공정사회와 보금자리주택

허강무(Heo Kang-Moo) 韓國土地公法學會 2011 土地公法硏究 Vol.54 No.-

이명박 대통령이 지난해 8 · 15경축사에서 ‘공정한 사회’를 천명한 이후 우리 사회에는 공정사회가 새로운 화두로 등장했다. 공정사회 논의에서의 핵심 중 하나는 부동산정책이다. 특히 보금자리주택사업은 사업초기부터 형평성 논란으로 찬반이 극명하게 대립되고 있는 현 정부의 친서민정책 중 하나이다. 본 연구는 현 정부의 국정과제인 공정사회 관점에서 보금자리주택사업의 쟁점을 법학자의 시각에서 고찰하였다. 먼저 제Ⅱ에서는 헌법과 주택정책을 고찰하고, 제Ⅲ에서 보금자리주택제도의 도입배경 및 구조를 살펴보았다. 제Ⅳ에서는 소위 ‘공정사회’ 관점에서의 보금자리주택 논쟁을 정리하고 제언하였다. 보금자리주택은 사업진행 과정에서 주택공급방식, 개발제한구역(이하, 그린벨트) 훼손, 개발이익사유화 등 논란의 대상이 되었다. 이제 정부는 보금자리주택사업이 국민의 쾌적한 주거생활권 보장과 국가의 주택개발정책노력의무에 어떻게 하면 보다 가깝게 접근할 것인지 고민할 시점이다. 또한 공정사회 관점에서 전술한 바와 같은 쟁점이 조화를 이룰 수 있는 해결책을 강구해야 할 것이다. 보금자리주택의 문제점은 분양가를 저렴하게 책정함으로써 발생하는 개발이익을 최초분양자가 사유화할 수 있도록 했다는 점이다. 이러한 문제를 해소하기 위하여 의무거주기간과 전매제한기간을 확대하였지만 근본적인 대책이 되지 못하고 있다. 정부는 주택법을 재개정하여 환매조건부 주택제도를 부활하거나 「환매조건부 주택에 관한 특별법」을 제정하여 보금자리주택의 저가분양으로 인한 개발이익을 원천적으로 환수하는 방안을 모색할 필요가 있다. 보금자리주택이 그린벨트를 해제하여 건설하는 주택이라면 그만큼 공공성을 지녀야 한다. 일반분양주택이 아니라 환매조건부 주택이 보다 더 정당성을 지니고 있다는 점도 고려할 필요가 있다. A fair society has appeared as a new conversation topic since the President Myung-Park Lee declared a “fair society” in the August 15 congratulatory speech last year. One of the essential problems in the fair society discussion is the problem of real estates. In particular, the project of Bogeumjari Housing is one of the low-income bracket friendly policies of the current administration where the pros and cons manifestly have conflicted with each other due to the fairness disputes from the early stage of the project. This study addresses, from a legal scholar’s perspective, relevant disputes relating to the project of Bogeumjari Housing in light of the fair society, which is the national task of the current government. In the first place, Chapter II examines the Constitution and the housing policies, and Chapter III considers the background information and structure of the system of Bogeumjari Housing. Chapter IV summarizes and provides suggestions for relevant disputes relating to the Bogeumjari Housing in view of the so-called “fair society.” The Bogeumjari Housing has been subject to disputes in the progress of project, including the housing supply methods, greenbelt damages, privatization of development gains/benefits. As of now, the government is placed at the point in time to take into consideration how the project of Bogeumjari Housing comes closer to preservation of pleasant residential living areas and the government’s housing development policy obligation. Furthermore, certain solutions should be made to reconcile the aforementioned disputes in view of the fair society. The problem of Bogeumjari Housing is that it has caused the first sellers to privatize development profits that arise in fixing the sales prices cheaply. In order to solve this problem, the compulsory residence period and the resale period has increased, but it cannot become a fundamental measure to take. The government needs to find out solutions of reviving the resale conditioned housing policy by amending the Housing Act again, or of recapturing the development costs incurred as a result of the low sales prices for the Bogeumjari Housing by establishing the 「Special Act Relating to Resale Conditioned Housing」. To the extent that the Bogeumjari Housing constitutes houses constructed by removing development restriction zones, it should have public interests. It should be also considered that the resale conditioned housing has more public interests than the general sales housing.

