자율주택정비사업의 활성화 제약요인과 개선방안 연구 = A Study on the Constraint Factors and Improvement Measures in the Vitalization of Autonomous Housing Renewal Project

다국어 초록 (Multilingual Abstract)

Starting in the 1960s, South Korea saw the emergence of unauthorized shanty towns and substandard residential areas due to rapid urbanization driven by economic development and expanding low-income population. They led to the shortage of urban infrastructure, transportation, and water and sewage facilities and accordingly to the side effects of compromised urban functions. These issues raised a need to make a comprehensive long-term urban general plan. In 1982, a joint redevelopment project began in backward residential environment sites in either overall demolition-development or demolition-redevelopment ways.
In the 1990s, indiscriminate maintenance projects became a social issue along with low-rise residential areas excluded from urban maintenance projects. In February 2018, the Act on Special Cases Concerning Unoccupied Houses or Small-Scale Housing
Improvement(hereinafter, the "Act") was enacted to promote the maintenance of deteriorated low-rise residential areas. In autonomous housing renewal projects, residents form a committee comprised of ten detached houses, 20 row or multi-household houses, and 20 detached, row, or multi-household houses and carry out a construction project themselves in an area where deteriorated or defected buildings account for over two-thirds of the entire buildings in the area.
This study aims to identify constraint factors in the vitalization of autonomous housing renewal projects, provide implications for their vitalization, and propose improvement measures for them.
For these purposes, the study examined causal relations between three important influential factors in the legal system, economic, and social-cultural aspects, and the constraint factors and improvement measures for the vitalization of autonomous housing renewal projects.
The subjects included autonomous housing renewal projects around the nation. The autonomous housing renewal projects in the Seoul metropolitan area and local metropolitan cities account for 87.6% of the entire autonomous housing renewal projects in the nation, and the spatial scope of research was restricted to the Seoul metropolitan area. The time scope was limited from 2018
when the Act was enacted to 2022. The content scope covered the requirements of an autonomous housing renewal project, legal grounds, resident committees, residents' consciousness in a project site, management companies with project authorization, residents' fundraising issues, private companies' construction costs and profitability issues, custom designs based on users, and constraint factors in the vitalization of autonomous housing renewal projects including resident conflicts due to irregular lots and lots with no access roads in old downtowns.
The investigator adopted such methodologies as literature study, focus group interviews, surveys, and statistical analyses.
Specifically, the investigator first conducted a literature study by analyzing changing government policies and institutions regarding urban maintenance projects from the Japanese ruling to the present along with related regulations(laws), dissertations, academic papers, books, research reports, and press releases of the Ministry of Land, Infrastructure, and Transport. Second, the study identified constraint factors in the vitalization of autonomous housing renewal projects by conducting a focus group interview with professional management firms for renewal projects and construction companies about the constraint factors from previous studies to differentiate itself from them. And third, the study identified legal system, economic, and social & cultural factors as dependent variables and constraint factors as independent ones to propose improvement measures for autonomous housing renewal projects based on analysis results. The study also conducted a multiple regression analysis for important influential factors in each part of an autonomous housing renewal project. The findings were as follows: first, the study set four independent legal system factors including project requirements, government subsidies, housing management, and expert supports and formulated four hypotheses to identify major constraint factors in autonomous housing renewal projects. The analysis results show "project requirements" was a significant factor. It is needed to relax the requirements for the number of candidate houses including less than ten households for detached houses and 20 for row houses.
It is also needed to expand single-person projects, lift the limits on vacant lots and row houses, and reinforce support for such projects from public agencies. Secondly, the study set five independent economic factors including project size, low profitability, risk of unsold houses, various customer needs, and out-of-pocket expenses and formulated hypotheses accordingly to identify major constraint factors in autonomous housing renewal projects. The analysis results show that "low profitability, various customer needs, and out-of-pocket expenses" were significant factors. There is a need to increase the floor area ratio(Types 1 and 2 of exclusive residential areas, Type 1 of general residential areas, and use areas) for private businesses pushing forward an autonomous housing renewal project. It is also needed to induce small- and medium-sized companies to participate through public support, lower the percentage of out-of-pocket expenses through diverse house plans, and develop diverse financial supports and products. Finally, the study set four independent social & cultural factors including residents' consent, promotions and education by the government, residents' consciousness, and resolution of conflicts and formulated hypotheses accordingly to identify major constraint factors in autonomous housing renewal projects. The analysis results show that residents' consent and residents' consciousness were significant factors. A local community and governance should be formed at the government level to obtain consent from residents and activate a consensus-driven resident committee. Residents' consciousness of a project should be promoted and improved by plan first, investing first in public plans and promoting/education programs by the government in a project area.

