Korean Public Rental Housing for Low-income Households: Main Outcome and Limitations

Jin, Mee-Youn,Lee, Seok-Je Land and Housing Institute 2013 토지주택연구 Vol.4 No.4

This paper examines the achievements and limitations of housing assistance programs for low-income households. Korean public rental housing has been rapidly developing since 2000, and thereby achieved an increase in public rental housing stock, housing quality improvements, and the reduction of rent over-burden for low-income tenants. Despite some conflicting evidence, it appears that the provision of newly-built public rental housing has helped stabilize the prices of neighboring private rental housing units. But, as we are entering an era of one million long-term public rental housing units, we need to shift our focus from quantity-oriented provision to housing maintenance for tenants, and from cost-based rental housing to affordable rental housing and better access to rental housing for low-income tenants who are not beneficiaries of government assistance. Most of all, it is very important for local governments and the private sector to actively participate in the provision of public rental housing in order to ensure a stable rental housing market.

An Empirical Study on the Housing Affordability of Multi-Family Dwellers

Jin, Mee-Youn,Yoon, Bok-Cha The Korean Housing Association 1999 한국주거학회 논문집 Vol.10 No.3

The purpose of this study is to investigate the housing affordability of multi-family dwelling in Seoul and to systemize the housing expenditure patterns and housing affordability according to household and housing characteristics. Housing expenditures are basically composed of the payments of four major items. including utilities. home alteration and interior furnishing. home mortgage debt. and monthly rent. Housing affordability index as operationally defined in this study is Housing Expenditure-to-Income Ratio (HEIR). The ratios were computed for each of the four housing expenditure items. Data for 465 multi-family dwellers were gathered from the structured questionnaire. The results showed the differences between household and housing characteristics on housing expenditure levels and HEIR. In addition. this differences had influence on future housing choice behavior. The analysis on the variables of housing choice behavior showed the result that user cost considering capital gains were less important. comparing those of early 1990's.

Reasons for South Korea's Low Homeownership Compared to the Housing Supply

Mee-youn Jin 한국주택학회 2008 주택연구 Vol.16 No.4

본 논문은 한국의 자가점유에 대한 descriptive analysis로 전체적인 주택정책 시스템과 주택시장 여건 속에서 자가점유 정책이 추진된 결과를 평가하고자 한다. 한국은 1960년대 이후 자가점유를 주택정책의 주요 목표로 추진하면서 연평균 30만호 이상의 신규 주택공급을 지속해 오고 있으나, 자가점유율은 1975년 63.5%에서 2005년 55.6%로 오히려 하락하는 결과를 낳았다. 자가점유율 정체 및 하락 원인을 분석한 결과, 주택 구매력 지원을 위한 모게지와 같은 주택금융 기능이 2004년까지 부재하였다는 점, 투기 수요 억제로 LTV 및 DTI 규제가 시행되고 있다는 점, 주택조세는 일반인의 자가 구입을 지원하기 보다 다중주택 보유자 및 고가 주택보유자에 대한 규제 강화로 이루어지고 있다는 점, 그리고 한국의 독특한 차가점유형태로 전세 방식이 100여년 이상 자리잡아 오면서 일부 전세 폭등 등의 사태도 자아내고 있기는 하지만 자가의 60-70% 수준의 가격으로 자가 못지 않은 양질의 주거생활을 가능하게 하고 있다는 점을 들 수 있다. 결과적으로 비교론적 관점에서 볼때 한국의 자가점유는 아파트 건설지향적 주택정책 모형 속에서 추진된 양적 공급의 대표 정책 사례로 규정할 수 있으며, 이러한 양적 공급의 결과는 1998년 이후 각종 규제완화의 여파로 투기 수요 양산, 주택자산의 양극화라는 부작용을 낳았다. 향후 필요계층을 위한 내집마련 지원을 위해서는 모게지 제도의 확대 공급, 민간 금융시장의 주택대출신용보증 강화, 그리고 관행적인 정부의 시장개입은 최소화하면서 1가구 1주택 보유자에게는 지금보다 더 많은 혜택을 주고, 3주택 이상의 다중 주택보유자 및 고가 주택 보유자에 대해서는 지금의 보유세 기준 보다 더 강화함으로써 왜곡된 주택자산 분배 구조를 점차 개선해 나가야 할 것이다. This paper is descriptive analysis about Korea Home ownership. It is designed to evaluate why they have low homeownership despite of continuous house building during last four decades. Korea Government has been focused on the expansion of home ownership. But homeownership rate is 55.6% in 2007. It can be defined stagnated or decreased situation. The result of its cause why it is occur is following 4 reasons. First is the lack of housing finance system like as mortgages. Second is the enforcement of regulation for restraints of speculation by falling Loan to Value ratio and Debt to Income ratio. Third is tax system is not focused for common people's home ownership support, it is mainly targeted on owner having over 2 housing and owner having high price housing for tax equality. And four is the usefulness of Jonsei as peculiar rent tenure type has been existed in only South Korea. In comparative perspective, Korea housing policy model can be called the mass construction model. Also it is clearly supply side oriented policy. This policy has contributed expansion of housing stock during the last years but its result was yielded a few side effects. It was bring about the distortion of distribution, increase of speculation, and polarization of housing wealth. In the future for elevating homeownership in South Korea, it needs to vitalize of housing mortgage system, improvement of skewed distributive structures, the property tax relief for low-income households minimizing conventional government intervention. Most of all, it need to transform into demand-side oriented housing policy.

