도시에서는 건축물 등 인공적 구조물이 어떻게 공간을 구성하고 있는가에 따라 직접적으로 도시주민의 생활의 질을 규정할 뿐만 아니라 역사적 건축물, 문화적 시설, 거리와 그 밖의 경관의 배치에 따라 도시의 문화적이고 사회적 환경을 형성한다는 것이다. 더불어 도시정책 패러다임의 전환과 함께, 최근 무분별한 개발로 인해 훼손되고 있는 도시경관에 대한 관심이 대두하고 공공성을 갖는 도시경관에 대한 사회적 가치가 날로 커지게 되었다. 그 결과, 2002년 제정된 「국토의 계획 및 이용에 관한 법률」에서 경관부문이 중요한 분야를 차지하게 되었으며, 2007년 5월에는 도시경관에 관련한 기본법의 성격을 지닌 「경관법」이 제정되었다. 도시경관은 인공성의 여부에 따라 자연경관과 인공경관으로 구분하며, 주거지경관․상업지경관․가로경관 등과 같이 시가지를 구성하는 모든 경관을 의미하는 것으로 도시의 역사․문화․자연을 보전하고, 공간․문화환경의 총체적 질을 높이면서 도시기능의 회복도 도모하고, 도시 곳곳에서 일상적 체험이 가능한 매력적인 장소와 공간을 제공함으로써 시민의 삶의 질을 윤택하게 하는 총체적인 도시가꾸기 작업을 뜻한다. 다시 말하면 “도시경관조례”는 도시전체 또는 일정지역에 대하여 지역성을 반영한 아름답고 쾌적한 도시이미지(city image)를 특정한 경관이미지로 유도하기 위한 복잡 다양한 사항을 정리․통합하는 것으로서 도시경관형성을 유도하는 제도인 것이다. 이는 결코 규제가 아니며, 시민의 삶의 질 향상과 시민의 다양한 의식 및 생활양식, 국제화에 어울리는 지역의 경관형성을 통한 쾌적한 도시경관형성에 동시다발적으로 요구되는 다종다양한 경관요소들을 수용하여 공간에 작용하여 만들어 가는 것이다. 관련하여 경관이익이란 객관화, 광역화된 가치 있는 자연상태를 형성하고 있는 경치나 풍경을 향유할 수 있는 이익이라는 것이다. 이는 주민일반의 공공적 이익이고, 그 침해에 대한 구제는 본래 도시계획이나 행정소송을 통한 공법적 구제가 적합하다. 또한 미국에서의 재판상 경관미적 개념의 수용을 국내의 법정에서도 받아들여져서, 경관미라는 단독적인 이유만으로도 부자연스런 개발과 시설물설치행위를 통제할 수 있도록 하여야 할 것이다. 그리고 현행 지방자치법 제15조에 근거한 조례의 제정과 개폐 청구제도는 주민이 해당 지방자치단체의 장에게 조례의 제정과 개폐를 청구할 수 있을 뿐, 주민이 직접 조례를 제정하거나 개폐할 수 있는 제도는 아니다. 독일의 여러 란트에서는 조례규정사항(예산조례등은 제외)까지도 주민(시민)이 결정할 수 있는 주민결정(시민결정)제도가 인정되고 있는데, 한국의 지방자치법 제15조상의 조례의 제정과 개폐 청구는 독일의 주민결정(시민결정)제도와 비견될 만큼 강력한 주민참여제도는 아니다는 것이다. 따라서 제한된 범위 안에서 주민의 결정으로 도시경관형성등의 조례를 제정하거나 개폐할 수 있는 제도도입 필요성의 견해제시에 공감하며, 이러한 견해제시가 우리의 지방자치법상 원용될 수 있기를 기대한다.

