 지정현황············································· 35

제2장 국립공원제도의 국내 도입 ········································· 36

제1절 국립공원제도의 도입과 관리주체의 변천 ····················· 36

1. 국립공원제도의 도입 ···················································· 36

2. 국립공원 관리청 ··························································· 37

3. 국립공원 관리체제······················································· 38

제2절 국립공원관리공단의 설립 ············································ 40

1. 설립배경 ····································································· 40

2. 공단의 임무 ································································· 41

제3절 국립공원관리공단의 조직변천······································ 42

2 국립공원백서

1. 공단의 조직 ······························································· 42

2. 조직의 변천 및 주요 연혁 ············································· 44

3. 관리기조 ····································································· 46

제4절 국립공원관리예산····················································· 47

1. 예산의 개요 ································································· 47

2. 국립공원사업 특별회계예산 연도별 편성 ························· 48

3. 일반회계 ····································································· 49

제3장 국립공원별 자원분포 현황 ········································· 52

제1절 국립공원의 자원 ······················································· 52

1. 지형경관자원······························································· 52

2. 동․식물자원······························································· 583. 문화자원 ····································································· 61

제2절 국립공원별 자원분포 현황 ········································· 62

1. 지리산국립공원···························································· 62

2. 경주국립공원······························································· 69

3. 계룡산국립공원···························································· 73

4. 한려해상국립공원························································· 78

5. 설악산국립공원···························································· 85

6. 속리산국립공원···························································· 90

7. 한라산국립공원·························································· 104

8. 내장산국립공원·························································· 109

9. 가야산국립공원·························································· 116

10. 덕유산국립공원························································· 124

11. 오대산국립공원 ······················································· 141

목 차 3

12. 주왕산국립공원························································· 146

13. 태안해안국립공원 ···················································· 150

14. 다도해해상국립공원··················································· 166

15. 북한산국립공원························································· 177

16. 치악산국립공원························································· 186

17. 월악산국립공원························································· 196

18. 소백산국립공원························································· 200

19. 변산반도국립공원······················································ 206

20. 월출산국립공원························································· 212

제2부 국립공원 관리체제 ··········································· 219

제1장 국립공원 지정절차 및 현황 ······································ 221

제1절 지정요건 ································································ 221

제2절 지정절차 ································································ 222

제3절 지정현황 ································································ 224

제2장 제1차 자연공원기본계획 ·········································· 225

제1절 자연공원기본계획의 정의 ········································· 225

제2절 자연공원기본계획의 주요 내용 ································· 227

제3절 자연공원기본계획의 세부과제별 추진계획·················· 229

제3장 공원계획 ································································ 234

제1절 공원계획의 의의 ····················································· 234


제2절 공원계획의 내용 ····················································· 235

1. 용도지구계획····························································· 235

2. 공원시설계획····························································· 237

3. 공원관리계획····························································· 238

4. 공원자원 보존계획······················································ 238

제3절 공원계획수립과정 및 결정․변경 절차 ······················ 2391. 계획수립 과정 ···························································· 239

2. 국립공원 계획결정절차················································ 240

제4장 국립공원관리계획 ··················································· 241

제1절 국립공원관리계획의 필요성 ······································ 241

제2절 국립공원관리계획 수립현황······································ 242

제3절 기대 효과 ······························································ 247

제4절 이행결과 ································································ 248

제3부 국립공원의 관리 ················································ 251

제1장 2003~2004 주요 업무추진실적 ··································· 253

제1절 2003년도 주요 성과 ················································ 253

제2절 2004년도 주요 성과 ················································ 254

제3절 2005년 주요업무 추진현황······································· 256

제2장 공원관리시스템 강화 ··············································· 257

제1절 현장관리조직 보강 ·················································· 257

목 차 5

제2절 경영혁신 ································································ 259

제3절 직무수행능력 제고 ·················································· 261

1. 인재양성프로그램 도입 추진 ········································ 261

2. 다면 평가제 실시 ······················································· 262

제4절 국립공원 정보제공 시스템 구축 ································ 263

1. 국립공원 정보제공시스템 추진현황······························· 263

2. 향후 발전방향···························································· 266

제5절 홍보안내 서비스····················································· 267

1. 홍보안내사업 추진현황················································ 267

제6절 국립공원 연구기능 확대 ········································· 275

1. 연구원 연혁 ······························································· 275

4. 향후과제 ··································································· 278

제7절 국제협력 활성화····················································· 279

1. 국제교류협력····························································· 279

2. 외국 선진사례 벤치마킹·············································· 280

제8절 자원봉사제도 시행 ·················································· 281

1. 배 경 ········································································ 281

2. 추진현황 ··································································· 282

3. 참여자 분석 ······························································· 283

4. 주요 활동내용···························································· 284

5. 자원활동가 인증 ························································· 285

6. 향후 추진계획···························································· 286

제3장 자연생태계 보전 ····················································· 287

제1절 자연자원 조사․연구··············································· 287


1. 자연자원조사····························································· 288

2. 모니터링 ··································································· 290

3. 연구사업 ··································································· 292

제2절 지리산 반달가슴곰 복원사업···································· 293

1. 현 황 ········································································ 293

2. 사업배경 ··································································· 294

3. 목 적 ········································································ 295

4. 선행연구수행····························································· 295

5. 목표 및 방법 ····························································· 296

6. 그간 추진경위···························································· 296

7. 방사현황 ··································································· 297

8. 서식지 안정화···························································· 298

9. 반달가슴곰 관리팀 운영현황········································ 299

제3절 야생 동․식물 보호단 운영 ······································ 3011. 운영배경 및 목적 ······················································· 301

2. 보호단 운영현황························································· 302

3. 보호단 운영성과························································· 303

제4절 태안해안 사구 보전대책 추진 ··································· 305

1. 추진배경 ··································································· 305

2. 해안사구의 이해 ························································· 306

3. 태안해안 사구보호사업 ·············································· 308

4. 향후 추진계획 ························································· 312

제5절 훼손지 복원사업····················································· 313

1. 훼손의 유형 및 복구현황············································· 314

제6절 자연휴식년제 시행 ·················································· 317

목 차 7

1. 개요 ·········································································· 317

2. 법적근거 : 자연공원법 제28조 ····································· 318

3. 시행현황 ··································································· 318

4. 자연휴식년제구간 선정기준 및 절차 ····························· 319

5. 시행효과 ··································································· 321

6. 문제점 및 개선방안···················································· 323

7. 향후 추진계획 ·························································· 324

제7절 수질관리 ································································ 332

1. 개요 ·········································································· 332

2. 수질측정망 구성 ························································· 333

3. 수질오염 추이 ···························································· 333

4. 향후 추진대책 ·························································· 336

제8절 산불예방업무·························································· 336

1. 개 요 ········································································ 336

2. 추진상황 ··································································· 337

제9절 국립공원 청소 ························································ 340

1. 현 황 ········································································ 340

2. 쓰레기 발생 및 처리현황············································· 343

제10절 폐기물 처리시설의 정비 및 확충 ····························· 344

1. 개 요 ······································································· 344