수도권 주택시장의 수급불균형 특성 분석

진미윤(Jin Mee-Youn),허재완(Hur Jae-Wan) 대한국토·도시계획학회 2009 국토계획 Vol.44 No.7

This paper examines the levels and causes of demand/supply mismatches in the Capital Region's housing markets. The analysis done using 79 autonomous local governments' population, households, housing stock, housing price, and transaction volumes data found that chonsei rate per 303m2, fluctuations in chonsei/sales prices, and non-homeownership rate were the main causes behind mismatches. Based on this result, it was further revealed that the Capital Region lacked 287,263 housing units in 2007 and that it can be divided into 5 different housing demand management zones depending on degrees of housing stock deficits. The result also shows that supply of more houses should be the primary policy objective ensuring sufficient support for would-be owner occupants. And, recognizing that systematic production of accurate statistics serve as the sound foundation for monitoring of housing demands and supplies, the government-led effort should be made to advance housing statistics. This kind of analysis deepens understanding of the housing market and is a useful framework not only for identifying such mismatches but also for searching policy solutions at interregional levels. Further examination on elaboration of analysis model and empirical analysis for other housing sub-markets are needed.

국민임대주택 입주자의 소득파악 실태와 향후 개선 방향

진미윤(Mee-Youn Jin) 한국주택학회 2012 주택연구 Vol.20 No.3

본 연구는 국민임대주택의 정책 성과 및 집행 과정상의 운영 성과 제고 측면에서 국민임대주택 입주자의 소득 파악의 실태를 분석하고 현재 미비점을 개선하는 정책 방향을 제안하는 것이다. 분석에 활용된 자료는 2008년까지 국민임대주택 입주가 완료된 단지를 대상으로 한 입주자 2,000가구(유효표본수 1,763가구)와 국민임대주택 단지 실무자(전국 317개 단지 중 설문 회수된 276개 단지 사례)에 대하여 2009년 11월에서 12월간 설문 조사한 자료이다. 조사 결과, 현재 소득 파악의 문제점은 주로 제도적 불비에서 비롯된 것이 많은 것으로 나타나, 법ㆍ제도적 보완 및 사업주체의 입주자 관리 부분을 강화할 경우 현재 소득 파악의 난제들이 어느 정도 개선될 수 있을 것으로 보인다. 구체적 개선 사항으로는 첫째, 국가적 차원에서 향후 복지수요 대응을 위해 저소득층의 소득파악을 위한 소득신고 체계화 및 요식화가 필요하다. 둘째, 소득 파악의 원천이 입주자의 ‘신고’에 의존한다는 점에서 성실한 소득 보고와 신고 책임에 대한 부분이 강화되어야 하며 필요시 전략적 소득조사를 시행하는 방안이 필요하다. 셋째, 소득에 대한 제반 기준들(예를 들면 소득 유형, 세전 및 세후 소득 기준, 근로형태별적용 기준 등)이 마련되어야 한다. 넷째, 입주자 소득 정보에 대하여 사업주체의 정보화 및 이에 대한 관리 책임을 법제화할 필요가 있으며, 소득 증빙 서류 보완 및 확인 방법 개선을 위한 노력이 필요하다. 단기적으로는 유관기관 및 정부의 사회복지통합관리망의 협조를 통해 국민임대주택 입주자의 소득 파악 방법 개선이 필요하지만, 국민임대주택 입주 증가 추세를 감안할 때 중장기적으로 국민임대주택에 특화된 입주자 운영관리 행정 시스템이 정부 및 사업주체 측면에서 필요할 것으로 보인다. The purpose of this study is to analyze the current condition of income verification for national public rental housing tenants and to propose policy improvement measures, with an aim to improve national public rental housing policy and policy implementation performance. The data used for this analysis was questionnaires answered by tenants who moved into national public rental housing by 2008 and working-level personnel who are in charge of managing national rental housing complexes. To better identify the income status of national public rental housing tenants, the following four measures are required to be taken: Firstly, clauses regarding the income verification of national public housing tenants should be added to Rental Housing Act in order to ensure accurate income verification and to enhance the reliability of the data. Secondly, given that the source of income verification depends on the “self-report” of the tenants, the tenants’ responsibility for faithful tax report should be strengthened. Thirdly, various criteria(type of income, pre-tax and after-tax income standards, standards by labor type, and so on) should be established. And lastly, laws that requires project owners to establish their tenants’ income database and to take responsibility for the data management should be enacted and there should be efforts to upgrade documentary income evidence and verification methods.