보금자리주택의 경제적 파급효과에 관한 연구

최차순 ( Choi Cha Soon ) 한국부동산학회 2012 不動産學報 Vol.50 No.-

1. CONTENTS (1) RESEARCH OBJECTIVES The purpose of this study is to empirically estimate the economic impact of the Bogeumjari Housing in the national economy by using the data of 2010 Housing Services Manual of Ministry of Land, Transport and Maritime. The economic impact of the Bogeumjari Housing are analyzed under fields : Production, Import, Value Addition and Employment. (2) RESEARCH METHOD The research methods is a static Input-Output(I-O) analysis. The data for this analysis the I-O table of 2010 is published by the Bank of Korea in 2012 has been used. (3) RESEARCH FINDINGS The suggestions that are made from this study are follows : 1. The overall impact of product will be 1170.6 billion won and the product induction ratio could be 1.65. The gross impact of import will be 37.5 billion won. The gross value added generated from the production will be 509.1billion won and the value added induction ratio could be 0.72. Also, to be measured that 4,594 job will be created due to the Bogeumjari Housing construction. 2. This research results indicate that the 1.65 times of the production inducement coefficient of the Bogeumjari Housing is higher than the 1.45 of Pention Housing and 1.50 of the development of housing site, but is lower than Silver Housing. 2. RESULTS For this above macro-economic analysis, the paper concludes that the Bogeumjari Housing have a big positive impact on the economy. It is need to continually invest and supply the Bogeumjari Housing for turning around of the country economy.

보금자리주택지구 입주자 특성을 고려한 커뮤니티시설 계획 방향설정 연구

김준래(Kim, Jun-Lae),조영태(Cho, Young-Tae),김세용(Kim, Sei-Yong) 대한건축학회 2012 대한건축학회논문집 Vol.28 No.11

Bogeumjari housing is a consumer-oriented alternative to unilateral private sector supply, offering homes to more diverse income level classes with the public sector building for installment sales and rental house supply. Bogeumjari housing district must be planned not only by the public sector but in conjunction with private construction corporations. Additionally, Bogeumjari housing district should plan community facilities based on considerations of the resident’s condition. The purpose of this study is to suggest the planning strategy for community facilities of Bogeumjari housing district by analyzing advanced reservation system and residents’ characteristics of long-term rental housings. As a result, the study drew significant outcomes as follows. First, residents of Bogeumjari housings show quite different characteristics than conventional housings’. Second, community facilities should be planned through classifying according to housing types, and district and region types by considering residents’ characteristics. The result of this study could be useful in Bogeumjari housing district community facility planning.

공동주택 공급유형별 부대복리시설에 대한 거주자 의식 및 이용현황조사 연구

백혜선(Paik, Hae-Sun),권혁삼(Kwon, Hyuck-Sam) 대한건축학회 2012 대한건축학회논문집 Vol.28 No.12

While 1.5 million Bogeumjari housing, including rental housing for low-income people and small- and medium-sized housing based on sales, will be constructed and supplied in the near future, its community facilities are not sufficiently reflecting the characteristics and demands of residents by diverse housing types. Therefore, this study aims to analyze the characteristics of residents and their demands on community facilities by types of supplying housing, which can be the basis for making the housing regulations. The following four types of housing are considered in this study: 1) permanent rental housing, 2) public rental housing (50-year), 3) National Rental Housing (30-year), and 4) housing for sale. We surveyed 1,300 residents from 16 housing complexes in those four housing types. The key findings of the survey are as follows. First, each housing type has different household characteristics. An average age of residents and the number of households are different in each housing type. Second, the criteria for housing selection are different (i.e., housing size and distance from work for rental housing vs. housing expense for housing for sale). The expected residence time is longer in rental housing than in housing for sale. Third, local community activities, which require the reasonable operation of resident representative meetings and financial assistance from government, are the most important in permanent rental housing. Lastly, residents are generally satisfied with service facilities, but their satisfaction level and the facilities they need are different depending on housing type. Accordingly, the housing regulations should be improved to compute the total amount of areas of community facilities and, within the total amount computed, flexibly implement the facilities reflecting the characteristics and demands of residents by housing type.

