지역별 빈집의 유형화 및 관리방안 연구 = A study of the classification and management of vacant houses by region

국문 초록 (Abstract)

산업화, 도시화 이후 도시의 축소, 쇠퇴 등의 과정 속에서 빈집의 증가에 따른 다양한 사회적 문제가 대두되고 있다. 특히 도시의 빈집 증가는 도시미관 및 생활환경 의 악화, 화재 및 붕괴 위험 증가 등 다양한 문제가 유발되어 도시기능의 재활성화에 여러 가지 장애요인이 되고 있다.
빈집의 발생 및 확산을 사전에 예방하고, 불가피하게 발생한 빈집을 효율적으로 관리하기 위해서는 빈집 문제를 야기하는 발생 원인을 밝혀내는 것이 중요하다. 빈 집의 발생 원인이 규명되어야 빈집 발생을 억제하기 위한 사전적인 노력을 할 수 있으며, 사후 빈집의 관리를 위한 필요 사항을 파악할 수 있기 때문이다.
따라서 지역적 특성과 빈집 발생 간의 연관성을 탐색하는 것은 빈집 발생을 해결하는데 있어 핵심적인 정보를 제공할 수 있다. 즉, 각 지역별 인구, 사회, 경제 등의 이질적인 요인은 지역적 특성으로 견인되어 빈집 발생의 원인 규명을 위한 합리적인 대응방안을 모색하는데 필수적이라 할 수 있다.
최근 조선업, 자동차부품 등 주력 산업의 부진과 제조업의 동반 악화 등 침체된 지역경제로 인하여 동남권 지역은 빈집 발생의 가능성이 이전보다 높아진 상황에 놓여있다. 도시 및 지역의 쇠퇴에 따른 경기침체로 인한 경제적 기회요인의 상실은 사회적 인구 유입의 차단 및 감소로 이어지고, 이는 곧 주택 및 상가의 공실의 원인이 된다. 이에 본 연구는 부산·울산·경남의 지역에서 나타나는 빈집 발생의 원인으로 파악된 다양한 요인들의 상호관계성을 기초로 지역별 유형화를 통해 차별성을 검증하고, 지역 내 유휴자원인 빈집을 관리·활용할 수 있도록 적절한 빈집 정책 및 활용방안을 제안하는데 목적을 두었다.
본 연구의 실증분석에서는 부산·울산·경남의 동남권 지역에서 발생하는 빈집의 특성을 지역별로 유형화하고 그 차이를 분석하기 위하여 빈집특성, 인구·사회적 특성, 산업·경제적 특성, 주택·환경적 특성에 해당하는 다각적인 변수를 구성하였다. 이러한 변수를 활용하여 K-평균 군집분석을 통해 빈집 특성이 유사한 지역을 유형화 하였으며, 지역별 빈집 발생의 특성과 차이점을 살펴보고, 이에 대한 시사점과 함께 정책적 관리방안을 검토하였다.
부산·울산·경남의 39개 시·군·구 지역에서 발생하는 빈집의 현황 및 발생 원인을 기준으로 4개의 유사한 특징을 가지는 군집이 도출되었다. 이를 기준으로 빈집의 발생원인, 빈집 유형, 빈집 노후화 상태, 지역 내 주거 수요 및 주거 환경 등을 토대로 빈집을 지역자산으로 활용할 수 있도록 예방, 관리, 재활용, 철거 등의 단계로 차등하여 유형별 방안을 다음과 같이 제시하였다.
첫째, ‘신흥주거형’이다. 최근 아파트 중심의 대규모 신규주택공급이 이루어지는 신도시지역의 아파트 중심으로 빈집이 증가하는 것으로 나타났다. 즉, 이 경우 빈집의 사유는 미분양, 미입주 등 주택 거래상의 문제로 인해 일시적으로 비어있을 가능성이 크다. 따라서 지역 내 빈집 발생을 최소화하기 위한 예방적 차원의 노력으로 부동산 시장의 여건에 대한 모니터링, 정기적 점검을 통한 공급의 조절, 빈집 발생에 따른 주변의 부정적인 영향이 최소화 될 수 있는 관리가 요구된다.
둘째, ‘경제중심형’이다. 이 지역은 지역 내 주력 산업의 부진과 주택시장의 침체에 따라 빈집 발생이 증가하고 있지만 해당 광역지방자치단체의 경제적 중추적인 역할을 하고 있는 지역들로서 다시 경제적 상황이 양호해진다면 지역의 기능이 재
활성화될 수 있을 것으로 판단된다. 이 지역들은 잠재적인 주거수요를 내포하고 있기 때문에 빈집을 지역 특성 및 주민 수요를 반영한 공간으로 재활용하는 과정 속에서 지역 부동산 시장이 안정화하고 주거환경 개선을 통한 지역 이미지 제고에 기여하여 선순환 구조로 전환될 수 있는 가능성이 높다.
셋째, ‘기존주거형’이다. 구도심의 쇠퇴현상에서 비롯된 빈집 발생의 특징을 나타내고 있으며, 도시정비사업을 기반으로 한 외지인의 투자로 인한 빈집과 구도심의 부지환경이 취약한 노후·불량 빈집의 두 유형으로 나뉜다. 빈집이 집단적으로 발생될 가능성이 높은 정비구역에 대해서는 해당 거주민들의 주거안전에 위해가 되는 방치된 빈집의 철거가 필요하다. 구도심 중심의 빈집밀집지역은 노후주택의 증가와 인구유출에 따른 주택수요가 꾸준히 감소함에 따라 빈집소유자의 동의를 통하여 빈집을 철거하고 지역주민의 의견을 반영한 공공용지로 조성하면 주민의 편익시설 증대 및 주거환경개선에 기여할 수 있을 것으로 판단된다.
넷째, ‘노후축소형’이다. 대다수 경상남도의 농촌 지역에서 인구통계학적, 경제적 취약성이 높은 여러 복합적 요인으로 쇠퇴현상이 나타나고 있다. 향후 주택수요가 증가될 가능성이 낮고 빈집 발생이 더욱 증가할 수 있는 지역적 특성이 있다. 전반적인 양적 규모의 축소정책을 전략적으로 추진하면서 추가적인 빈집 발생을 억제할 수 있는 선제적인 정책 방안이 요구된다.
마지막으로 저성장, 저출산·고령화에 따른 빈집 발생은 특정 지역에 한정된 문제가 아니라 도시의 쇠퇴, 축소와 함께 우리나라 지역의 대부분이 안고 있는 사회적 문제로 그 심각성이 점차 커져가고 있다. 따라서 빈집과 관련된 이러한 심층적인 연구를 통해 빈집 문제를 해결할 수 있는 실행력을 동반한 관리 및 활용방안이 도출될 수 있길 기대해본다.