개편 주거급여 제도의 특징과 개선과제

진미윤(Mee Youn Jin) 한국주택학회 2017 주택연구 Vol.25 No.1

The purpose of this study is to examine the transforming characteristics of the housing benefit system that was revised with the introduction of customized benefit system and to investigate the revised housing benefit s changed effect and limitations over the past one year. The revised housing benefit system has redesigned for expanding the coverage of beneficiaries eligibility criteria, alleviating rent overburden and improving their housing quality. Though increasing the number of recipients over the past year, the number of recipients receiving housing benefit (800,000 households) falls short of the government target of 970,000 households. One of the main purposes of the revision was to reduce the blind spot of National Basic Livelihood Security System, but these transformation has done little to achieve that goal. Housing poverty is another problem to be solved. Although the revised housing benefit system has helped alleviate rent overburden for recipients to some extent, about half of the housing benefit recipients are still suffering the pressure of rent burden. Poor housing conditions did not also be improved. Limitations such as rent-free recipients, rent verification, and in-kind support revealed in the implementation. To resolve these issues, central government need to simplify the current housing benefit system, define affordable rent burden criteria, improve housing quality and institutional imperfections. In addition, local government and LH as authorized housing inspector involved in the delivery of housing benefit services should actively cooperate and communicate with one another for not only conducting housing investigation, but also assisting housing benefit recipients out of housing poverty and help them move up the housing ladder.

주택 스트레스의 측정과 진단

진미윤(Jin, Mee-Youn) SH도시연구원 2012 주택도시연구 Vol.2 No.2

This theses aims to analyse the housing related problems that the lower income bracket is facing in our current society through the application of the concept of housing stress. There are limitations in defining housing stress based purely on the unmet state of the minimum housing standards as well as the overcharge of rent. Information ascertained through these two standards can serve useful in deciding the priority between various housing problems of the lower income bracket through housing stress. The following three plans are presented through the measurement and diagnosis of housing stress. Firstly, ways in which housing with cheaper rent can be distributed for the improvement of accessibility of the lower income group to the housing market are necessary, as well as the supply of public lease housing with minimum rent standards similar to that of permanent lease housing. Secondly, the support of housing under the minimum housing standards that are not in the state of rent overcharge needs to be considered as subjects with priority to the policy. Thirdly, thought needs to be given to what a cheap, or affordable housing is, and how its distribution should be expanded. The expansion of the existing housing purchase-rental business or assembly housing could be an alternative. The purchasing target in the purchase-rental business also needs to be expanded to not only housing, but also non-dwelling as well as nonresidential.