2. 쓰레기처리시설 이용 ··················································· 345

3. 쓰레기처리시설 확보 문제 ········································ 346

제11절 불법 무질서 행위 단속 ·········································· 347

1. 개 요 ········································································ 347

2. 위법시설물 정비 ························································· 348


3. 위법행위 단속 ···························································· 351

제12절 국립공원 기마순찰대 운영 현황 ······························ 354

1. 개 요 ······································································· 354

2. 속리산 기마순찰대운영 현황 ········································ 355

제13절 항공대․선박 운영현황·········································· 3571. 항공대 ······································································· 357

2. 선 박 ······································································· 361

제14절 공익근무요원 운영현황·········································· 364

1. 개 요 ········································································ 364

2. 그간 배치현황···························································· 364

3. 공익근무요원들의 복무활동 범위 ·································· 365

4. 복무기간 및 보수 ······················································· 365

5. 운영효과 및 문제점 ···················································· 366

제4장 국립공원의 이용 ····················································· 367

제1절 국립공원 이용객 현황분석······································· 367

1. 공원별 년도별 이용객 현황(’95~’04) ···························· 367

2. 연령대별 입장객(’95~’04년) ········································ 369

3. 계절별 입장객(’95~’04년) ··········································· 371

4. 월별 입장객(’95~’04년) ·············································· 374

제2절 탐방패턴(이용행태) 조사 ········································· 387

1. 배경 ·········································································· 387

2. 추진내용 ··································································· 387

제3절 재난관리체계 확립 ·················································· 388

1. 개요 ·········································································· 388

목 차 9

2. 국립공원 재난관리체계················································ 389

제4절 탐방객 안전관리 서비스 ·········································· 390

1. 개요 ·········································································· 390

2. 탐방객 안전사고 현황 ················································· 391

3. 안전사고 분석 ···························································· 393

4. 안전사고 대책 ···························································· 394

제5절 자연해설 서비스····················································· 397

1. 개 요 ········································································ 397

2. 추진실적 ··································································· 399

제6절 예약제 시행(탐방예약제/대피소이용 사전예약제) ······· 408

1. 탐방예약제································································ 408

2. 대피소이용 사전예약제················································ 413

제7절 고객서비스헌장제도 운영 ········································· 416

1. 탐방서비스 및 만족도 ················································· 416

2. 민원서비스 개선 ························································· 420

제8절 민원 행정 ······························································ 424

1. 공원사업시행허가······················································· 424

2. 행위허가 및 신고 ······················································· 425

제9절 공원시설의 설치 및 유지관리 ································· 430

1. 공원시설의 정의 ······················································· 430

2. 공원시설 현황 ···························································· 431

3. 공원사업의 시행체계··················································· 433

4. 공원사업의 시행주체··················································· 433

5. 공원사업 시행절차······················································ 434

6. 사업비 재원 ······························································· 436


7. 공원사업 집행실적······················································ 437

8. 유지관리사업····························································· 438

9. 장래 공원시설 설치 및 정비방향·································· 443

제10절 2004년 시설사업 현황 ············································ 446

1. 국립공원사업····························································· 446

제12절 재해복구사업 시행 실적 ········································· 462

목 차 11

표 목 차

[표 1-3-1] 국립공원의 지질연대 및 구성암석······························ 56

[표 1-3-2] 국립공원의 지질연대 및 구성암석······························ 57

[표 1-3-3] 국립공원 동․식물 서식현황······································ 60[표 1-3-4] 지리산국립공원의 주요 경관자원································ 64