국문 초록 (Abstract)

본 연구는 1960년대부터는 경제발전으로 급격한 도시화의 진행과 저소득층 인구의 팽창으로 무허가 판자촌 등의 주택 양산과 불량주거지가 발생되 었다. 이로인해 도시의 기반시설이 부족해지고 교통, 상하수도 시설부족으로 도시의 기능을 못하는 부작용이 발생되어 장기적이고 종합적인 계획하에 도시기본계획을 수립하게 되었다. 낙후된 주거환경 대상지를 전면철거 개발방식과 철거 재개발방식으로 1982년 합동재개발 사업이 시행되었다. 그후 1990년대 무분별한 정비사업 등이 사회적으로 문제가 제기되면서 도시 정비사업에서 제외된 저층 노후주거지의 문제가 사회적 문제로 대두되었다.
이후 노후 저층주거지 정비를 목적으로 2018년 2월「빈집 및 소규모주택 정비에 관한 특례법」(이하 “소규모주택정비법”이라 한다)의 제정 되었다.
자율주택정비사업은 노후․불량건축물의 수가 해당 사업시행구역의 전체 건축물 수의 3분의2이상인 지역에 단독주택 10호, 연립주택 또는 다세대주택 20세대 단독주택의 호수, 단독주택과 연립주택, 단독주택과 다세대주택 등은 20채의 주민합의체를 구성하여 주민스스로 건설하는 사업이다.
본 연구의 목적은 자율주택정비사업의 활성화 제약요인을 규명하고 사업의 활성화를 위한 시사점을 도출하여 개선방안을 제언 하고자 한다. 이를 위하여 법제도적, 경제적 측면, 사회/문화적 측면에서 중요영향 요인 3가지를 대상으로 사업활성화 제약요인과 개선방안에 어떠한 인과관계를 형성하 는지 알아보았다.
본 연구의 대상은 전국의 자율주택정비사업을 대상으로 하였다. 특히 수도권 및 지방권역중 광역시권이 전체사업신청의 87.6%를 차지하고 있어 연구대상의 범위를 수도권 지역으로 연구범위를 제한 하였다. 연구의 시간적 범위는「빈집 및 소규모주택 정비에 관한 특례법(소규모주택정비법)」이 제정된 2018년부터 2022년 현재까지로 한정하였다. 연구의 내용적 범위는 정비사업이 추진되는 자율주택정비사업의 사업요건, 법적인 근거, 주민합의체, 사업지 주민인식, 사업시행인가 관리업체, 주민스스로 자금조달 문제, 민간 업체의 건설비용 및 수익성 문제, 수요자 고려한 맞춤형 설계, 구도심 특성상 부정형 필지 및 맹지로 인한 주민갈등 등 활성화 제약요인을 규명하였 다.
본 연구의 연구방법은 문헌연구, 표적집단면접(FGI), 설문조사, 통계분석을 실시하였다. 구체적 연구방법은 첫째, 문헌연구는 일제강점기부터 현재 까지 도시정비사업 정부정책의 변화 및 제도에 대하여 분석하고, 관련규정 (법령 등)과 학위논문, 학술논문, 단행본, 연구보고서, 국토교통부 보도자료 등을 분석 고찰하였다. 둘째, 기존 연구의 차별화를 위하여 기존 연구자료의 자율주택정비사업의 활성화 제약요인에 대해 정비사업전문관리업체 및건축사 등 표적집단면접(FGI)을 통한 활성화 제약요인을 도출하였다. 마지막으로, 분석결과를 바탕으로 자율주택정비사업의 개선방안 종속변수로 법제도 요인, 경제 요인, 사회/문화적 요인을 추출하고 제약요인 독립변수를 설정하여 연구하였다. 자율주택정비사업의 부문별 중요 영향요인들에 대하여 다중회귀분석을 실시한 연구결과는 다음과 같다. 첫째, 자율주택정비사 업의 중요 제약요인을 도출하기 위하여 본 연구에서 법제도적 요인으로 설정한 독립변인은 ①사업요건, ②정부지원금, ③주택관리, ④전문가지원 등 4가지를 연구가설로 설정하였다. 분석결과, “①사업요건”이 유의미한 요인으로 분석되었다. 현재 단독주택은 10호미만, 연립주택은 20호미만으로 사업 대상 주택 수를 제한 완화, 1인사업의 확대, 나대지나 연립주택의 제한을풀고 공공기관의 시업지원 더욱 강화해야 한다. 둘째, 자율주택정비사업의 중요 제약요인을 도출하기 위하여 본 연구에서 경제적 요인으로 설정한 독립변인은 ①사업규모, ②낮은수익성, ③미분양 리스크, ④다양한 고객수요,
⑤자기부담금 등 5가지를 연구가설로 설정하였다. 분석결과, “②낮은수익성
④다양한 고객수요 ⑤자기부담금”이 유의미한 요인으로 분석되었다. 현재의 소규모주택정비사업을 추진하는 민간사업자에게 용적률을 높이고(1·2종전용 주거지역, 1종일반주거지역의 용적률, 용도지역 등을 개선), 공공의 지원을 통해 중소기업의 참여를 유도하고 다양한 평형설계를 통해 자기부담금을낮추고 다양한 금융지원과 금융상품개발이 필요하다. 셋째, 자율주택정비사 업의 중요 제약요인을 도출하기 위하여 본 연구에서 사회/문화적 요인으로 설정한 독립변인은 ①주민동의, ②정부의홍보/교육, ③주민인식, ④갈등해소등 4가지를 연구가설로 설정하였다. 분석결과, “①주민동의, ③주민인식”이유의미한 요인으로 분석되었다. 전원합의 주민합의체 활성화를 위해 정부차 원의 지역 커뮤니티 및 거버넌스 구성하여 주민동의 필요하며 사업대상지의 주민인식 개선을 위해 공공에 의한 선계획, 선투자 계획과 정부의 홍보/ 교육프로그램의 개발로 사업에 대한 주민인식을 높일 수 있는 방안이 필요 하다.
본 연구는 소규모주택정비사업의 법제도, 경제, 사회/문화적 제약요인을 도출하기 위하여 부재한 활성화 제약요인을 구체적으로 연구 하였고 활성화 제약요인과 개선방안을 제시함으로써 전국의 구도심 노후 불량주택을 대상으로 실증적 연구가 이루어졌다는점에 의의가 있다. 반면, 단독주택과 다세대/다가구를 중심으로 하는 원도심 지역의 노후 저층주거지의 주거환경 개선이 시급히 요구되는 시점이며 이러한 관점에서 자율주택정비사업의 지역별 제약요인, 사업성, 사업소요기간, 공공지원, 지역 주민의 의견반영 등에 대한 관계를 규명하는데 연구의 한계가 지적될 수 있다. 따라서 향후후속 연구를 통해 다양한 사례 분석의 지속적 연구가 필요하다.