공공주택지구 내 민간분양아파트 공급과 부담금 부과 대상에 대한 공법적 연구

김종균(Kim, Jonggyun) 사단법인 건설법학회 2024 건설법연구 Vol.- No.11

공공주택의 일종인 임대주택에 관한 최초의 일반법인 「임대주택건설촉진법」이 1985년 시행된 이후 현재 공공주택의 범위는 임대주택을 넘어 분양주택에까지 확장되었는바, 이는 2009년 보금자리주택법의 시행에 따른 것이다. 공공주택을 적시에 대규모로 공급하기 위하여서는 공공주택지구의 조성이 선행되어야 하고, 이는 공공필요에 의한 토지수용이 가능하게 되는 원동력이 된다. 따라서 공공분양주택 개념을 처음 도입한 보금자리주택법을 중심으로 주택지구의 조성·공급, 주택의 건설·공급 절차 등을 살펴보고, 이를 민간 주택의 경우에 적용되는 「택지개발촉진법」 및 「주택법」과 비교해본다. 수용방식에 의해 공공주택지구가 조성된 후에는 지구 내 공공분양주택이 건설되는 외에도 지구의 일부 토지가 민간에 분양되어 민간분양주택이 건설될 수 있는 길 또한 현행 법체계 내에서 열려 있다. 다만 공익을 목적으로 토지를 조성한 뒤 이를 민간에 매각하는 것은 「택지개발촉진법」에 대해 제기된 문제와 동일한 문제를 야기할 수 있다. 「택지개발촉진법」은 대규모 신도시 개발을 목적으로 토지수용을 진행하였으나 권리의식의 함양에 힘입어 점차 토지소유자들의 반발에 무력해지기 시작하였다. 보금자리주택법은 이러한 문제를 우회하기 위한 수단으로 여겨질 수 있다. 한편, 주택건설 목적의 대규모 주택지구가 조성되는 경우 광역교통개선대책의 수립이 필요하고, 이에 필요한 광역교통시설부담금이 부과될 수 있다. 이때 부담금을 주택지구조성 단계에서 부과할지 주택건설 단계에서 부과할지가 문제될 수 있다. 보금자리주택법은 결국 지구조성에 방점을 둔 것인 만큼 주택지구조성 단계에서 부담금을 부과하는 것이 택지개발계획의 관점에서 보다 정당할 수 있다. Since the first general law on rental housing—a type of public housing—was implemented in 1985, the scope of public housing has now expanded beyond rental housing to pre-sale housing, which was mandated by the Bogeumjari Housing Act in 2009. To supply public housing on a timely and large scale, public housing districts must be established first, which is the driving force behind the possibility of land acceptance according to public needs. Focusing on the Bogeumjari Housing Act, which first introduced the concept of public housing for sale, we examine the creation and supply of housing districts as well as the construction and supply procedures of housing and compare them with the Housing Site Development Promotion Act and the Housing Act applied to private housing. After the public housing district was established by the acceptance method, in addition to the construction of public housing in the district, a path for private housing could be developed by selling some of the district’s land to the private sector within the current legal framework. However, creating land for the public interest and then selling it to the private sector can result in the same problems as those raised in the Housing Site Development Promotion Act. The Housing Site Development Promotion Act conducted land expropriation for the large-scale new city development; however, it gradually became powerless against opposition from landowners owing to the cultivation of a sense of rights. The Roost Housing Act can be viewed as a means to bypass these problems. When a large-scale housing district is created for housing construction, measures to improve wide-area transportation must be implemented, and appropriate wide-area transportation facility charges may be imposed. At this point, it may be unclear whether the levy is imposed at the formation of a housing district or at the housing construction stage. As the Bogeumjari Housing Act focuses on the creation of a district, imposing a levy during the formation of the housing district may be more justified from the perspective of a housing site development plan.

공공주택건설(객체보조)에 대한 정책연구

박은병(Park, Eun Byong),엄수원(Eunm, Soo Won) 한국부동산학회 2010 不動産學報 Vol.42 No.-

1. CONTENTS (1) RESEARCH OBJECTIVES The Korean government plans to supply 100,000 of permanent rental housing, 400,000 of public rental housing and 1,500,000 of bokumjari housing(small and medium size and rental housing) by 2018 in order to dispel housing problems among homeless low-income brackets. It is in discussing on how public rental housing is defined with the opinion that public rental housing supply and its policy should be carried based on the law, and it is raised that the matter of this public rental housing supply and private rental housing activation in supply-side and the matter of equity of public rental housing supply in the regional level. And further, it is needed at this time that study on the government intervention to the market and government support policy on the raising problems such as excluded class in move-in due to supplier aid-centered support policy, frequent occurrence of antisocial behaviors due to dwelling of low-income groups and creating a sense of incongruity among classes due to occurrence of keeping them apart from neighboring community in the public rental housing supply regard. (2) RESEARCH METHOD This study will examine the origin and development of public housing in Germany which played a role in order to stabilize the residing of low-income groups, the background of establishment and abolishment of the "law of public housing", government policy toward the public housing company which was a major supplier of public housing and the subject assisting policy which support the rent for its residents. (3) RESEARCH FINDINGS The result of this study is deducting implications on public rental housing policy in Korea by considering the policy in Germany which experienced those problems before. 2. RESULTS This study deduces implications focusing on activation of private rental housing and public rental housing supply, establishment of relation laws, theoretical definition, a standard of value which is the main issue of public rental housing.