다국어 초록 (Multilingual Abstract)

In the process of urban downsizing and decline after industrialization and urbanization, various social problems have been raised as vacant houses increased. Especially, increasing number of vacant houses in urban areas harms its landscape and aggravates its living environment or has high chance of fire, collapse and etc. Therefore, it has become serious obstacles to city revitalizing.
In order to prevent the occurrence and spread of vacant houses and to manage vacant houses efficiently, it is important to identify causes of vacant houses. After causes of vacant houses become clear, proactive efforts can be made to curb the occurrence and needs for management can be figured out as well.
Therefore, investigating a correlation between the local characteristics and occurrence cause of vacant houses could suggest key information about solving the occurrence of vacant houses. In other words, population, social environment and economy are regarded as regional characteristics and considered to be essential for finding an effective counterplan to investigate the causes of vacant houses.
The possibility of vacant houses in the southern-east area of Korea is higher than before due to stagnant local economy situation: slump of shipbuilding, automobile parts and manufacturing. The loss of economic opportunities caused by urban decline could cause blockage and reduction of social population inflows, which can influence on the decreasing number of real estate demand and commercial vacancy in results. So the purpose of this study is to verify different types of vacant houses by regional categorization, based on interconnectivity in various factors which can have effect on vacant housing in Busan, Ulsan and South-Gyeongsang province, therefore to propose appropriate policies and measures for better management and utilization of the idle resource: vacant housing.
In order to classify and analyze traits of vacant houses by region (Busan, Ulsan and South-Gyeongsang province), the empirical analysis consists of four variables: 1) the traits of housing vacancy 2) traits of population and society 3) industrial and economic traits 4) housing and environment characteristics. In this study, types of vacant housing is defined by K-average cluster variables which utilizes above four variables. Based on this classification, managerial implication and political management is suggested.
According to the analysis, the clusters that have shown 4 similar characteristics were drawn based on the current status and causes of vacant housing in Busan, Ulsan and 39 local cities in Gyeongnam province. This study suggested that vacant houses can be used as economical asset, adopting differential steps such as prevention, management, recycling and demolishment, based on the causes of vacant housing: the type of vacant housing, the condition of housing deterioration, the housing demand and living environment
First is about ‘New-rising housing type‘. Recently, it is shown that vacant houses have been increased in new urban areas where large-scale housing-supply such as apartment is made. These kind of vacant houses are temporarily because of transaction issues: unsold or unmoved. Therefore, in order to minimize this type of vacant houses, it is required to control supply through a close monitoring and regular inspection based on the conditions of the real estate market.
Second type of vacant housing is ‘Economy-centered type’. In this region, vacant houses are increasing due to the industry recession and real estate market slowdown but still functioned as a pivotal role in metropolitan councils. As soon as the economy condition recovers, these regions’ local system will be revitalized. If this type of vacant housing reflects demands from residents and regional traits, it has high possibility to create virtuous circle, which would stabilize the local real estate market and improve living environment by reflecting citizens’ demand and recycling idle resources.
Third, ‘existing-housing type’ features an occurrence of vacant houses which has been resulted from the decline of old-city center. This type is divided into two types: vacant houses due to investment for urban-rehabilitation project by outsiders and decrepit houses. In rehabilitation areas where vacant houses are likely to be occurred collectively, vacant houses are required to be torn down for residents’ safety, based on owners’ voluntary removal or local government’s removal from content of owners. By practicing these actions, this areas can be transformed into public area for residents’ convenience and better living environment.
Fourth is ‘decrepit type’. This type has been shown in rural areas of South-Gyeongsang province because of social and economic vulnerability. This type of vacant housing has low possibility of housing demand, thus has high possibility of vacant housing occurrence as well. As downsizing policy on those areas practices, strategical pre-active policy to curb the additional occurrence of vacant houses is required.
In conclusion, the occurrence of vacant houses due to low growth, low birth-rate and aging is not limited to certain region, but is a serious social problem that most of the regions in Korea are suffering currently. Therefore, through the in-depth study on types of vacant houses and causes of its occurrence, further solutions for reuse and practicable managements are expected to be drawn.