[표 1-3-5] 지리산국립공원의 주요 동물자원································ 65

[표 1-3-6] 지리산국립공원의 주요 식물자원································ 66

[표 1-3-7] 지리산국립공원의 문화자원······································· 67

[표 1-3-8] 경주국립공원의 주요 경관자원(2002년도 기준) ············ 70

[표 1-3-9] 경주국립공원의 동물자원(2002년도 기준) ···················· 70

[표 1-3-10] 경주국립공원의 주요 식물자원(2002년도 기준) ·········· 71

[표 1-3-11] 경주국립공원의 주요 문화자원(2002년도 기준) ·········· 72

[표 1-3-12] 계룡산국립공원의 경관자원······································ 74

[표 1-3-13] 계룡산국립공원의 동물자원······································ 75

[표 1-3-14] 계룡산국립공원의 식물자원······································ 76

[표 1-3-15] 계룡산국립공원의 문화자원······································ 76

[표 1-3-16] 한려해상국립공원의 경관자원··································· 78

[표 1-3-17] 한려해상국립공원의 동물자원··································· 81

[표 1-3-18] 한려해상국립공원의 식물자원··································· 82

[표 1-3-19] 한려해상국립공원의 문화자원··································· 82

[표 1-3-20] 설악산국립공원의 경관자원······································ 86

[표 1-3-21] 설악산국립공원의 동물자원······································ 87


[표 1-3-22] 설악산국립공원의 식물자원······································ 88

[표 1-3-23] 설악산국립공원의 문화자원······································ 89

[표 1-3-24] 속리산국립공원의 주요 경관자원······························ 92

[표 1-3-25] 속리산국립공원의 주요 동물자원······························ 93

[표 1-3-26] 속리산국립공원의 주요 식물자원······························ 94

[표 1-3-27] 속리산국립공원의 문화자원······································ 95

[표 1-3-28] 한라산국립공원의 주요 경관자원(2002년도 기준) ······ 105

[표 1-3-29] 한라산국립공원의 주요 동물자원(2002년도 기준) ······ 106

[표 1-3-30] 한라산국립공원의 주요 식물자원(2002년도 기준) ······ 108

[표 1-3-31] 한라산국립공원의 문화자원(2002년도 기준) ············· 108

[표 1-3-32] 내장산국립공원의 주요 경관자원····························· 110

[표 1-3-33] 내장산국립공원의 주요 동물자원····························· 112

[표 1-3-34] 내장산국립공원의 주요 식물자원····························· 113

[표 1-3-35] 내장산국립공원의 문화자원···································· 114

[표 1-3-36] 가야산국립공원의 주요 경관자원····························· 118

[표 1-3-37] 가야산국립공원의 주요 동물자원····························· 118

[표 1-3-38] 가야산국립공원의 주요 식물자원····························· 119

[표 1-3-39] 가야산국립공원의 주요 문화자원····························· 120

[표 1-3-40] 덕유산국립공원의 주요 경관 자원 ··························· 127

[표 1-3-41] 덕유산국립공원의 주요 동물자원····························· 135

[표 1-3-42] 덕유산국립공원의 주요 식물자원····························· 135

[표 1-3-43] 덕유산국립공원의 문화자원···································· 136

[표 1-3-44] 오대산국립공원 주요 경관자원································ 142

[표 1-3-45] 오대산국립공원 주요 생물자원································ 143

[표 1-3-46] 오대산국립공원 주요 문화자원································ 144

목 차 13

[표 1-3-47] 주왕산국립공원의 주요 경관자원····························· 147

[표 1-3-48] 주왕산국립공원의 주요 동물자원····························· 148

[표 1-3-49] 주왕산국립공원의 주요 식물자원····························· 148

[표 1-3-50] 주왕산국립공원의 문화자원···································· 149

[표 1-3-51] 태안해안국립공원의 주요 경관자원·························· 152

[표 1-3-52] 태안해안국립공원의 주요 동물자원·························· 162

[표 1-3-53] 태안해안국립공원의 주요 식물자원·························· 163

[표 1-3-54] 태안해안국립공원 인근지역의 문화유산··················· 163

[표 1-3-55] 다도해해상국립공원의 주요 경관자원······················· 170

[표 1-3-56] 다도해해상국립공원의 주요 동물자원······················· 171

[표 1-3-57] 다도해해상국립공원의 주요 식물자원······················· 172

[표 1-3-58] 다도해해상국립공원의 문화자원······························ 173

[표 1-3-59] 북한산국립공원의 주요 경관자원····························· 178

[표 1-3-60] 북한산국립공원의 주요 동물자원····························· 179

[표 1-3-61] 북한산국립공원의 주요 식물자원····························· 180

[표 1-3-62] 북한산국립공원의 문화자원···································· 182

[표 1-3-63] 치악산국립공원의 주요 경관자원····························· 188

[표 1-3-64] 치악산국립공원의 주요 동물자원····························· 191

[표 1-3-65] 치악산국립공원의 주요 식물자원····························· 192

[표 1-3-66] 치악산국립공원의 문화자원···································· 193

[표 1-3-67] 월악산국립공원의 주요 경관자원····························· 196

[표 1-3-68] 월악산국립공원의 주요 동물자원····························· 198

[표 1-3-69] 월악산국립공원의 주요 식물자원····························· 198

[표 1-3-70] 월악산국립공원의 문화자원···································· 199

[표 1-3-71] 소백산국립공원의 주요 경관자원····························· 202


[표 1-3-72] 소백산국립공원의 주요 동물자원····························· 203

[표 1-3-73] 소백산국립공원의 주요 식물자원····························· 204

[표 1-3-74] 소백산국립공원의 주요 문화자원····························· 206

[표 1-3-75] 변산반도국립공원의 주요 경관자원·························· 207

[표 1-3-76] 변산반도국립공원의 주요 동물자원·························· 208

[표 1-3-77] 변산반도국립공원의 주요 식물자원·························· 209

[표 1-3-78] 변산반도국립공원의 문화자원································· 211

[표 1-3-79] 월출산국립공원의 주요 경관자원····························· 214

[표 1-3-80] 월출산국립공원의 주요 동물자원····························· 215

[표 1-3-81] 월출산국립공원의 주요 식물자원····························· 215

[표 1-3-82] 월출산국립공원내 문화유산···································· 216

[표 2-1-1] 국립공원 지정절차·················································· 223

[표 2-1-2] 국립공원 지정 현황 ················································ 224

[표 2-2-1] 국립공원관련 3대 계획간 체계 비교 ·························· 226

[표 2-2-2] 관리기반 구축 ························································ 230

[표 2-2-3] 공원자원 관리 ························································ 231

[표 2-2-4] 탐방객 관리 ··························································· 232

[표 2-2-5] 공원시설 관리 ························································ 233

[표 2-2-6] 토지이용 관리 ························································ 233

[표 2-4-1] 수립과제 내용 ························································ 243

[표 3-2-1] 조직 보강 내역 ···················································· 258

[표 3-2-2] 지방조직의 보전과 및 분소 신설 ······························ 258

[표 3-2-3] 사진공모전 개최 현황 ············································· 267

[표 3-2-4] 공원별 안내지도 제작현황

(1988부터 2005년 발간계획분 포함) ·························· 272

목 차 15

[표 3-2-5] 국립공원 홍보영상물 방영현황

(아리랑TV - 총 26편) ············································ 274

[표 3-2-6] 자연자원조사 및 모니터링 체계도 ····························· 276

[표 3-2-7] 주요 국제 활동 ······················································· 279

[표 3-2-8] 2004 국가별 선진사례 벤치마킹 개요 ························ 280

[표 3-2-9] 연도별 자원봉사자 참여현황···································· 282

[표 3-2-10] 자원활동가 양성프로그램······································· 283

[표 3-2-11] 연도별 봉사 참여자 현황 ······································· 284

[표 3-3-1] 자연자원조사 시행현황 및 계획 ································ 289

[표 3-3-2] 모니터링 시행 현황 ················································ 291

[표 3-3-3] 연구사업 추진현황·················································· 292

[표 3-3-4] 방사현황································································ 297

[표 3-3-5] 2004년 보호단 운영현황·········································· 302

[표 3-3-6] 동식물현황 조사 주요실적 : 관찰종수 및 관찰회수···· 304

[표 3-3-7] 단속내용································································ 305

[표 3-3-8] 태안해안 사구 분포현황·········································· 309

[표 3-3-9] 2002년 해안사구보호사업 추진내역··························· 311

[표 3-3-10] 2003년 해안사구보호사업 추진내역·························· 311

[표 3-3-11] 2004 훼손지복구사업 현황 ······································ 316

[표 3-3-12] 자연휴식년제 시행현황 및 향후 계획 ······················· 318

[표 3-3-13] 제5기 자연휴식년제 구간별

시행기간별 개소수(예정) ······································· 319

[표 3-3-14] 문제점 및 개선방안··············································· 323

[표 3-3-15] 제1기 자연휴식년제 시행구간(’91. 1. 1) ··················· 326

[표 3-3-16] 제2기 자연휴식년제 시행구간(’94. 1. 1) ··················· 327


[표 3-3-17] 제3기 자연휴식년제 시행구간(’97. 1. 1) ··················· 328

[표 3-3-18] 제3기 자연휴식년제 시행구간(’99. 1. 1) ··················· 329

[표 3-3-19] 제4기 자연휴식년제 시행구간(2000. 1. 1) ················ 330

[표 3-3-20] 제5기 자연휴식년제 시행구간(2003. 1. 1) ················ 331

[표 3-3-21] 연도별 BOD 평균 변화율······································· 335

[표 3-3-22] 국립공원내 산불발생 현황 ······································ 337

[표 3-3-23] 산불조심기간 운영현황·········································· 338

[표 3-3-24] 산불조심기간 탐방로 통제 현황 ······························ 338

[표 3-3-25] 진화장비 보유현황················································ 339

[표 3-3-26] 인화물질 보관 및 단속 실적 ··································· 340

[표 3-3-27] 연도별 쓰레기 발생 현황 ······································· 341

[표 3-3-28] 쓰레기 발생 및 처리 변화 추이 ····························· 343

[표 3-3-29] 2004년 국립공원 쓰레기발생 및 처리 실태 ··············· 344

[표 3-3-30] 쓰레기 처리시설 이용현황······································ 345

[표 3-3-31] 속리산기마순찰대 보유 마필 현황

(2004. 12. 31 현재) ··············································· 356

[표 3-3-32] 국립공원 항공기 보유현황······································ 358

[표 3-3-33] 국립공원 항공대 인력 구성 현황 ····························· 358

[표 3-3-34] 보유헬기 장단점 비교표········································· 359

[표 3-3-35] 보유헬기 임무수행 능력 비교표 ······························ 359

[표 3-3-36] 최근 5년간 운항목적별 운항 현황 ··························· 360

[표 3-3-37] 해상․해안국립공원 현황 ······································· 361[표 3-3-38] 구 선박 제원 ························································ 362

