재개발·재건축사업의 단계별 정비사업비 변화 특성에 관한 연구 = A study on the characteristics of changes in project costs by stages in redevelopment and reconstruction projects

다국어 초록 (Multilingual Abstract)

「The Urban and Residential Environment Improvement Act」which was initially enacted on December 30, 2002, with the aim of contributing to the restoration of urban functions, improving the urban environment, and improving the quality of residential life, was revised on February 9, 2018, and has been in force since then.
In the process of pursuing redevelopment and reconstruction projects, total project costs ranging from tens to hundreds of billion won have been spent, comprising construction, design, demolition, supervision, financial, and compensation costs, as well as project consulting/management fees, various levies, public charges, and taxes, among others. The total project cost is an essential item that requires consent from association members at each stage of licensing and approval, including the association establishment, project
implementation planning, and management and disposal planning stages.
The case area analysis results of this study showed that: 1) the total project costs which were presented at the association establishment and authorization of project implementation stages, lacked specificity in comparison with the final management and disposal plan stage; 2) there were areas in which project costs increased up to 141% from the association establishment stage to the authorization of management and disposal stage (the stage right before the association members vacate the premises); and 3) the project was being pursued with a system that made it difficult for association members to understand specifically how the total project costs changed, which components of the project costs increased/decreased and by how much, and the reasons for the changes.
The association members, who are parties to the project, may have doubts about continuing the project with an unsystematic presentation of project cost increases. This may eventually lead to the cancellation of the authorization of project implementation in certain stages of the project, or a legal dispute that can render certain stages of the project invalid. Therefore, distrust and dissatisfaction may become further amplified in the process, and finally, the project may be further delayed. In the end, the damage from the ongoing
conflicts and project delays will inevitably be repeated in a vicious cycle of returning to the association members.
Therefore, unlike existing research which focuses on the total project costs from a single point in time, this study analyzed an actual area case based on a perception of these problems. It performed a statistical analysis on the stage-specific project cost changes including the association establishment, authorization for project implementation, and authorization of management and disposal stages. In addition, it conducted focus group interviews (FGI) and discussions (FGD) investigating perceptions of changes in project costs, including the objectivity and rationality of stage-specific project cost calculations Finally, it derived the following improvement measures.
First, the method of itemizing project costs by stage will have to be improved. The project cost items should be specified from the initial association establishment stage, and it should be required that these specific
project cost items be used in the subsequent authorization of project implementation and authorization of management and disposal stages.
Second, realistic project cost calculations considering the project period, should be made. Redevelopment and reconstruction projects can be started only after the demolition of existing buildings is completed. To this end, the project costs should be calculated considering the entire project period. In particular, construction costs are highly sensitive to inflation; therefore, the construction cost corrected by inflation should be reflected in consideration of the project schedule.
Third, it should be mandatory to state the reason(s) for the change in project costs, which will enhance understanding and improve levels of trust with association members.
Fourth, improvements to the system are needed, including the introduction of a project performance assessment system to enhance the competency of project consulting/management teams, which will make the project cost calculation process more professional and more accurate.
Fifth, the effectiveness and adequacy of the construction cost verification system should be secured. Considering that construction costs account for 70% of the total project costs, and amid growing doubts over the current Korean Appraisal Board's verification of construction costs, policy efforts will be needed to increase its effectiveness.
It is expected that, through this study, unnecessary disputes and social conflicts related to the changes in project costs during project progress may be prevented, so that redevelopment and reconstruction projects may help improve the poor living conditions and provide a smooth housing supply in downtown areas.

국문 초록 (Abstract)