개발제한구역 규제 개선방안의 법적 검토

정해영(Hae-Young Jeong) 한국토지공법학회 2023 土地公法硏究 Vol.102 No.-

개발제한구역제도는 도시의 무질서한 확산을 방지하고 도시 주변의 자연환경을 보전하여 도시민의 건전한 생활환경을 확보하기 위하여 도입되었다. 개발제한구역은 지난 50여 년간 신규 지정 없이 필요에 따라 해제되고 있는데, 여기에는 산업단지나 문화시설 조성 등의 이유도 있지만 사실상 주택 공급이 중심이 되었다. 특히 보금자리주택사업과 관련하여 보금자리주택지구의 지정을 위해 해당 지구의 50%에 상당하는 개발제한구역의 지정을 해제하여 공공택지로 조성하고자 하였다. 보금자리주택사업을 비롯하여 그린벨트를 해제하여 공공택지를 공급함에 있어서 몇 가지 법적 문제가 있다. 먼저, 보금자리주택사업의 경우 임대주택 보다는 분양주택의 공급이 상당 부분 차지하였는데, 이는 주된 사업주체인 한국토지주택공사가 상당량의 그린벨트를 해제하여 저소득층의 주거안정 및 주거수준 향상을 도모하기 위해 추진된 정책이라는 점에서 공공성에 관한 근본적인 문제점이 있다고 볼 수 있다. 다음으로, 개발제한구역의 해제는 그 지정만큼이나 국민의 재산권 등 기본권에 중대한 영향을 미치고 국토의 효율적이고 균형 있는 개발과 보전이라는 공익적 관점에서도 중요한 사항이라고 할 것이나, 개발제한구역의 해제의 사유 특히 주택공급을 위한 개발제한구역해제의 가능성에 관해서 법률상 명확한 규정을 두지 아니하여 법률유보원칙상 문제가 있다. 끝으로 개발제한구역 환원의 법적 근거가 마련되었음에도 불구하고 개발제한구역으로의 환원의 정당성에 관한 논란은 여전히 남아 있다고 할 수 있다. 개발제한구역법 시행령 제2조 제3항 개발제한구역의 해제 사유로서 ‘개발제한구역에 대한 환경평가 결과 보존가치가 낮게 나타나는 곳으로서 도시용지의 적절한 공급을 위하여 필요한 지역’과 관련하여, 개발제한구역으로서 보존가치가 낮다는 이유로 개발제한구역의 지정을 해제하여 공공택지로 조성한다는 것은 최소한 보금자리주택지구 지정 당시에는 개발제한구역으로 존치시킬 공공필요성이 약화된 것으로 볼 수 있을 것임에도, 부동산 경기 등의 영향으로 공공택지 조성사업이 상당 기간 중단되고 있다는 이유만으로 개발제한구역으로 환원된다는 것은 그 자체로 논리적 모순이 아닌가 여겨진다개발제한구역에 관한 논의는 보전과 개발의 측면에서 끊임없이 충돌해왔다. 개발제한구역의 보존가치는 사유재산을 강제적으로 규제할 수 있는 강력한 명분으로 작용했다. 개발제한구역제도의 시작은 대도시성장관리 측면이 강하였으나, 거점도시권에만 과밀한 수준으로 성장한 우리 국토와 도시의 현황을 고려할 때 오늘날에도 대도시에 대한 성장관리는 여전히 필요하며, 도시의 성장관리를 위해서는 환경용량 확충이 무엇보다 우선되어야 한다는 점에서 자연환경 보전의 원천으로서 개발제한구역의 의의와 역할이 더욱 부각되고 있다. 국토정책이 성장패러다임에서 생태패러다임으로의 전환되면서 인간과 자연의 공존, 다른 지역의 주민이나 다음 세대를 고려한 보전과 개발을 조화시키려는 ‘지속가능한(sustainable) 발전’이라는 개념이 화두가 되고 있는 상황에서 개발제한구역은 이를 위한 중요한 자원으로서 볼 수 있는 바, 국민적 합의와 중장기적 계획 속에서 균형 있는 개발과 관리가 필요하다고 할 수 있다. Greenbelt policy started as needs to regulate and manage excessive city expansion rose. Greenbelt have not been newly designated in the past 50 years and have been released according to occasional needs. It was lifted to secure land, mainly to supply housing. There are several legal issues with the supply of housing using greenbelts as well as The Bogeumjari Housing. First, A large part of the Bogeumjari Housing Project is the supply of pre-sale housing. There is a fundamental problem in the public interest of the project in that it is a policy to promote housing stability for the low-income class by releasing a considerable amount of greenbelt. Second, although the release of the greenbelt is an important matter for the people's property rights and the balanced development and preservation of national land, there is a problem that the legal basis for the cancellation of the greenbelt for housing supply is not clear. Lastly, although the legal basis for the restoration of the greenbelt has been established, the question of the legitimacy of the restoration still remains. Although the release of greenbelts with low conservation value and supplying them to public housing areas can be seen as a weakening of public necessity at the time of designation of Bogeumjari housing districts, it is a logical contradiction that it is restored to a greenbelt due to the deterioration of the real estate market. The importance of preserving the greenbelt is further revealed in that the expansion of environmental capacity is important for urban growth management. In a situation where the concept of ‘sustainable development’ has emerged as an important issue in national land policy, it is necessary to develop and manage the greenbelt in a balanced manner under national consensus and mid- to long-term plans.