[표 3-3-39] 신규 건조 선박 제원 ············································· 363

[표 3-3-40] 2004년도 선박 운항실적········································· 363

목 차 17

[표 3-3-41] 공익근무요원 배치현황·········································· 364

[표 3-3-42] 공익근무요원들의 복무활동 범위 ····························· 365

[표 3-4-1] 연도별 국립공원 이용객 현황 ··································· 368

[표 3-4-2] 연령대별 입장객 현황(‘95～’04년) ····························· 370

[표 3-4-3] 계절별 입장객 현황(‘95～’04년) ································ 371

[표 3-4-4] 계절별 공원 이용률(‘95～’04년 평균) ························ 372

[표 3-4-5] 월별 입장객 현황(‘95～’04년) ··································· 374

[표 3-4-6] 공원-월별 입장객 현황(‘95～’04년) ··························· 376

[표 3-4-7] 탐방객 안전사고 현황(총계) ···································· 391

[표 3-4-8] 2004년 공원별 안전사고 현황 ··································· 392

[표 3-4-9] 유형별 사고현황 분석(2004년) ································· 393

[표 3-4-10] 월별 부상자 현황(2004년) ······································ 394

[표 3-4-11] 자연관찰로 조성현황············································· 400

[표 3-4-12] 연도별 프로그램 운영현황······································ 402

[표 3-4-13] 주제별 프로그램운영 코스 ······································ 403

[표 3-4-14] 2004년 생태탐방(event)프로그램 운영현황··············· 403

[표 3-4-15] 2004년 직원교육 현황 ············································ 405

[표 3-4-16] 2004년 자연환경안내원 운영 실적 ··························· 406

[표 3-4-17] 자원활동가 양성교육 내용 ······································ 407

[표 3-4-18] 관련교재 제작(2004년) ·········································· 408

[표 3-4-19] 탐방예약제 시범운영 대상지 현황(2001～2002) ········· 409

[표 3-4-20] 대상지별 운영방법················································ 409

[표 3-4-21] 한계령～중청 10월 탐방인원 현황

(한계령→중청방향 기준) ······································· 409

[표 3-4-22] 탐방인원 현황 ······················································· 410


[표 3-4-23] 탐방인원 현황 ······················································· 412

[표 3-4-24] 당일이용자와 예약이용자 비율비교·························· 414

[표 3-4-25] 서비스 이행실태 점검표········································· 418

[표 3-4-26] 2000～2004년 만족도 조사결과································ 419

[표 3-4-27] 최근 5년간 처리현황············································· 425

[표 3-4-28] 2004년도 처리실적················································ 430

[표 3-4-29] 공원시설의 종류 ···················································· 431

[표 3-4-30] 공원관리청이 설치․관리하는 주요 시설물현황········· 432[표 3-4-31] 국립공원사업 시행절차·········································· 435