「도시 및 주거환경정비법」은 도시기능의 회복과 도시환경을 개선하고 주거생활의 질을 높이는 데 이바지함을 목적으로 2002년 12월 30일 제정된 된 후, 최근 전부 개정된 「도시 및 주거환경정비법」이 2018년 2월 9일부터 시행되고 있다.
재개발·재건축사업 등을 추진하는 과정에서는 건축비, 설계비, 철거비, 정비사업전문관리비, 감리비, 금융비, 보상비, 각종 부담금, 제세공과금 등 수백억에서 수천억에 이르는 정비사업비가 투입되게 되고, 이러한 정비사업비는 조합설립단계, 사업시행 계획 수립, 관리처분계획 수립 등 개별 인·허가 단계마다 조합원으로부터 동의를 얻어야 하는 필수항목이다. 본 연구를 위한 사례구역 분석 결과 조합설립인가 단계와 사업시행계획인가 단계에서 정비사업비가 제시되기는 하나, 최종 관리처분계획단계와 비교해 볼 때 그 항목의 구체성이 결여되어 있었고, 조합설립인가 단계에서 이주 개시전 단계인 관리처분계획인가 단계까지 정비사업비가 최대 141% 상승한 구역이 있는 등, 사업의 당사자인 조합원 입장에서 정비사업비가 구체적으로 어떤 항목이 변화되었고 그 항목에서 얼마만큼 증 감이 있는지, 또한 그 변화 사유에 대하여 이해하기 어려운 체계로 사업이 추진되고 있는 실정이다.
사업 당사자인 조합원은 체계화되지 못한 정비사업비 제시와 증가에 따라 사업추진에 대한 의구심을 가지게 되고, 이는 결국 단계별 인 허가 처분에 대한 취소나 무효 형태의 법정 다툼으로 발전하여, 이러한 과정에서 불신과 불만은 더욱 증폭되고 사업 추진은 더욱 지연 될 것이다. 결국 계속되는 갈등과 사업지연에 대한 피해는 고스란히 조합원에게 다시 되돌아오는 악순환이 되풀이 될 수밖에 없을 것이다.
따라서 본 연구는 이러한 문제에 대한 인식을 기초로 하여 기존 연구가 관리처분 계획이라는 단일 시점의 정비사업비에 관한 연구가 이루어 진 것과는 달리, 조합설립인가, 사업시행계획인가, 관리처분계획인가 등 사업단계별 정비사업비 변화에 대하여 실제 구역의 사례를 분석하고 통계분석을 실시하였으며, 또한 전문가 그룹 인터뷰(FGI)와 전문가 그룹 토론(FGD)를 실시하여, 단계별 정비사업비 산출의 객관성과 합리성 등 정비사업비 변화에 따른 인식을 조사하고, 다음과 같은 개선방안을 도출하였다.
첫째, 단계별 정비사업비 항목 표기 방식이 개선되어야 할 것이다. 최초 조합설립인가 단계부터 정비사업비 항목을 구체화하고, 이러한 정비사업비 항목을 후행 사업시행계획인가와 관리처분계획인가 단계에서 사용토록 의무화 하여야 할 것이다.
둘째, 사업기간을 고려한 현실적인 정비사업비 산정이 이루어져야 할 것이다. 재개발 재건축사업은 기존 건축물의 철거가 완료되어야 공사착공이 가능한 사업으로, 이를 위하여 전체적인 사업기간을 함께 고려한 정비사업비가 산정되어야 하고, 특히 건축시설 공사비의 경우 물가상승에 가장 민감하게 변화되는 비용이므로, 사업일정을 고려하여 물가상승 등으로 보정된 공사비가 반영되어야 할 것이다.
셋째, 정비사업비가 변화된 사유에 대한 기재를 의무화 하여, 조합원의 정비사업비 변화에 대한 이해와 신뢰를 한층 높여야 할 것이다.
넷째, 정비사업전문관리업자의 업무능력 강화를 위한 사업수행능력평가 제도를 도입하는 등 제도개선이 필요하며, 이로인해 정비사업비 산출과정이 보다 전문적이고, 정확성이 제고될 것이다.
다섯째, 공사비 검증제도에 대한 실효성 제고 및 적정성이 확보되어야 할 것이다. 전체 정비사업비 중 공사비가 차지하는 비중이 70% 내외임을 감안하여 볼 때, 현행 한국감정원의 공사비 검증에 대한 의구심이 높아지는 가운데, 실효성을 높이기 위한 정책노력이 필요할 것이다.
본 연구를 통하여 사업진행과정에서 정비사업비 변화와 관련한 불필요한 분쟁이나 사회적 갈등을 미연에 방지하여, 재개발 재건축사업을 통한 도심지내 열악한 주거환경 개선과 원활한 주택공급이 원활히 이루어 질 것으로 기대한다.