미국 주택바우처 제도의 역사적 경험과 정책적 함의

진미윤(Mee-Youn Jin),박재순(Jae-Soon Park) 한국주택학회 2009 주택연구 Vol.17 No.4

본 연구의 목적은 미국 주택바우처 제도의 역사적 전개과정과 정책적 시사점을 규명하는 것이다. 이는 현재 국내에서 도입 준비 중인 주택바우처 제도가 미국을 벤치마킹하고 있다는 점에서 도입시 무엇을 고려해야 할 것인지에 대한 유의미한 정보를 제공해 줄 수 있다. 1970년 EHAP(Experimental Housing Assiatance Program)을 거쳐 1974년 본격화된 발주택바우처에 대한 정책적 평가는 상당히 긍정적이다. 이는 저소득층의 주거비부담 완화, 빈곤 집중 완화, 주거선택과 이동성 강화, 그리고 무엇보다 신규 건설에 따른정부의 재정적 부담을 줄이는 비용효과적이라는 점에서 그러하다. 그러나 임대료 상승에 따라 지역별 공정임대료 기준하에서 양질의 주택을 찾기 어려워 주택바우처 지원대상자가 되더라도 실제 지원을 받는 확률이 점차 낮아지고 있다는 점, 재정 과부하, 수급권이 아닌 재정 할당방식 적용에 따른 많은 대기자 양산, 비효율적인 행정, 공공임대주택의 재고 증가없이 주택바우처에만 의존함에 따른 주거지원에 대한 need의 심각한 결 핍, 그에 따른 주거 지원의 사각지대 심화 등의 문제점이 지적되고 있다. 국내 주택바우처 제도는 미국의 역사적 경험과 실증 적용 결과를 토대로 지원기준의 구체화, 주택시장 파급효과, 적정 도입시기 등을 정해야 할 것이다. 무엇보다 공공임대주택과 주택바우처간의 policy mix를 어떻게 배합하여 실질적으로 민간 전월세에 거주하면서 임대료 과부담을 겪고 있는 저소득층의 주거안정에 도움을 줄 것인가에 관심이 중요하다 하겠다. This paper studies historical experiences and policy implications of the US Housing Choice Voucher Program as tenant-based housing subsidy. Korea plans to implement a similar program soon and this may provide some meaningful feedback. Begun in 1970 as EHAP(Experimental Housing Assistance Program), the voucher program has been judged very effective. It is cost-effective in many ways such as lower housing costs for low income households, easing concentration of poverty, enforcement of housing choice and movement, and most of all relieving the government's financial burden to build new homes. However, rising rent prices have made it more difficult for those in the voucher program to find quality housing. Other problems that have surfaced are long waiting lists, serious shortage of needs owing to sole dependence on housing vouchers for support without increase in supply ofpublic rental housing, and greater number of people left in the blind zone without support as a result of problems ensuing the voucher program. Korea should give further consideration to specific standards for supports, spin-off effects, proper timing for adoption, and policy mix between public rental housing and housing vouchers in order to bring greatest benefits to people actually in need.

프랑스 공공임대주택의 지속 성장의 기반과 최근 정책 딜레마

진미윤(Mee-Youn Jin),김경미(Kyeong-Mi Kim) 한국주택학회 2019 주택연구 Vol.27 No.3

본 논문은 프랑스의 일반형 공공공임대주택 모델에 대해 탐구이다. 일반형 모델은 대상 계층을 달리하고 정부 지원 조건과 수혜 정도를 차등화한 공급 유형(PLAI, PLUS, PLS), 누구든 공적 역할을 할 수 있도록 개방된 정부 지원 구조, 지역기반에서 다양한 지역 수요에 차별적으로 대응해 온 공급 생태계가 특징이다. 이와 더불어 저축 예금인 Livret A라는 재원을 활용한 CDC의 금융 순환 회로의 역할, 기업의 ‘1% 주택기금’ 재원의 활용, 견고하게 잘 짜여진 거버넌스 구조는 프랑스 공공임대주택이 지속적으로 성장할 수 있는 주요 토대라 할 수 있다. 무엇보다 시대와 정권의 변화에도 거의 변함없이 공공임대주택에 대한 공급 확대 기조를 이어오고 있다는 것은 프랑스의 국민, 기업, 정치의 합의 형성의 성과이자 핵심 저력이라고 할 수 있다. 최근 공공임대주택 지원의 효과성, 효율성, 배분의 형평성 측면에서 제기되고 문제들에 대해 프랑스 정부는 2009년부터 입주자격 기준 강화, 절차와 방식 개선, 주거권 보장 및취약계층 보호 강화, 지역 격차 해소 등으로 풀어나가고 있다. 그러나 점차 늘어나는 저소 득층 입주, 줄어드는 재정 지원, 공급자의 자체자금 부담 증가 등은 향후 일반형 모델의 지속가능성을 위협하고 공급 확대의 저해 요소가 될 소지가 있다. The purpose of this study is to examine the characteristics of the generalist social housing model in France, factors behind the continued growth of French social housing, and how current social housing issues are being addressed by the French government. The generalist social housing model is primarily characterized by three ways of supplying social housing, which differentiate target beneficiaries, the government support structure that does not limit the participants in social housing supply initiatives, and the supply ecosystem that provides various solutions to meet the diverse needs of each local community. The continued growth of social housing is attributed to funds raised through savings accounts based on social solidarity, which are then redistributed by CDC, the 1% employer s housing fund and the well-structured governance system. Above all, the French government’s continued expansion of social housing despite changes in time and administration is an achievement and power of the consensus reached by the people, businesses, and political leaders of France. In response to recent issues raised about the effectiveness, efficiency, and distributive equity of social housing sector, the French government came up with various solutions, such as strengthening the qualification standards for beneficiaries, streamlining processes and methods, strengthening the right to housing, increasing protection of vulnerable groups, and narrowing regional gaps. However, a growing number of low-income households, dwindling financial support, and increasing self-financing burdens imposed on suppliers may threaten the sustainability of the generalist model and hamper the expansion of social housing supply.