[표 3-4-32] 사업비 재원별 공원사업········································· 437

[표 3-4-33] 2004년 시설유지관리예산 현황 ································ 439

[표 3-4-34] 2004년 영선반 편성현황········································· 439

[표 3-4-35] 2004년 공원시설사업현황······································· 447

[표 3-4-36] 공원내 진입도로 현황(2004년말 현재) ····················· 448

[표 3-4-37] 2004년 공원진입로 정비사업 내역 ··························· 449

[표 3-4-38] 주차장 현황(2004년말 현재) ··································· 451

[표 3-4-39] 2004년 주차장 정비사업 내역 ································· 452

[표 3-4-40] 야영장 현황(2004년말 현재) ··································· 453

[표 3-4-41] 2004년 야영장 정비사업 내역 ································· 455

[표 3-4-42] 공중화장실 유형별 현황(2004년 말) ························ 456

[표 3-4-43] 2004년 공중화장실 정비사업 내역 ··························· 458

[표 3-4-44] 대피소 관리형태별 현황(2004년말 현재) ·················· 460

[표 3-4-45] 2004년 대피소 정비사업 내역 ································· 462

[표 3-4-46] 2004년 수해복구사업 내역 ······································ 464

목 차 19

그 림 목 차

[그림 2-3-1] 공원계획 Flow chart ············································ 239

[그림 2-3-2] 계획결정절차 Flow chart ······································ 240

[그림 3-2-1] 다면평가 절차 ····················································· 263

[그림 3-3-1] 자연휴식년제 시행계획수립도································ 320

[그림 3-3-2] 수질측정망 운영체계············································ 332

[그림 3-3-3] 년도별 수질측정 결과(BOD기준 평균) ··················· 334

[그림 3-3-4] 연도별 쓰레기 발생 현황 ······································ 342

[그림 3-3-5] 연도별 위법시설물 정비 실적 ································ 349

[그림 3-3-6] 연도별 불법행위 단속실적···································· 353

[그림 3-4-1] 지난 10년간 국립공원 이용객 변화추이·················· 368

[그림 3-4-2] 지난 10년간 국립공원 이용객 변화추이·················· 370

[그림 3-4-3] 계절별 입장객 변화추이(‘95～’04년) ······················· 371

[그림 3-4-4] 주요 공원-계절별 이용률(‘95～’04년 평균) ············· 373

[그림 3-4-5] 월별 입장객 분포(‘95～’04년 평균) ························ 375

[그림 3-4-6] 공원별-월별 입장객 분포(‘93～’02년간 평균, 최대, 최소) ···· 378

[그림 3-4-7] 효과적 탐방관리를 위한 업무 프로세스·················· 388

[그림 3-4-8] 탐방객 안전사고 변화 추이 ··································· 394

[그림 3-4-9] 구조체계 모식도·················································· 396

[그림 3-4-10] 행위허가 절차 ···················································· 429

[그림 3-4-11] 공원사업시행체계··············································· 433

[그림 3-4-12] 국립공원사업 집행실적······································· 438

제 1 부 국립공원의 이해

제1장 국립공원 제도의 역사 23

제1절 국립공원 제도의 탄생

1. 국립공원의 이념1869년 미국 와이오밍(Wyoming)주 인근 지역에서 수 십년 동안 소문

으로만 떠돌던 옐로우스톤(Yellowstone)지역의 경이롭고 신비한 자연현

상이 랭포드(Nathaniel P. Langford)와 그의 일행에 의해서 그 존재가 밝

혀진 이 후, 이듬해인 1870년 8월 헨리 워시번(Henry D. Washburn)을 대

장으로 하고 구스타보스 도언(Gustavus C. Doane), 랭포드 일행 등으로

구성된 ‘옐로우스톤 탐험대’가 그 실체를 확인하기 위하여 몬타나를 출발

했다. 1870년 9월 19일 마침내 고된 탐험 끝에 옐로우스톤 지역에 도착한

그들은 그야말로 ‘놀랍고도 신비로운 자연현상’을 발견하고는 너무나 감

격한 나머지 모자를 벗어 던지며 환호했다. 그 날밤 모닥불 주위에 둘러앉

아 탐사결과에 대하여 토론을 벌이던 자리에서 대원중 한 명이 이런 제안

을 했다. “이곳이야말로 관광명소가 될 것이 틀림없습니다. 우리만의 공동

국립공원제도의 역사제1장

24 제1부 국립공원의 이해

소유와 투자방안을 논의해 봅시다.” 그러자 다른 대원인 법률가 코넬리우

스 헤지스(Cornelius Hedges)가 이렇게 반론했다. “이처럼 신비스러운 곳

을 결코 특정 개인이나 단체의 사유지가 되게 해서는 안됩니다. 온 국민이

보고 즐길 수 있도록 해야 합니다.” 이런 헤지스의 제의에 모든 대원들이

흔쾌히 동의하면서 옐로우스톤 지역을 국립공원(National Park)으로 지

정하자는 내용으로 탐사보고서를 작성하게 되었다. 이렇게 해서 ‘경이롭

고 신비로운 자연현상’, ‘사유(私有)가 아닌 공유(公有)’, ‘국민 누구나 이

용하고 즐거움을 누린다’는 탐험대의 주장이 오늘날의 국립공원 이념으로

정착하게 되었다.

사실 탐험대원들의 결정은 그 당시의 상황에 비추어 볼 때 과히 대단한

것이었다. 당시 미국은 전 국토에 대한 토지 소유가 거의 확정되어가던 무

렵이라 개인들간의 땅 차지 경쟁이 극도에 달하던 이 시기였는데, 식민지

에서 독립한 지 채 100년도 안된 신생국가 미국에서, 엄청난 투자가치가

있는 미개척지를 사유화하지 않고 공공의 소유와 대중의 이용을 보장하기

위하여 국립공원을 설정한다는 생각은 혁명적인 일이 아닐 수 없었다.

국립공원의 또 다른 이념은 미국의 제18대 대통령인 율리시스 그랜트

(Ulysses S. Grant)로부터 나왔다. 옐로우스톤 지역에 대한 워시번과 도언

탐험대의 보고를 받고 정부차원의 조사단이 현지답사를 마친 후, 입법 절

차를 거쳐 1872년 3월 1일자로 옐로우스톤 지역을 세계 최초의 국립공원

으로 지정 공포할 때 그랜트 대통령은 ‘국립공원은 모든 국민의 복리와 즐

거움을 위한 공공(公共)의 공원이며 위락지’라고 선언했다.

개인의 능력에 따라 규제와 제한 없이 땅을 소유할 수 있던 당시 미국의

풍토에서 특정 개인이나 단체의 소유, 나아가 그들의 제한적 이용조차 인

정하지 않는 공공(公共)성이 강조된 공원, 즐거운 휴식공간으로 지정함으

로써, 국민의 이익과 기쁨을 도모한 것은 매우 획기적이며 역사적인 일이


아닐 수 없었다.

옐로우스톤을 ‘국립공원’으로 지정하고 호칭하기 전에도 ‘국립공원의 이

념’과 유사한 개념이 다음과 같이 세 가지 정도 있었는데 이들은 ‘국립공

원’이라는 명칭 선정에 적지않은 영향을 끼친 듯 하다.

가. 명승 공원(Magnificent Park)

1832년 미술가 죠지 카트린(George Catlin)이 제안한 것으로서 서부개

척이 진행되면서 계획없이 마구 훼손되는 자연경관을 보호해야 한다는 생

각을 담고있다. 구체적인 내용은 캐나다로부터 미국을 거쳐 멕시코에 이

르는 아메리카 대평원을 명승공원으로 지정하고 그 곳에 살고있는 들소와

인디언을 보호해야 한다는 주장이다. 이 제안은 국립공원의 이념과는 가

까웠지만 토지의 공유화, 이용방법 등이 구체화되지 못했고 그 범위가 너

무 넓어 실현 가능성이 희박했다.

나. 국립 유보 지역(National Reservation)

1832년 몇 사람의 역사학자들이 제시한 주장으로 아칸소(Arkansas)주

의 온천지대가 개인의 영리목적으로 지나치게 개발되면서 주변 환경을 훼

손할 우려가 높아지자 이 지역을 국가관리의 자연보존을 위한 유보지역으

로 지정해야 한다는 내용이었다.

다. 국립 공공(公共)공원(National Public Park)

1860년부터 시행되고 1864년 의회를 통과한 요세미티법(Yosemite Act

1864)에서 공식화된 제도로서 그 이념에 있어서나 실제 운용면에 있어서

국립공원의 이념과 가장 비슷하다.


2. 세계 최초 옐로우스톤국립공원의 탄생미국와이오밍(Wyoming)주(州) 옐로우스톤국립공원(Yellowstone

National Park)에는 온천, 간헐천, 계곡 그리고 다양한 식생 등도 있었지

만, 특히 그 곳의 흙과 돌, 바위들이 노란빛을 많이 띠고 있어 ‘옐로우

(Yellow)’라는 이름이 붙여졌다. 그 면적은 200만에이커(8,991.39㎢)로서

남한 면적의 10%에 해당된다. 이 신비로운 자연경관이 세상에 알려지기

시작한 것은 200년도 채 되지 않은 1800년대부터다.

1800년대 초부터 1850년대까지 옐로우스톤 지역으로부터 멀리 떨어진

미주리(Missouri)주 세인트루이스(St.Louis)시를 거점으로 활동하던 사냥

꾼들과 모피상들이 입에서 입으로 전하는 옐로우스톤의 놀라운 자연현상

에 관한 이야기와 소문이, 그리고 1860년대에 들어서는 금광을 찾는 사람

들에 의해서 알려지는 소문과 기록들이 옐로우스톤 지역에 인접한 몬타나

(Montana)주(州) 사람들의 관심을 끌기 시작하였는데, 가장 큰 관심을

보인 사람은 몬타나주의 토박이이자 훗날 옐로우스톤국립공원의 초대 관

리소장이 된 나다니엘 랭포드(Nathaniel P. Langford)였다.

랭포드는 1867년 소문으로만 떠돌던 그 경이롭고 신비한 지역을 탐험하

기 위하여 친구들과 계획을 세웠었으나 인디언에 대한 두려움으로 포기했

다가, 이 후 1869년 몬타나주의 수도인 헬레나(Helena)시(市) 근방에 위

치한 다이아몬드(Diamond)시에서 폴썸(David E. Folsom), 쿠크(Charles

W. Cook), 피터슨(William Peterson)등과 함께 뜻을 모아 드디어 탐험에

나서게 되었다. 고된 여정 끝에 마침내 옐로우스톤에 도착한 그들은 엄청

나게 큰 온천과 100피트 이상 치솟아 오르는 간헐천 등 온갖 신비로운 자

연현상을 목격하자마자 그 감동을 억누를 수 없어 하나같이 모자를 벗어


던지며 환호했고, 일행 중 쿠크는 이 지역을 모든 사람들이 자유로이 드나

들면서 신비스런 자연현상을 누구나 보고 즐길 수 있도록 해야 한다고 주

장했다.