목차 (Table of Contents)

• Ⅰ. 서론 ····································································································· 1
• 1. 연구의 배경 및 목적 ································································ 1
• 1.1 연구의 배경 ·········································································· 1
• 1.2 연구의 목적 ············································································ 4
• 2. 연구의 범위 및 방법 ································································ 4
• 2.1 연구의 범위 ············································································ 4
• 2.2 연구의 방법 ············································································ 6
• 3. 논문의 구성 ················································································· 6
• Ⅱ. 이론적 고찰 ····················································································· 10
• 1. 자율주택정비사업의 개념 및 현황 ····································· 10
• 1.1 자율주택정비사업의 개념 ·················································· 10
• 1.2 자율주택정비사업의 현황 ·················································· 11
• 2. 자율주택정비사업의 추진절차 ············································· 17
• 3. 자율주택정비사업의 법제도 및 제약요인 ························· 31
• 3.1 자율주택정비사업의 법제도 ············································ 31
• 3.2 자율주택정비사업의 제약요인 ·········································· 39
• 4. 선행연구 고찰 및 연구 차별화 ············································ 43
• 4.1 선행연구 고찰 ······································································ 43
• 4.2. 연구차별화 ··········································································· 45
• Ⅲ. 분석의 틀 ························································································· 46
• 1. 연구모형 및 자료구축 ···························································· 46
• 1.1 연구모형 및 연구가설 ························································ 46
• 1.2 자료구축 ················································································ 50
• 2. 설문지 설계 및 분석방법 ······················································ 51
• 2.1 설문지설계 ············································································ 51
• 2.2 분석방법 ················································································ 53
• Ⅳ. 자율주택정비사업의 활성화 제약요인 실증분석 ·················· 54
• 1. 설문조사 개요 및 통계분석 ·················································· 54
• 2. 기술통계 ····················································································· 57
• 2.1. 측정도구의 신뢰도 검증 ··················································· 57
• 2.2. 독립변수의 상관관계 분석 ··············································· 58
• 3. 자율주택정비사업의 활성화 제약요인 분석 ····························· 59
• 3.1. 법제도 요인 ········································································· 60
• 3.2. 경제 요인 ············································································· 62
• 3.3. 사회/문화 요인 ···································································· 64
• 4. 연구소결 및 연구가설 검증 ·················································· 66
• Ⅴ. 결론 ··································································································· 68
• 1. 연구 결론 및 정책적 제언 ···················································· 68
• 2. 연구의 의의 및 후속연구 제시 ············································ 71
• 참고 문헌 ································································································· 72
• 설 문 지 ··································································································· 78
• Abstract ···································································································· 80