임대주택시장에 있어서 공공임대주택정책의 역할에 관한 연구 : 한국과 일본의 비교분석을 중심으로

박혁서 한국주거환경학회 2012 주거환경(한국주거환경학회논문집) Vol.10 No.3

This paper analyzes the role of the public rental housing policy in the rental housing markets in Korea and Japan. The study shows that in Korea, with the sharp rises of the rental housing (‘choensei’) prices following the global financial crisis in 2007, the housing stability of low-income households has consistently deteriorated. At the same time, the supply of public rental housing has consistently decreased, so the analysis shows that the public rental housing policy has not played the expected roles in the rental housing markets. The paper points out that the existing housing policy had a limitation that it was not diversified enough so as to individually target and connect among the various housing groups effectively. Against this backdrop, the new ‘Bogeumjari’ housing policy introduced in 2009 has acknowledged the role of the public sector in the public rental housing market, and reinforced and diversified the links between the existing and the new public housings. However, the Bogeumjari policy is not effective enough in supplying the public rental housing appropriately due to the lack of the strategies that vary depending on various groups and income-levels. In Japan, on the other hand, the private rental housing market faces the problems of uncomfortably narrow housing and restricted rentals for disadvantaged households. To address these problems, the Japanese government adopts the public rental housing policy that provides a housing safety net and regulates the private rental housing markets. They enforce various strategies to provide the housing safety net, such as reinforcing a fair and accurate housing supply for low-income households, providing financial supports to aid residents and improve the quality of rental houses, and promoting flexible modifications in the existing use of unoccupied rental houses, thereby ensuring that the rental housing policy can achieve its goals. Based on these analyses, the present study shows that it is necessary to diversify the policy strategies for the successful application of the public rental housing policy.