고시원의 공급ㆍ운영관리 실태와 향후 정책 방향

진미윤(Mee Youn Jin),최상희(Sang Hee Choi) 한국주택학회 2018 주택연구 Vol.26 No.3

본 논문은 고시원이 어떠한 성격의 공급재이며, 어떤 형태로 공급되고 운영관리되는지의 실태를 파악하였다. 고시원의 공급이 최근 증가하고 있음에도 그동안의 연구는 사회경제적으로 취약한 거주자적 특성에 초점을 두어 왔다. 본 논문은 이러한 연구 공백을 메움과 동시에 거주환경 개선을 공급 및 운영관리 측면에서 제시한 것에 의의가 있다. 고시원은 다의적 정의만큼이나 물리적 건물도 다양하며, 이런 한계는 현행 제도에도 여실히 드러나고 있다. 고시원 관련 규제는 최소한의 화재 안전 차원에서 점차 채광, 환기, 층간 바닥 기준, 내화 구조, 용도 규제, 불법 개조에 대한 행정 처분 강화 등으로 진전되고는 있지만 아직 불비한 점이 많다. 이에 본 논문은 느슨한 규제, 용이한 진입 구조, 부실한관리 감독, 조세 회피 등으로 늘어나는 고시원에 대해, 첫째, 고시원업의 등록 및 허가요건강화와 적정 거주요건 및 퇴출 시스템 마련, 둘째, 노후 고시원을 매입 혹은 임차하여 공적임대주택으로 활용, 셋째, 수요자 지원 강화를 위해 찾아가는 상담 및 공공임대주택 입주지원, 넷째, 고시원업 정상화를 위해 현금 영수증 발행, 정부의 전월세 자금 지원, 표준 입실계약서 마련을 제안하였다. 이러한 제안들은 규제를 강화해야 할 부분을 강화하되 우리사회에서 고시원이란 공간의 역할도 인정하여 지원도 병행하자는 관점이다. The purpose of study is to examine the characteristics of Gosi-won as non-residential dwellings, how they are supplied, and how well they are being managed from an institutional perspective. “Gosi-won” is a polysemantic word, meaning multiplex available premises, a multiple-living arrangement, a lodging facility, or a quasi-residential facility depending on the context. The physical characteristics of Gosi-won varies as well. It is difficult to ostensively define Gosi-won in a one word. The complexity of its definition is also reflected in the institutional regulatory framework for Gosi-won. Although regulations on Gosi-won are expanding to include fire safety components, building use, and administrative measures against illegal remodeling, it is still ambiguous. In order to solve the problem of recent increase in the number of inadequate Gosi-won, which is related to lax regulations, easiness to entry Gosi-won business, poor management and supervision, and tax avoidance, this study suggests four policy directions: strengthening registration and licensing requirements for Gosi-won businesses, and setting up decent living standards and regulations on the revocation of business license; buying or renting old Gosi-won buildings to use them as publicly-subsidized rental housing; providing potential Gosi-won users with assistance, such as counselling and helping them to apply for public housing; and supporting public loan for Gosi-won renters, and developing a standardized tenancy agreement form for Gosi-won. These recommendations are intended to reinforce regulations and recognize a important role of Gosi-won as low-cost alternatives in our society.