지구단위계획 제어요소의 실증적 분석 : 서울특별시를 중심으로

서울시 지구단위계획의 제어요소와 운영상 문제를 실증적으로 분석했다.

The District Unit Plan originated from the failure of the previous urban design and its detailed plan to produce substantial institutional effects, with the purpose of leading the reasonable development of land, considering local conditions, under the motto, 'Development after Planning'. Despite its positive purpose and intentions, the plan causes a few problems during execution.

As a means to manage private development, the district unit plan gave most of the landowners a negative impression, due to its regulatory characteristics.Hence, ever since the district unit plan settled down, there has been a desperate need for a practical improvement plan for the problems with the operation of district unit plan and the propriety of the application of major plan components, through actual data and examples. Therefore, this study intended to find problems with the actual application of control elements of the district unit plan to make effective use of land and improve the urban landscape.

Also, it suggests how to enhance the effectiveness of joint development and offering incentives.This study explored disagreements and problems between public servants, who set up the district unit plan by themselves, and architects or construction employers, who are forced to accept the decided district unit plan.

As well, it involved a questionnaire about the importance and necessity of the control elements of the plan, incentives according to the elements, the expected effects and matters to improve, targeting 148 public servants and 237 architects and construction employers, so that, by taking their opinions and requests into account, it tried to help set up and adjust the district unit plan suitable for local characteristics.As a result, regarding the necessity of the control elements, although both the public servants and the employers were aware of the necessity for urban management, such as promoting the urban environment and functions, because the plan goes between urban and construction plans, they had very different reasons for the necessity of individual elements.

Public servants, although they take the control elements into consideration mainly in public aspects, felt that these elements would encourage excessive regulation in private development and restrict creativity and diversity.The survey results implied that both public servants and architects, construction employers were aware of the need for control elements in the district unit plan, but there are still several problems with the effectiveness of the district unit plan. Thus, solutions to improve the district unit plan and regulations and offer practical incentives are in desperate need.

Furthermore, general standards are usually forced upon while there is hardly full understanding of the concerned districts during decision-making and the development and management directions are still unclear. Subsequently, there appear such issues as distortion or arbitrary changes of the initial purpose or intentions of the plan for certain districts. Not only that, complex administrative procedures prolong the decision-making process, which mars the essence of the plan.

Such problems raise the necessity to prioritize deliberate discussions and agreements about the development direction and to prepare how to omit unnecessary procedures or put them on hold, while planning according to the set direction.Besides, with the found problems through the questionnaire, the study looked into the effectiveness and improvement plan for joint development and incentives, through empirical analysis of actual examples. To begin with, regarding joint development, the study targeted offices in Seoul to come up with the aforementioned plan, centering upon the results of changes in the former urban plan committee related to joint development.

It found that 639 bills have been submitted to the committee to change joint development since 2001, and 488 of them, 76%, were passed while 24% rejected. Additionally, 22 Seoul offices out of 25 were brought up at the committee deliberation about changes and 60% of them, 18, were passed.This implied that, aside from the intention of joint development while self-governing districts set up the district unit plan, building permits were granted through the deliberation on changes in the plan at the committee.

Hence, plans for joint development should consider the characteristics of each region and put control through deeper analysis, to make liberal joint development possible within the range of the proper scale of development and the maximum limit.

To minimize the low-income or landlocked lots within a district, considering the access of cars, joint development is actively recommended.In order to investigate how much incentives of the floor space index (FSI) affect in building permits, by complying with the control elements, this study also included the empirical analysis of the relationship between the permissible FSI and the FSI applied in granting actual building permits.For the analysis, the ratio of permissible FSI, given by observing the control elements, to the actually applied FSI had to be quantitatively measured.

Thus, the study calculated (FSI Standard FSI) / (Permissible FSI Standard FSI) × 100 as an incentive application ratio 'a' and conducted comparative analysis. Among 630 building permits within the target area of the district unit plan since 2002 regarding the offices in Seoul, 41.1% had less than 10% of the FSI incentive ratio 'a' (%) and 67.0% had less than 60% of the ratio.This analysis indicated that the FSI in most of the building permits could not reach the permissible FSI through incentives, which, given according to control elements, were thus no longer advantageous. Thus, it is necessary to improve the amount and effectiveness of incentives, given by complying with control elements.

Also, to achieve the purpose of the district unit plan, incentives per control element need to be drastically increased and diver