주택정책 환경성 제고를 위한 국토-환경계획 연계방안

이상범,박지현,이영재,최현진 한국환경정책평가연구원 2020 기본연구보고서 Vol.2020 No.-

본 연구의 목적은 주거 안정을 위하여 추진되는 주택정책 중 주택공급정책, 특히 대규모 주택 공급을 위한 도시개발사업의 계획 수립의 환경성 제고를 위한 국토-환경계획 연계방안과 관련 제도 개선방안 제시이다. 수도권을 중심으로 공공주택 공급을 위하여 지난 20년여년간 국가정책으로 추진되었던 대규모 개발제한구역 해제를 통한 도시개발사업은 주거 안정 측면에서는 소기의 목적을 달성한 것으로 평가되고 있으나, 지속가능한 국토관리와 환경보전 측면에서는 개발제한구역 환상형 축 단절, 법정보호종 서식지 감소 등 환경훼손, 연접개발로 인한 도시연담화 등 다양한 문제를 유발하였다. 인구 증가와 주택 수요 산정 등을 토대로 한 주택정책 수립은 해당 정책 수립을 담당하는 관계 정부부처 고유의 권한으로 이는 본 연구의 범위에 해당하지 않는다. 하지만 대규모 공공주택 도시개발사업 시행을 위한 개발제한구역 해제 지역 선정 및 해제 규모 산정 등은 지역환경보전과 지속가능한 국토관리 측면에서 환경과 밀접한 관련이 있으므로 국토-환경계획 연계를 통한 환경성 제고가 필요하다. 특히 현행 개발제한구역 해제 기준이 산림보전에 초점을 맞추고 있어 농경지를 포함한 개활지(open space)의 중요성이 적절하게 고려되지 못하는 문제가 있다. 미국과 독일 등 본 연구에서 살펴본 해외 사례는 개활지 보전 정책을 정부 차원에서 강력한 제도를 도입하여 추진하고 있는바, 국내에서도 대도시 주변 지역의 생태계 서식지 및 경관 다양성 보전 측면에서도 개활지 보전 정책을 수립할 필요가 있다. 또한 개발제한구역의 효시인 영국 런던시의 경우에도 개발제한구역에서의 개발압력이 높아짐에 따라 개발제한구역의 지속가능한 관리를 위한 정책을 도입하고 있다. 본 연구에서는 최근 10여 년간 국가정책으로 추진해 온 공공주택 보급 정책인 보금자리주택, 기업형임대주택, 공공주택지구 사업 등을 대상으로 개별 개발사업의 입지 선정, 토지이용계획 수립 등과 같은 개발계획 수립 단계에서 나타난 환경 측면에서의 문제점을 한국환경정책·평가연구원의 환경영향평가 검토의견을 토대로 분석·제시하였으며, 일부 개별 개발사업에 대하여 사례 분석을 함께 진행하였다. 보금자리주택-기업형임대주택-공공주택지구 순서로 대규모 공공주택 개발사업이 진행됨에 따라 초기는 환경 저감방안 관련 검토의견이 주로 제시되었고 이후로 갈수록 계획 적정성, 입지 및 토지이용계획 재검토 등 개발계획자체의 문제를 지적하는 검토의견이 증가하는 것으로 확인되었다. 특히 시간이 지남에 따라 보금자리주택지구, 기업형임대주택지구 및 공공주택지구가 연접하여 계획되는 문제도 크게 증가하는 것으로 나타났다. 이러한 공공주택 공급을 위한 대규모 도시개발사업의 계획 및 입지 선정과 관련된 문제가 증가하는 것은 환경적으로 민감하지 않은 개발제한구역 해제가능지역이 소진됨에 따라 환경적으로 민감한 지역에 공공주택지구가 계획되고 있으며 앞으로는 과거와 같은 개발이 용이한 개발제한구역 해제를 통한 대규모 공공주택 공급정책이 지속되기 어렵다는 사실을 보여 준다. 수도권에서의 개발제한구역 해제를 통한 공공주택 공급정책과는 달리 비수도권에서는 지역수요-공급에 기반하지 않은 공공주택 공급계획이 수립되는 문제점이 확인되었다. 포항시 등 주택공급을 위한 민간도시개발사업이 활발한 지역에 공공주택지구가 계획되지 않거나, 과거 민간도시개발사업이 전혀 없던 지역에 공공주택지구가 지정되는 등 지역특성을 고려하지 않은 주택공급정책이 수립되는 문제가 나타나고 있다. 본 연구에서는 보금자리주택-기업형임대주택-공공주택지구 순서의 사례 분석을 통하여 과거 주택공급정책이 안고 있는 문제점을 분석하는 한편 이를 해소하기 위한 국토계획과 환경보전 측면에서의 개선방안을 제안하였다. 국토계획 측면에서는 국외 사례와 기존 공공주택 개발사업의 사례 분석을 통하여 확인한바와 같이 앞으로는 개발가용지 소진과 인구 감소 등 사회 여건 변화를 감안하여 개발제한구역 등 미개발지에서의 신규 개발을 통한 주택공급정책은 지양하고 도심재생 등 구도심 활성화를 도모하는 주택정책을 수립하여야 할 것이다. 이와 함께 불가피하게 필요한 미개발지에서의 공공주택 공급을 위한 도시개발사업의 계획 수립에 환경부 등 관계부처와 환경전문가가 초기 단계에서부터 참여하여 지역환경 현황을 고려한 입지 선정과 토지이용계획을 수립할 수 있도록 관련 제도를 정비하여야 할 것이다. 환경보전 측면에서는 공공주택 개발계획 수립 과정과 환경영향평가 과정이 더욱 긴밀하게 연계되어 계획 수립 과정에서 논의되었던 환경 측면에서의 문제점과 환경영향을 환경영향평가 단계에서 확인하고 이와 관련된 저감방안을 구체적으로 수립할 수 있도록 관련 제도를 정비하여야 한다. 아울러 「도시계획의 환경성 제고를 위한 가이드라인」 등 관련 가이드라인을 최근 도시개발사업에서 나타나는 문제점을 토대로 개정할 필요가 있다. 본 연구는 국가정책으로 추진되었던 대규모 공공주택 개발사업의 계획 수립과 환경영향평가 과정에서 나타났던 각종 문제점을 정리하여 이를 토대로 향후 주거 안정을 위한 주택공급정책 수립에서 환경성을 제고하기 위한 국토-환경계획 연계방안을 제시하였다는 점에서 의미가 있다. 향후 본 연구와 연관된 후속연구를 통하여 일조장해 저감 등 도심재생을 통한 주택 공급에서의 환경성 제고방안과 자연환경총량제도 등 지역환경용량을 고려한 주택정책 수립 등에 관한 제도화 방안을 마련하여야 할 것이다. The purpose of this research is to suggest measures to link national land use planning and environmental planning as well as improvement measures for other relevant systems to enhance the environmental aspects of housing supply policy among housing policies promoted for housing stability, especially the planning of urban development projects for large-scale housing supply. While the urban development project promoted by the large-scale release of the Development Restriction Zones(Green belt), which has been pushed forward by the national policy for over 20 years to supply public housing in the metropolitan area, is evaluated to have achieved the intended purpose in terms of housing stability, various problems were caused, in terms of sustainable land management and environmental preservation such as environmental damage including the disconnection of the annular axis in the development-restricted area, the reduction of the endangered species habitats, and serious conurbation due to the combined developments. Establishing housing policy based on population growth, calculations of housing demand, etc., is the unique authority of the relevant government departments in charge of establishing the policy, and this is not within the scope of this study. However, since determining areas to remove from the Development Restriction Zones and the scale of the removal is closely related to the environment in terms of the conservation of the local environment and sustainable land management, it is necessary to take environmental impact into account by linking land use planning and environmental planning. In particular, there is a problem that the importance of open space, including agricultural land, is not properly considered because the current standards on the removal of the Development Restriction Zones focus on forest conservation. In overseas cases examined in this study including the United States and Germany, policies for the conservation of open space are being promoted through the strong implementation of the system at the government level. In Korea as well, there is a need to adopt policies for the conservation of open areas in the aspect of preserving ecological habitats and landscape diversity in areas around large cities in Korea. In addition, in the case of the London City, a pioneer in establishing the Development Restriction Zones, a policy for the sustainable management of the Development Restriction Zones is being introduced as development pressure in hese zones increases. In this