랭포드는 이듬해인 1870년에 이들 탐험대원들과의 협의를 거쳐, 몬타나

주 조사책임자이자 독립전쟁당시 시민군의 장군을 역임한 전직의원 헨리

워시번(Henry D. Washburn)을 대장으로 한 본격적인 옐로우스톤 탐험대

의 창설을 지원했다. 1870년 9월 19일 밤 탐험대가 기번(Gibbon)강변에서

야영을 할 때 법률가 코넬리우스 헤지스(Cornelius Hedges)는 모든 사람

이 이토록 경이로운 자연현상을 자유롭게 보고 즐길 수 있도록 이 지역에

공공(公共) 유보지(Public park)의 개념을 적용하여 국립공원으로 지정

하자고 주장함으로써 드디어 옐로우스톤 지역에 대하여 국립공원의 이념

이 정립되었다.

옐로우스톤 탐험대의 성과가 널리 알려지기 시작하면서 이듬해인 1871

년 연방정부는 공식적인 학술조사단을 이 지역에 파견하게 되었다. 같은

해 6월 국립지질연구소장인 페르디난드 하이든(Ferdinand V.Hayden)이

이끄는 조사단은 정부로부터 4만 달러의 예산을 지원받아, 화가 토마스 모

랜(Thomas Moran), 사진작가 윌리엄 잭슨(William H.Jackson)을 비롯한

34명의 탐험대원들과 7대의 마차와 육군 공병대로 조사단을 편성하여 7월

에 유타(Utah)로 출발하게 되었다.

짐 브릿저와 옐로우스톤 탐험대의 일원이었던 구스타보스 도언 중위의

최초공식보고서에 바탕을 둔 이들의 조사보고서에는 화가 토마스 모랜의

현장그림과 사진작가 윌리엄 잭슨의 사진, 그리고 랭포드의 공식발표 연

설문과 헤지스의 공원지정 타당성에 관한 논거(論據)등이 실렸고 하이든

이 조사단의 최종 보고서를 종합하였다. 몬타나주 출신 국회의원 윌리암

클라겟(William H. Clagett)은 이 보고서를 근거로 1871년 12월에 관련 분


과위원회를 거쳐 옐로우스톤강 상류지역을 공공(公共)공원으로 지정하자

는 법안을 의회에 제출했다.

이 법안은 미국 상하 양원에서 만장일치로 통과되어 1872년 3월 1일 마

침내 그랜트대통령은 옐로우스톤강 유역을 포함한 2백만 에이커를 세계

최초의 국립공원으로 지정하기에 이르렀다.

3. 미국 국립공원제도의 정착1872년 3월 1일에 최초로 국립공원을 지정한 미국 정부는 옐로우스톤

조사단에서 지도적인 역할과 자금 조달등을 담당해온 랭포드를 1872년 5

월 10일자로 옐로우스톤국립공원의 초대 책임자로 임명했다. 그러나 옐로

우스톤을 비롯한 요세미티(Yosemite), 그랜드 캐년(Grand Canyon), 세

콰이어(Sequoia)등 12개 국립공원은 1916년 국립공원처가 발족되기 전까

지는 육군 공병대에서 관리하고 있었다.

중앙정부에 의한 국립공원 관리를 서두르던 미국정부는 1916년 8월 주

무장관인 내무장관의 친구이며 캘리포니아주의 실업가 스테판 매더

(Stephen T. Mather)를 초대 국립공원처장으로 임명하여 1917년에 관리

체계를 완성하기에 이르렀다. 이로부터 1940년대까지 많은 국립공원이 새

로 지정되었지만 원칙없이 난립되는 경향이 있었고 또는 국립도로공원,

국립전적지 같은 국가적 유적, 보존자원, 관리재산 등이 국립공원 관리체

계에 포함됨으로써 1940년대 후반기에 접어들면서 초기의 국립공원과는

다른 개념이 필요하게 되었다.

이에 1940년대까지 미국 국립공원처장을 지낸 뉴튼 드루리(Newton B.


Drury)가 앞장서 국립공원의 기준을 마련하여 원래의 국립공원과 국립사

적공원, 국립군사공원, 국립도로공원으로 구분하게 되었다. 이때부터 옐로

우스톤을 국립공원으로 지정할 때에 적용한 기준에 해당되는 공원, 곧 뛰

어난 원시자연경관을 보호하기 위한 본래 의미의 국립공원을 대(大)국립

공원(Great National Park) 또는 국립원시공원(National Primeval Park)

으로 부르기로 하였다.

1949년판 미국 국립공원편람은 ‘국립공원은 그 경관의 보호가 국민의

복리와 정신적 향유에 도움을 주고 국가가 직접 관리해야 될 만큼 뛰어난

원시적, 야생적 성격의 넓은 지역’ 이라고 개념짓고 있다. 이런 식으로 발

전한 국립공원의 개념을 정리하면 다음과 같다.

① 국립공원은 넓은 면적에 걸친 원시성과 야생성을 지닌 지역일 것

② 자연풍경을 그대로 보존하는 것이 국민의 복리증진과 정서함양에 도

움이 되는 지역일 것

③ 국가는 그 보존과 이용을 위해 중대한 관심과 책임을 져야하는 지역

일 것

제2절 국립공원의 정의와 개념

1. 국립공원에 관한 국제적인 협의미국, 캐나다 등 초기에 국립공원제도가 도입된 나라들은 국립공원이란


제도만이 아니라 국가의 형성이나 전국적인 국토 이용이 정착되어가던 시

기에 국립공원이 지정되었으므로 특정한 지역, 그것도 상당히 넓은 지역

을 국립공원으로 지정만 하면 별다른 문제가 생기지 않는 것이 통례였다.

곧 국립공원으로 지정한 지역은 사유화될 수 없다는 국유화, 공유화의 선

언적 의미가 그대로 통용될 수 있었다.

미국의 경우 1916년 8월 내무부에 국립공원처가 설치되기 이전에 14개

의 국립공원이 지정되었는데 20세기초인 1902년에서 1909년 사이에 지정

된 공원들 가운데는 다른 공원에 비하여 규모나 자원성이 모자라 1940년

이후 국립공원에서 제외되거나 다른 보호구역 등으로 바뀐 경우도 있다.

동부와 서부 사이의 지역간 균등을 위해서, 또는 국유지로 선언하기 위한

목적의 경우도 있었기 때문이다.

그밖에 20세기에 들어와 국립공원제도를 도입한 스위스(1909), 이태리

(1923), 프랑스(1913), 독일(1928), 영국(1929), 남아프리카(1926), 스코

틀랜드(1945) 등 유럽과 아프리카의 나라들이 멕시코(1910), 호주(1907),

뉴질랜드(1928), 필리핀(1933), 일본(1933) 등은 이미 국토이용 구분이

자리잡혀 있거나 국토의 대부분이 사유, 공유, 국유 등으로 구분된 다음이

어서 미국, 캐나다 등과는 그 개념, 정의 등에서 다른 점이 있을 수 밖에

없었다.