목차 (Table of Contents)

• 제1장 서론 ·································································································· 1
• 제1절 연구의 배경 및 목적 ······················································································ 1
• 1. 연구의 배경 ······································································································· 1
• 2. 연구의 목적 ······································································································· 3
• 제2절 연구의 범위와 구성 ······················································································· 4
• 1. 연구의 범위 ······································································································· 4
• 2. 연구의 방법 ······································································································· 5
• 3. 연구의 구성 ······································································································· 6
• 제2장 빈집관리방안에 관한 이론적 고찰 ·················································· 8
• 제1절 빈집의 정의 및 발생원인 ·············································································· 8
• 1. 정의 ··················································································································· 8
• 2. 발생원인 ·········································································································· 10
• 제2절 빈집관리 관련 제도 및 정책 ······································································· 13
• 1. 제도적 기반 ····································································································· 13
• 2. 법률 및 관리체계 ···························································································· 16
• 3. 지방자치단체 조례 ·························································································· 23
• 제3절 해외 빈집 관리 및 활용 정책 ····································································· 27
• 1. 일본 ················································································································· 27
• 2. 미국 ················································································································· 31
• 3. 영국 ················································································································· 34
• 4. 시사점 ·············································································································· 39
• 제4절 선행연구 고찰 ······························································································· 41
• 1. 빈집 발생원인 및 영향에 관한 선행연구 ······················································ 41
• 2. 빈집관리를 위한 제도 및 활용방안에 관한 선행연구 ·································· 43
• 3. 선행연구와의 차별성 ······················································································ 47
• 제3장 주택시장 환경변화와 빈집관리 지원사업 사례 ···························· 50
• 제1절 주택시장 현황 ······························································································· 50
• 1. 인구 및 가구의 현황 ······················································································ 50
• 2. 주택의 재고 및 공급 현황 ············································································· 54
• 3. 주택시장의 환경변화 ······················································································ 58
• 제2절 빈집 현황 ······································································································ 66
• 1. 국내 현황 ········································································································ 66
• 2. 국외 현황 ········································································································ 77
• 제3절 빈집 관련 지원사업 사례 ············································································· 84
• 1. 중앙정부 ·········································································································· 84
• 2. 지방자치단체 ··································································································· 89
• 3. 민간부문 ·········································································································· 93
• 4. 시사점 ·············································································································· 97
• 제4장 빈집 유형화 및 관리방안 실증분석 ·············································· 99
• 제1절 실증분석의 개요 ··························································································· 99
• 1. 자료의 구성 ····································································································· 99
• 2. 변수의 설정 및 정의 ···················································································· 100
• 3. 분석방법 ········································································································ 108
• 제2절 지역별 빈집의 유형화와 특성 분석 ··························································· 111
• 1. 기술통계 및 상관관계분석 ··········································································· 111
• 2. 군집분석을 통한 빈집 발생의 지역별 유형화 ············································· 117
• 3. 유형별 빈집 발생 요인의 특성 분석 ··························································· 123
• 4. 분석결과 및 시사점 ······················································································ 134
• 제3절 빈집의 유형별 관리방안 ············································································· 136
• 1. 신흥주거형 ····································································································· 137
• 2. 경제중심형 ····································································································· 138
• 3. 기존주거형 ····································································································· 139
• 4. 노후축소형 ····································································································· 142
• 제5장 결 론 ··························································································· 144
• 제1절 연구의 요약 및 시사점 ·············································································· 144
• 제2절 향후 과제 ···································································································· 146
• 참고문헌 ················································································································· 148
• Abstract ·················································································································· 153

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