study, targeting the projects of the Nest(Bogeumjari) Housing, Enterprise-type Rental Housing, and Public Housing District, which have been promoted by the national policy for the past 10 years, problems in the aspect of the environment which occurred in the planning stage such as the site selection and land use planning of independent development projects were analyzed and presented based on the opinions stated in the Environmental Impact Assessment Review by the Korea Environmental Institute, and case analyses on some of those projects were conducted together. As these large-scale public housing development projects proceeded in the order of Nest(Bogeumjari) Housing, Enterprise-type Rental Housing, and the Public Housing District development, it was confirmed that the review opinions were mainly focused on the measures to reduce environmental impacts at the beginning; however, the opinions pointing out the problems inherent in the project, such as the appropriateness of the plan, project site, and land use plans increased with the promotion of the national housing policy. In particular, the problems caused by the planning of combined developments of the Nest (Bogeumjari) Housing, the Enterprise-type Rental Housing, and the Public Housing District were becoming serious. Increasing problems related to the planning and district selection of large-scale urban development projects for supplying public housing show that public housing districts are being planned in environmentally sensitive areas as areas that can be released from the Development Restriction Zones that are not environmentally sensitive are exhausted; at the same time, this also indicates that from this point onwards, maintaining the large-scale public housing policy by releasing the Development Restriction Zones which allows easy development as in the past will be difficult. Unlike the policy to supply public housing by releasing the Development Restriction Zones in the capital area, the problem in non-capital areas was that the plans for supplying public housing were not based on local supply and demand. It has been found that housing policies which do not take regional circumstances into account are being developed; for example, public housing districts are not planned out in regions such as the Pohang City where the private-initiated urban development projects for housing are actively promoted, or, they are planned in areas where no such development projects have been promoted in the past. In this study, based on the case analyses in the order of the Nest(Bogeumjari) Housing, Enterprise-type Rental Housing, and Public Housing District, we analyzed the problems of the past housing supply policies and suggested improvement measures in the aspects of sustainable national land use planning and environmental conservation. In terms of the national land use planning, as confirmed by the analyses of overseas cases and existing public housing development projects, the housing policy to supply housing through new development in undeveloped areas such as the Development Restriction Zones should be avoided in consideration of changes in social conditions such as the exhaustion of available land and decrease in population, and the new housing policy should be established to revitalize the old city center such as for urban regeneration. In addition, related legal systems will need to be revised to ensure that related ministries including the Ministry of Environment and environmental experts participate in the planning of urban development projects for the supply of public housing in undeveloped areas, so that they can take part in selecting project sites and establishing land use plans taking the local environment into consideration. In terms of the environmental preservation, related legal and adminstration systems must be reorganized so that the public housing development plan establishment process and the environmental impact assessment process can become more closely linked. Based on this linkage, environmental problems and environmental impacts discussed in the planning process should be identified at the environmental impact assessment stage, and related reduction measures should be specifically identified. Related guidelines such as “Guidelines for Enhancing the Environmental Aspects of Urban Planning” will need to be revised based on the problems encountered in the recent urban development projects. This study summarizes various problems arising from the planning and environmental impact assessment of large-scale public housing development projects that were promoted by the national policy, and is meaningful in that it suggested the linkage of national land use planning and environmental planning to improve the environmental quality in the establishment of housing supply policies for future housing stability. In the future, based on follow-up research related to this study, it is necessary to develop measures to improve the environmental quality through urban regeneration in housing supply, such as a measure to avoid infringement of the right to ancient lights, as well as institutional measures on the establishment of housing policy that takes the environmental capacity of the region into account.