가. 아프리카 야생동물 보호 대책회의

국립공원과 관련하여 열린 최초의 국제회의는 1933년 11월 8일부터 런

던에서 열린 ‘아프리카 야생동물 보존대책회의’라 할 수 있다. 런던회의에

서 정립된 국립공원의 개념은

① 야생동물의 번식, 보호, 보존을 위하여 이를 특별히 관리하고 일반인


들의 관람을 허용하며 미학, 지질학, 인류학, 사학, 고고학 등 학술적

연구 대상을 일반 국민의 이익과 복지를 위해 보존하는 곳이다

② 국가관리 아래 보호되는 지역으로 그 경계선은 입법기관의 의결 없

이는 변경될 수 없고 부분적으로 양도될 수도 없다

③ 관리기관의 허가 없이는 사냥, 동물의 포획, 식물의 채집을 할 수 없다

나. 서반구의 자연보존 및 야생동물 보호회의

미국 워싱턴에서 1940년 10월 12일부터 열린 서반구 자연보존 및 야생

동물 보호회의는 본격적인 산업화와 무질서한 도시개발, 위락시설 조성

등으로 야생동물의 생태권이 파괴되거나 사유화되고, 개발압력이 높은 지

역의 훼손이 우려할 만한 수준에 도달함에 따라 미국이 주도하여 열린 회

의였다. 워싱턴회의에서 정립된 국립공원의 개념은

① 국가적인 가치가 있는 뛰어난 풍광(風光)지역으로 동물 및 식물들을

보존하기 위하여 국가가 지정, 관리함으로써 어떠한 영리목적의 자

원 채취나 개발을 금지시켜 국민복리를 증진한다

② 입법기관의 의결 없이는 그 경계선이 변경될 수 없고 부분적으로도

양도될 수도 없다

③ 정당한 허가를 얻은 학술 연구기관이나 공원 당국의 지도 감독 없이

는 동식물에 대한 사냥, 포획, 채취가 금지된다


2. IUCN, CNPPA의 결의가. 제1차 세계국립공원회의

1962년 6월 30일부터 7월 7일까지 미국 시애틀에서 제1차 세계국립공원

회의가 열렸다. 이 회의는 제2차 세계대전 이후 자연보호, 야생동물 보호

등을 맡고있던 국제연합기구 UNESCO와 프랑스정부가 공동 발의하여,

그 동안 IUCN(국제자연보전연맹International Union for the Conservation

of Nature and Natural Resources)총회 국립공원분과위원회(CNPPA;

Commission on National Parks and Protected Areas)에서 논의되어오던

국립공원 문제를 최초로 독립된 회의체에서 다룬 국제회의이다. 이 회의

에서는 국립공원의 개념과 정의가 지역과 국가에 따라 차이가 있음을 인

정하고, 세계 모든 국가에 공통적으로 적용할 수 있는 정의와 개념을 정립

할 필요가 있음이 논의되었다. 그리하여 10년 뒤에 열릴 제2차 세계국립공

원위원회에서 이 개념과 정의를 확정한다는 전제아래 1969년의 IUCN 총

회에서 합의할 수 있는 안을 마련하기로 결의했다.

IUCN이 정립한 국립공원의 정의와 개념은 제1차 세계국립공원회의

(1962년)의 결의에 따라 각국의 활발한 논의를 거쳐 마침내 1969년 11월

인도의 뉴델리에서 열린 제10차 IUCN 총회에서 국립공원의 정의를 마련

하고 126개 회원국의 동의를 얻게 되었다. 이 정의는 1972년 9월 18일부터

27일까지 미국의 옐로우스톤(Yellowstone)과 그랜드테톤(Grand Teton)

국립공원에서 열린 국립공원 100주년 기념제전을 겸한 제2차 세계국립공

원회의에서 확정 채택되었다.


나. IUCN, CNPPA의 국립공원 정의

국립공원의 지정요건은 그 대상지역이 상당한 면적의 지역으로서

① 하나 또는 몇 개의 생태계가 인간의 개발이나 점유에 의한 본질적인

변화를 입지 않고 동․식물의 종류와 지형학상의 위치나 풍습이 학술, 교육, 위락상의 관심의 대상이 되거나 자연적으로 뛰어난 경관미

를 지닌 지역일 것

② 국가의 최고기관(중앙정부)이 전 지역에서의 개발, 점유를 신속하게

배제할 수 있고 지정요인인 생태학상, 지형학상, 미학상의 현상을 존

중하도록 효과적인 강제를 할 수 있는 지역일 것

③ 탐방객은 영감(0感), 교육, 문화, 위락을 얻을 목적으로만 입장이 허

가될 것

국립공원 지정에서 배제될 요건으로는

① 특별한 허가를 받아서만 들어갈 수 있는 학술적 자연보존지역(엄정

보존지역)

② 국가최고 통치기관(중앙정부)의 승인이나 감독 없이 하급기관이나

민간기관이 관리하는 자연보존지역

③ 1968년의 아프리카 자연 및 자연자원 보존회의에서 특별보존지역으

로 정의한 지역(동․식물보존지역, 수렵금지구역, 조류보호구역, 지질 및 임상 보호구역 등)

④ 관광개발계획을 위하여 경관 조성계획 및 관련조치가 취해진 위락지

역으로서 산업화, 도시화가 조성되고 야외여가활동이 생태계 보전보

다 우선하는 주거지역과 개발지역


이후 2003년도에 국립공원을 다음과 같이 다시 정의 내린 바 있다.

국립공원이란 주로 자연생태계 보전과 국민여가활동을 위해 관리되는

보호지역으로서,

“육지와 해양의 자연지역으로, 현 세대와 미래세대를 위하여 하나 또는

그 이상의 생태계의 유기적 통합성이 파괴되지 않도록 보호하고, 국립공

원 지정목적에 반하는 개발이나 점유를 배제하여, 환경적으로나 문화적으

로 그 가치가 손상되지 않고 조화를 이루는 가운데 정신적, 학술적, 교육

적, 여가활동적 탐방기회를 제공하기 위한 기반으로서의 역할을 수행하기

위해 지정된 지역”

National Park:Protected Area managed mainly for ecosystem

conservation and recreation.

Natural area of land and/or sea, designated to

① protect the ecological integrity of one or more ecosystems for this

and future generations:

② exclude exploitation or occupation inimical to the purposes of

designation of the area: and

③ provide a foundation for spiritual, scientific, educational, recreational

and visitor opportunities, all of which must be environmentally and

culturally compatible.


3. 국가별 국립공원 지정현황IUCN에서는 5년마다 전 세계 국가별 보호지역 지정현황을 조사하여 발

표하고 있다. 현재 약190여개 국가에서 국립공원제도를 채택하고 있으며

각 나라별 자세한 공원지정 현황은 아래의 UNEP-WCMC 인터넷 홈페이

지에서 확인할 수 있다.

http:\\www.unep-wcmc.org/protected_areas/data/nat2.htm


제1절 국립공원제도의 도입과 관리주체의 변천

1. 국립공원제도의 도입우리나라에 국립공원제도가 도입된 과정을 살펴보면 다음과 같다.

