헌종 초기 순원왕후의 수렴청정기간 풍양 조문 조인영⋅노론 이지연 등의 反안동김문세력이 참여하고, 소론 우의정 박종훈이 주장한 헌종 3년(1837) ‘정유결처’는 안동 김문세력이 정치⋅경제적으로 우세한 상황에서 衣廛에게 紬衣 1종에 대한 專屬權[=專賣權]을 부여한 것이었다. 이러한 조치는 이전까지 시행되어왔던 시전⋅통공정책 중 금난전권 행사를 확대하는 조치와 그 맥락을 함께 하는 것임을 알 수 있었다. 더 나아가 외국물품에 대한 국내에서의 ‘通共和賣’를 공식적으로 처분한 정부의 조치였다. 이와 동시에 정부는 통공정책에 따른 육의전 상인의 금난전권 행사를 지속적으로 보호해 주는 조치를 시행하고 있었다. 헌종 9년에 면자전시민들의 요구를 들어준 ‘癸卯決處’가 있었지만, 헌종 10년 ‘甲辰獄事’ 이후, 헌종 12년(1846) ‘병오통공’이 시행되었다. ‘丙午通共’은 풍양조문세력과 소론세력, 노론 영의정 권상하가 주장하였고, ‘정유결처’의 금난전권 확대를 다시 통제하고 축소한 것이었다. 노론 영의정 권상하가 정조년간 남인 채제공에 의해 시행된 ‘신해통공’을 끌어왔지만, 순조년간의 ‘신유통공’을 재차 확인하였던 것이다. 이는 육의전 외에 금난전권의 확대를 통제했던 ‘무자통공’⋅‘신해통공’⋅‘갑인통공’⋅‘신유통공’을 잇는 통공정책이었다. 철종년간에는 각 司⋅각 營⋅각 宮家와 권세있는 자들의 시전 침탈문제와 都賈亂賣의 문제가 심각하였다. 정치적으로는 ‘眞宗祧禮論’으로 풍양조문세력과 권돈인⋅김정희 등의 반안동김문세력이 위축되었다. 철종 4년의 ‘癸丑決處’는 안동 김문 김좌근⋅소론 정원용 등이 立廛과 鞋廛시민의 요구를 들어준 것이며, ‘병오통공’에 대해 반하는 정책이었다. 이는 앞서 시행한 ‘갑신통공’⋅‘정묘통공’⋅‘戊寅節目=戊寅定式’과 ‘丁酉決處’[=‘丁酉筵奏’]를 잇는 조치였다. 철종 5년에 이르면 김좌근이 이전의 공시인순막소회 논의과정에 대해 같은 날에 호조와 선혜청당상 및 여러 유사당상과 공시당상이 비변사[=묘당]에서 논의하자는 의견을 주장하였다. 이러한 주장은 추후 고종년간 비변사를 축소하고, 의정부 주관으로 시행한 공시인순막의 前形이라고 할 수 있다. 철종 13년에 발생한 농민항쟁의 여파로 삼정이정청이 설치되었다. 도고 등으로 인한 서울의 물가문제에 대한 조치와 함께 각 營과 각 司, 각 宮家의 폐단과 沿海 각처의 세금문제를 균역청에 귀속토록 한 조치⋅토지문제의 폐단을 이정하는 조치가 三政釐整節目으로 일단락되었다. 이상에서 살펴본 바와 같이 영조 후반부터 정조⋅순조⋅헌종⋅철종년간의 정국과 정치세력의 변동 속에 시행된 시전정책 중 통공정책은 두 가지 방안으로 다르게 논의⋅시행되었다. 그 추진세력 또한 각 시기마다 노론과 소론 제 세력의 척신세력에 대한 反척신세력의 정치적 공세와 함께 밀려오는 외국상품에 대한 독점권 장악과 분배라는 시전에 대한 정부의 경제적 대응을 확인할 수 있다. 영조 후반부터 정조·순조·헌종·철종년간의 정국과 정치세력의 변동 속에 시행된 시전정책 중 통공정책은 두 가지 방안으로 다르게 논의·시행되었다. 그 추진세력 또한 각 시기마다 척신세력에 대한 反척신세력의 정치·경제적 공세의 일환인 측면임을 확인할 수 있다.

