In this research, we define the period until an independent administrative organization for environment policy is established in the central government as the "early stages" of resource and environmental policy, and analyze the formation process of the resource and boundary policy during this period. In many cases, the initial environmental policy was unable to achieve sufficient results in response to the various restrictions, and did not attract attention as a subject of research. Also in the chronicles of environmental policies prepared by the environmental administration organization, this period was treated as the "preceding stages" of the policy history, and was not fully examined. However, the restrictions faced in the early stages affect the entire policy formation process by the path dependency of system formation, etc. in many cases. In order to grasp the structure of the formation process of resource and an environmental policy, as well as to grasp the present condition of the policy and to explore the future direction, the early stage policy process needs to be studied more.