목차 (Table of Contents)

• 제1장 서론 ···································································································· 1
• 제1절 연구의 배경 및 목적 ························································································ 1
• 1. 연구의 배경 ········································································································ 1
• 2. 연구의 목적 ········································································································ 2
• 제2절 연구의 범위 및 방법 ························································································ 3
• 1. 연구의 범위 ········································································································ 4
• 2. 연구의 방법 ········································································································ 4
• 제3절 연구의 구성 ······································································································ 5
• 제2장 재개발·재건축사업 및 정비사업비에 대한 이론적 고찰 ·················· 8
• 제1절 재개발·재건축사업 ··························································································· 8
• 1. 사업의 개요 및 구분 ·························································································· 8
• 2. 사업의 추진절차 및 단계별 주요 업무 ··························································· 11
• 3. 사업의 추진효과 ······························································································· 16
• 제2절 재개발 재건축사업 관련 정책 ······································································· 19
• 1. 재개발 재건축사업의 투명성 강화 정책 ·························································· 19
• 2. 소규모주택 정비사업의 활성화 정책 ······························································· 21
• 제3절 재개발 재건축사업의 정비사업비 ·································································· 25
• 1. 개념 ··················································································································· 25
• 2. 구성항목 ············································································································ 26
• 3. 투입구조 ············································································································ 29
• 4. 비용분담 ············································································································ 30
• 5. 정비사업비와 매몰비용의 구분 ········································································ 31
• 제4절 선행연구 고찰 ································································································· 33
• 1. 정비사업비 관련 선행연구 ··············································································· 33
• 2. 재개발 재건축사업의 갈등 관련 선행연구 ······················································ 36
• 3. 재개발 재건축사업의 수익성 관련 선행연구 ·················································· 37
• 4. 선행연구와의 차별성 ························································································ 39
• 제3장 재개발 재건축사업의 추진현황 및 정비사업비 변화 사례 분석 ··· 40
• 제1절 재개발 재건축사업의 추진현황 ····································································· 40
• 1. 재개발사업 추진현황 ························································································ 40
• 2. 재건축사업 추진현황 ························································································ 43
• 제2절 정비사업비 변화 분석 사례구역의 현황 ······················································· 45
• 1. 분석 구역의 사업개요 ······················································································ 45
• 2. 분석 구역의 사업추진 시기 ············································································· 46
• 제3절 정비사업비 변화 분석 ···················································································· 49
• 1. 분석 구역의 단계별 정비사업비 구성항목 및 규모 분석 ······························· 49
• 2. 분석 구역의 단계별 정비사업비 변화 분석 ···················································· 56
• 3. 분석결과 및 시사점 ·························································································· 58
• 제4장 정비사업비 변화에 관한 실증분석 및 전문가 인식분석 ················ 61
• 제1절 실증분석의 개요 ····························································································· 61
• 1. 실증분석의 목적 ······························································································· 61
• 2. 자료분석 방법 ··································································································· 61
• 제2절 정비사업비 변화 실증분석 ············································································· 62
• 1. 자료의 일반적 특성 ·························································································· 62
• 2. 사업 특성에 따른 정비사업비 변화 비교분석 ················································· 66
• 제3절 정비사업비 변화 전문가 인식 분석 ······························································ 79
• 1. 전문가 그룹 인터뷰(FGI) ·················································································· 79
• 2. 전문가 그룹 토론(FGD) ···················································································· 89
• 제4절 분석 결과 및 시사점 ······················································································ 96
• 1. 분석결과 요약 ··································································································· 96
• 2. 시사점 ·············································································································· 100
• 제5장 결론 ································································································· 104
• 제1절 연구의 요약 ·································································································· 104
• 제2절 연구의 시사점 ······························································································· 107
• 참고문헌 ··················································································································· 110
• 부 록 ··················································································································· 113
• Abstract ··················································································································· 129

참고문헌 (Reference)

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23. “정책네트워크 분석을 활용한 주택재개발사업의 이해주체 간 갈등 관계 변화 과정 연구”, 변창흠, 방성훈, 「도시행정학보」, 제25권 제1호, 한국도시행정학회, , 2012

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