In the early days of King Heonjong’s reign, Queen Sun’weon was overseeing the government and its operations, and during that time, the “Jeong’yu-year Ruling,” issued in 1837(3rd year of King Heonjong’s reign) by the initiative of Right Minister Park Jong-hun (of the Soron faction) and with sponsorship of individuals who stood against the politically and economically superior Andong Kim House such as Jo In-yeong (from the Pung’yang Jo house) and Yi Ji-yeon (from the Noron faction), granted the Central Clothes Shop[衣廛] the authority to exclusively sell “Ju”-Silk clothes(紬衣). This order was to yet again expand certain stores’ prohibitive authority and exclusive rights, and at the same time was also an order that officialized domestic dealing of foreign merchandise. The government, as it had been issuing trade allowances, was also continuously looking after the six governmental markets and their interests. In the 9th year of king Heonjong’s reign, the “Gye’myo-year ruling[癸卯決處]” granted the request of the cotton merchants, but two years after the Gabjin-year purge[甲辰獄事] that occurred in Heonjong’s 10th year, the “Byeong’o-year Allowance[丙午通共]” was ordered in 1846. This order was supported by the Pung’yang Jo house, the Soron faction and Central Minister Gweon Sang-ha (who was from the Noron faction), and effectively rescinded the ever-continuing exclusive rights reinforcements. In appearance it was the resurrection of the Shin’hae-year Allowance which had been led by Southerner party’s Chae Je-gong during king Jeongjo’s days, but was in fact a reconfirmation of the Shin’yu-year Allowance of king Sunjo’s days. It was the latest order to inherit the spirit of “Tong’gong” Allowances from the Muja, Shin’hae, Gab’in and Shin’yu-years, which all intended to restore control over the ever expanding exclusive rights of stores other than the six governmental shops. During king Cheoljong’s reign, governmental offices, military bases and royal family members and other powerful figures continued to harass and pillage the marketplace, while the Capital merchants continued to violate the exclusive rights of other sellers(“都賈亂賣”). In the political arena, due to the controversy concerning the issue of how to proceed with Jinjong’s tablet inside the dynastic shrine(‘眞宗祧禮論’), the Anti-Andong Kim house front, comprised of the Pung’yang Jo house members and figures like Gweon Don-in and Kim Jeong-hi, was considerably weakened. With the “Gye’chuk-year Ruling[癸丑決處]” that was issued in the 4th year of king Cheoljong’s reign, Kim Jwa-geun from the Andong Kim house and Jeong Weon-yong of the Soron faction granted the request of the Ibjeon(立廛) store and the Shoe store[鞋廛] merchants, nullifying the spirit of the Byeong’o-year allowance, and instead inheriting the spirit of the Gabshin, Jeongmyo-year allowances(the so-called Mu’in-year Directive[戊寅節目=戊寅定式]) as well as the Jeong’yu-year ruling[丁酉決處=丁酉筵奏]. In king Cheoljong’s 5th year, Kim Jwa-geun argued that the discussion to take care of certain problems that were supposedly plaguing the Gong'in figures and Merchants(貢市人詢瘼) should commence with the Ministry of Finance, Senior[Dangsang] officials of the Seonhye-cheong office and representatives of other related offices gathered at the Bibyeon-sa chamber. This was a precursor to the later days’ launching of a policy to make royal inquiries to Proxy Taxpayers and Market merchants, which would be led by the Euijeong-bu office, instead of the Bibyeon-sa office that was rather marginalized during king Gojong’s reign. Due to the peasant revolt that broke out in the 13th year of king Cheoljong’s reign, the Office to Rectify Abuses in the Three Policy Areas [land, military and grain exchanges] (Samjeong Ih’jeong-cheong, 三政釐整廳) was established. Orders to address the Price problems that had arisen due to the Dogo merchants’ activities, rectify the abuses of the military bases, governmental offices and royal family members, divert taxes collected from coastline areas to the Gyun’yeok-cheong office, and resolve conflicts concerning lands, were all included in the “Directive of the Samjeong Ih’jeong-cheong office(三政釐整節目).” As examined above, the orders of “Allowance” were issued in two distinctively different directions, due to changes in the political climate and power dynamics during the reigns of kings Yeongjo, Jeongjo, Sunjo, Heonjong and Cheoljong. Various powers inside the Noron and Soron factions were politically attacking the royal family’s in-law House members, while also trying to address the situation in which foreign merchandises were flooding the Joseon market and prompting the Joseon merchants and customers and not to mention the government to either establish [or permit] exclusive rights, or distribute them in some manners.

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The Shin’hae-year Tong’gong(辛亥通共), Ruling[決處] of the Jeong’yu-year(丁酉決處), Ruling of the Gye’myo-year(癸卯決處), The Byeong’o-year Tong’gong(丙午通共), Ruling of the Gye’chuk-year(癸丑決處), The Office to Rectify Abuses in the Three Policy Areas [land, military and grain exchanges] (Samjeong Ih’jeong-cheong, 三政釐整廳), Geum-Nanjeon-gweon (禁亂廛權, Prohibiting merchants from engaging in commercial trades without licence), Six governmental markets (Yug’eui -jeon, 六矣廛), King Heonjong(憲宗), King Cheoljong(哲宗)