공익사업의 변경 또는 중복 추진에 따른 공법적 문제 - 보금자리주택사업을 중심으로 -

허강무 경북대학교 법학연구원 2013 법학논고 Vol.0 No.42

For purposes of the Bogeumjari Housing Project, the government has lifted off restrictions on certain development restricted areas that have a lower level necessity for preservation. During this process, due to the simultaneous implementation of government projects for the expansion of infrastructure facilities such as the development of metropolitan urban expressways within Bogeumjari Housing project areas or the rising issue of excessive housing supply along with the recent real estate market recession, areas that were initially designated as Bogeumjari Housing project areas have unavoidably become subject to modification into other public works such as the development of industrial complexes. However, pursuant to the current Land Compensation Act, where overlapping public work projects which accompany the change to specific use areas are designated with slightly different implementation periods or existing Bogeumjari Housing project areas are changed into different public work projects, the compensation standard for the preceding project and the succeeding project is different if the subject area is assigned to both the initially designated public work project and the later designated public work project or if the initially designated public work project is cancelled and the same subject area is then designated to a different public work project. As a result, complaints from land owners are anticipated resulting from the lack of fairness in the compensation amount and, in cases where overlapping public work projects are designated, it is highly probable that such public work projects will not be smoothly carried out as it is highly likely that project operators will be demanded to grant a level of compensation that is advantageous to land owners. The current Article 23 of the Enforcement Regulations of the Act on the Acquisition of Land, etc. for Public Works and the Compensation Therefor is used as a method to eliminate the unearned income of land owners, which is considered as private interests, in achieving the public interest purpose that exclude the gain of any development benefits that arise out of coincidental administrative actions. However, the current Act on the Acquisition of Land, etc. for Public Works and the Compensation Therefor is an incomplete framework that needs to rely on legal interpretation due to defective legislation on the compensation standards for lands subject to public work projects accompanied by certain changes to restrictions in the method of construction that have not been compensated for the current project and has been repealed or cancelled, in whole or in part, and has been subsequently designated to other public work projects. Therefore, a reasonable and improvements to the system that can clarify and give shape to the legislation is demanded. Thus, to enhance the level of fairness regarding compensation and also to effectively carry out the budget and smoothly carry out public work projects, a rational compensation standard must be legislated in detail for subject lands that are accompanied by changes to certain restrictions to the method of construction such as specific use areas and have been simultaneously designated to multiple public work projects or designated to a different public work project. 정부는 보금자리주택건설 목적으로 일부 보전필요성이 낮은 개발제한구역을 해제하여 공익사업을 추진하였다. 이 과정에서 광역도시고속도로 등 사회간접자본시설의 확충을 위한 사업 등이 보금자리주택사업지구 내에서 동시에 추진되거나 최근 부동산 경기침체와 함께 주택공급 과잉현상이 대두되면서 먼저 지정된 보금자리주택사업을 산업단지 등 다른 공익사업으로 변경해야하는 불가피한 상황이 발생하고 있다. 그런데 용도지역 등의 변경을 수반하는 공익사업이 서로 시차를 달리하여 중복하여 지정되거나 다른 공익사업으로 변경되는 경우에는 현행 토지보상법령에 따르면 먼저 지정된 공익사업이 나중에 지정된 공익사업에 중복하여 편입되거나 먼저 지정된 공익사업이 취소되고 동일 토지에 대하여 또 다른 공익사업이 지정된 경우에 선행사업과 후행사업의 보상기준이 상이하다. 이로 인하여 보상가 형평성 결여에 따른 토지소유자의 민원이 예상될 뿐 아니라, 공익사업이 중복 지정된 때에는 토지소유자에게 유리하게 사업시행자가 보상하여 줄 것을 요구할 가능성이 높아 공익사업의 원활한 추진에 큰 어려움이 발생할 개연성이 높은 상황이다. 현행 「공익사업을 위한 토지 등의 취득 및 보상에 관한 법률 시행규칙」 제23조는 우연한 행정행위로 인해 발생한 개발이익을 배제하기 위한 공익목적 달성을 위해 사익인 토지소유자의 불로소득 제거하고자 하는 수단이다. 그러나 현행 「공익사업을 위한 토지 등의 취득 및 보상에 관한 법률」 등은 공법상 제한사항의 변경이 수반되는 공익사업으로서 당해 사업을 위한 보상이 착수되지 아니하고 당해 사업의 일부 또는 전부가 폐지 또는 취소된 후 연속하여 다른 공익사업으로 변경된 토지에 대한 보상기준에 대한 입법 불비(不備)로 법해석에 의존해야 하는 불완전 구조이다. 따라서 보상의 형평성을 제고함과 동시에 예산집행의 효율과 공익사업의 원활한 추진을 위해 용도지역 등 공법상 제한사항의 변경을 수반하는 토지에 대하여 중복 지정되거나 변경 지정된 공익사업을 위한 합리적인 보상기준이 구체적으로 입법화되어야 할 것이다.