This research focuses on the mutual behavior of users from the perspective of suppliers to realize the public value of public buildings. It presents the basic direction for the creation of public buildings from a user's point of view and major considerations for each stage of the creation. Among public buildings of the Building Service Industry Promotion Act, this research investigates community service centers. Community service centers are administrative organizations created pursuant to Article 134 of the Local Autonomy Act in gu, eup, myeon, and dong, which are not autonomous districts. The literature review, a field trip, interviews with relevant officers, consultation, seminars, and surveys were used as research methods.