In a city, it prescribes quality in citizens’ life directly how artificial structure such as buildings is formed and a cultural and social environment in a city is formed according to arrangement of historical buildings, cultural facilities, street and other landscapes. In addition, interest for city landscape damaged by indiscreet development as well as conversion of paradigm in city landscape was distinguished and social value of city landscape with publicness was increased day by day. As the result, landscape part occupied an important field in 「Act on Planning and Use of National Territory」 enacted in 2002 and 「Landscape Law」 with characteristics of basic law related to city landscape in May, 2007 was enacted. City landscape is divided into natural landscape and artificial landscape according to artificiality and means all landscapes composed of a city area such as housing landscape, landscape of commercial area and street landscape. Therefore, it means overall works for city decorating to make quality in citizens’ life glossy by groping recovery of city function and offering attractive space making ordinary experience possible here and there in a city, preserving history, culture and nature in a city and raising overall quality of spatial and cultural environment. Namely, ‘City landscape ordinance’ is a system to induce formation of city landscape by arranging/integrating diverse complicated matters to lead beautiful and pleasant city image reflecting locality to a peculiar landscape image with regard to the total or a fixed area of a city. It is not pertinent to regulation and is to be applied to space by accepting diverse landscape elements required to formation of clean city landscape through improvement of quality in citizens’ life and citizens’ diverse kind of consciousness and lifestyles and landscape formation of area suitable to internationalization. Landscape profit is a profit to enjoy scenery or landscape forming objectified and integrated valuable natural conditions. It is a public profit of all citizens and, for relief of the violation, relief of public law through city plan or administrative litigation is suitable. In addition, the government shall control unnatural development and facility installation act with only independent reason which is landscape beauty by accepting concept of landscape beauty in USA judgment to domestic court. And in the event of enactment of ordinance and system for claim of its revising/abrogating based on article 15 of the present local autonomy act, citizens can just claim enactment and revising/abrogating of ordinance to the head of local government. Therefore, it is not a system that citizens can enact or revise/abrogate ordinance directly. In diverse German lands, system of citizens’ decision that citizens can decide even regulations of ordinance (budget ordinance excluded) is recognized. Namely, claim of enactment and revising/abrogating of ordinance in article 15 of local autonomy act in South Korea is not a citizen participatory system as powerful as being compared with German system of citizens’ decision. Therefore, within a limited scope, the author sympathizes with opinions to introduce a system to enact or revise/abrogate ordinance of city landscape formation by citizens’ decision, and anticipates that such opinions will make Korean local autonomy act reviewed.

In a city, it prescribes quality in citizens’ life directly how artificial structure such as buildings is formed and a cultural and social environment in a city is formed according to arrangement of historical buildings, cultural facilities, street and other landscapes. In addition, interest for city landscape damaged by indiscreet development as well as conversion of paradigm in city landscape was distinguished and social value of city landscape with publicness was increased day by day. As the result, landscape part occupied an important field in 「Act on Planning and Use of National Territory」 enacted in 2002 and 「Landscape Law」 with characteristics of basic law related to city landscape in May, 2007 was enacted. City landscape is divided into natural landscape and artificial landscape according to artificiality and means all landscapes composed of a city area such as housing landscape, landscape of commercial area and street landscape. Therefore, it means overall works for city decorating to make quality in citizens’ life glossy by groping recovery of city function and offering attractive space making ordinary experience possible here and there in a city, preserving history, culture and nature in a city and raising overall quality of spatial and cultural environment. Namely, ‘City landscape ordinance’ is a system to induce formation of city landscape by arranging/integrating diverse complicated matters to lead beautiful and pleasant city image reflecting locality to a peculiar landscape image with regard to the total or a fixed area of a city. It is not pertinent to regulation and is to be applied to space by accepting diverse landscape elements required to formation of clean city landscape through improvement of quality in citizens’ life and citizens’ diverse kind of consciousness and lifestyles and landscape formation of area suitable to internationalization. Landscape profit is a profit to enjoy scenery or landscape forming objectified and integrated valuable natural conditions. It is a public profit of all citizens and, for relief of the violation, relief of public law through city plan or administrative litigation is suitable. In addition, the government shall control unnatural development and facility installation act with only independent reason which is landscape beauty by accepting concept of landscape beauty in USA judgment to domestic court. And in the event of enactment of ordinance and system for claim of its revising/abrogating based on article 15 of the present local autonomy act, citizens can just claim enactment and revising/abrogating of ordinance to the head of local government. Therefore, it is not a system that citizens can enact or revise/abrogate ordinance directly. In diverse German lands, system of citizens’ decision that citizens can decide even regulations of ordinance (budget ordinance excluded) is recognized. Namely, claim of enactment and revising/abrogating of ordinance in article 15 of local autonomy act in South Korea is not a citizen participatory system as powerful as being compared with German system of citizens’ decision. Therefore, within a limited scope, the author sympathizes with opinions to introduce a system to enact or revise/abrogate ordinance of city landscape formation by citizens’ decision, and anticipates that such opinions will make Korean local autonomy act reviewed.

local decentralization times, landscape law, city landscape ordinance, landscape profit, landscape beauty in USA judgment, German system of citizens’ decision