1962년 미국 시애틀에서 개최된 제1차 세계국립공원대회에 한국대표로

참석하였던 학자들이 국립공원제도의 도입 필요성을 역설한데 힘입어,

1963년 1월 국민운동본부에 설치된 지리산지역개발 조사연구위원회 내에

지리산지역개발을 위한 14개 분과위원회의 하나로서 국립공원분과가 설

치되었고, 세 차례의 현지조사를 거친 후 1963년 12월 발표된 종합보고서

안에 지리산에 대한 국립공원 지정안이 마련되었다. 2년 뒤인 1965년 건설

부는 공원법안을 마련했는데 이 안이 1967년 2월 국회를 통과하여 1967년

3월 3일 법률 제1909호로 공포됨으로써 드디어 우리나라에 국립공원제도

가 공식적으로 도입되었다.

1967년 6월 17일 공원법 시행령이 대통령령 제3113호로 공포되고 7월

10일 시행규칙이 건설부령 제40호로 공포됨으로써 제도가 완성되어 11월

국립공원제도의 국내 도입제2장

제2장 국립공원 제도의 국내 도입 37

20일 당연직 위원 8명, 민간인 위원 8명 등 16명의 국립공원위원이 임명․위촉되었고 제1회 국립공원위원회가 열렸다. 위원회는 지리산을 우리나라

국립공원 제1호로 지정할 것을 결의했으나 그 경계선 설정은 신중을 기해

야 한다는 다수 의견에 따라, 소위원회를 구성하여 이 문제를 위임․결정토록 하였다. 12월 2일 민간인 위원들로 구성된 소위원회는 해발 700m이

상 지역 전체를 포함하는 438.9㎢를 국립공원으로 책정한 원안을 확정하

여 국토종합계획 심의회의에 상정하였고 이 안이 12월 27일 국토종합계획

심의회를 통과하여 드디어 1967년12월 29일 건설부장관이 지리산을 우리

나라 제1호 국립공원으로 지정․공고하였다.이 후 건설부장관 국립공원 관리청으로서 국립공원 업무를 관장하면서

1991년 4월까지 총 20개 국립공원을 지정하고 계획을 수립․고시하는 한편, 진입도로와 주차장, 야영장 등 기초 탐방편의시설을 정비하였다.

2. 국립공원 관리청1987년 7월 1일 설립된 전문관리기구인 국립공원관리공단이 공원업무

를 맡은 지 3년여가 지나면서 국립공원 관리는 본격적인 궤도에 오르게

되었다. 이를 즈음해 1975년부터 자연보호운동을 주관해 온 내무부가 국

립공원 업무를 관장하게 된다면 국립공원을 관리하는데 있어서 지방자치

단체의 협조를 원활하게 받을 수가 있어 공원관리의 효율이 높아질 것이

라는 주장이 설득력을 얻게되어, 1990년 12월 27일 자연공원법이 개정되

고 1991년 4월 23일 법률 제4268호로 공포됨으로써 공원관리청이 건설부

장관에서 내무부장관으로 바뀌었다.


내무부로 이관된 국립공원 업무는 지역경제국 자연공원과에서 관장하

게 되었는데, ‘지역경제’라는 국(局)의 이름이 암시하듯 국립공원을 경제

적으로 이용․개발하려는 의도가 아니냐는 일부 학자들과 전문가들의 지적도 있었지만, ‘지방특별교부세’의 일부를 국립공원내 부족한 공중화장실

건축, 등산로 정비 등 기초 편의시설 사업비로 활용하는 등 내무부 이관

후 초기 3˜4년간은 그런대로 별 문제가 없었다. 그러다가 1995년 정부의

기구축소로 인하여 ‘자연공원과’는 지역경제국 지역개발과내 일개의 계

(係)로 격하되었는데, 국립공원관리공단을 비롯한 관련단체와 뜻있는 인

사들의 우려와 노력에 힘입어 자연공원계는 1997년 간신히 자연공원과로

복원되는 우여곡절을 겪기도 하였다.

1997년 제15대 대통령 선거 이 후 새 정부가 들어서면서 대대적으로 정

부조직에 대한 개편작업을 실시하였는데, 그 결과 국립공원관리를 환경정

책과 연계하여 통합적으로 관리해야 한다는 시대적 요청과 환경문제를 중

대한 사회이슈로 인식하는 국제적인 추세에 발맞추어 국립공원 업무는 환

경부에서 관장해야 한다는 결론이 도출되었다. 그리하여 1998년 2월 28일

법률 제15734호로 국립공원관리청이 내무부장관에서 환경부장관으로 바

뀌어 오늘에 이르고 있다.

3. 국립공원 관리체제국립공원제도 도입초기의 관리체계를 살펴보면 건설부 지역계획과에는

공원계가 설치되었고 시․도에는 공보실이나 건설국 지역계획과 또는 상공운수국 관광업무 부서에 담당자를 두고 있었는데, 실질적인 현장관리를

제2장 국립공원 제도의 국내 도입 39

위한 공원관리사무소의 설치는 지리산 등 일부 공원에만 국한되는 정도에

불과하여 이 시기의 공원관리는 지역개발 행정의 범주안에서 공원관리의

행정체계를 모색하는 수준이었다. 1971년 건설부내에 공원업무를 전담하

는 공원과가 신설되면서 비로소 공원업무의 기틀이 잡히게 되었는데, 공

원계획을 입안하고 관리에 필요한 업무처리지침 등이 정비하였으며, 시․도에서도 제각기 국립공원관리사무소를 직제에 반영하고 현지에 직원을

상주시키는 등 실무를 수행할 수 있는 체계가 잡혀가기 시작하였다.

이와 같이 관리체계가 정비되면서 국립공원의 총괄적 관리는 중앙행정

기관의 장(長)이 맡고 공원의 보호와 유지관리는 각 국립공원이 위치한

도(道)의 도지사가 그 공원의 관리청이 되어 실질적인 현장관리를 맡게

되었다. 1980년 ‘공원법’이 ‘자연공원법’으로 분리․공포되면서 건설부내 담당과는 부서명칭을 자연공원과로 개칭하였고, 일부 시․도에서는 공원계를 설치하는 등 공원관리의 체계가 잡혀가는 듯 보였다. 그런데 모든 자

치단체가 국립공원관리에 대하여 동일한 수준의 관심을 가졌던 것은 아니

었다. 국립공원에 대한 시․도지사의 이해정도와 관리비용의 수지결과 등에 따라 공원관리를 등한시하는 경우가 자주 발생하였는데, 속리산, 가야

산의 경북쪽과 내장산의 전남쪽은 관리사무소 개소가 지연되었고 다도해

해상, 서산해안(現 태안해안) 등은 일선 �

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Ewebbook.me.go.kr/DLi-File/010/150580.pdf2 국립공원백서 1. 공단의 조직 ·····················································