도시정비사업에 있어 공공관리제도의 개선 방안 연구 : 거여·마천 재정비촉진지구를 중심으로

재정비촉진지구를 사례로 도시정비사업 공공관리제도의 개선을 연구했다.

ABSTRACT Joong-Sun Yun Department of Real Estate Graduate School of Urban Sciences University of Seoul Supervised by Prof. Dong-Hoon Oh At this point where the Public Management System has reached its 5th year of enforcement, which has been mandatorily implemented in urban and housing environment renewal projects in Seoul, the system calls for improvements as the limitations are outweighing the effects.

The following research in this thesis reflects on how the system is being operated, if there are any harm, if the system is really necessary, and how the system can be improved for the sake of the residents, through the actual public management cases, including the first demonstrative district designated by the Seoul City to adopt the public management system, and 5 district cases where builders are appointed through the public management system by the Seoul City in 2014, renewal project cases where builders are appointed without the public management system, and through Geoyeo·Macheon Renewal Promotion District case, which is the focus research area of this thesis.

The Public Management System has been implemented to resolve corruption and increasing civil complaints and to prevent project delays as conflicts between stakeholders extended to accusations and prosecution which has further grown into governmental level issue, by publicly managing and supporting prevalent corruptions arisen by illegal back-scratching between main control body union and other related parties including construction, renewal, demolition, and design firms.

However, during last 5 years of its enforcement, concerns in the initial stage have begun to surface, and the public management system does not seem to overcome its limitations and inadequacies, stimulating distrust rather than understanding and participation of the residents. The results may be caused by the system’s current operation, which has transformed into one that is easier for the public managers to control and supervise, without considering the residents’ perspectives.

Frustration from lack of expertise and irresponsible correspondence of the public managers, conflicts between stakeholders caused by public managers managing·supervising only in the public’s perspective rather than the residents’, conflicts between the residents and builders, are being expressed. And especially rising concern is the occurrence of economical and time loss due to faulty administration and correspondence of the public managers, which cannot be easily seen with the naked eye . This can further be developed into another social issue.

The objectify the research, effort to collect various types of cases in diverse renewal project sites has been made, together with in-depth interview with the stakeholders including chairman of the promotion committee, executives of consultant firms, related public officials, executives of construction firm concerning the Geoyeo·Macheon Renewal Promotion District Project, which has long been involved in disputes and claims due to public management failure and is still in the center of controversy with unresolved issues. Above research cases can be analyzed into 7 main problems. Firstly, public management system is regimental and forceful regardless of the residents’ opinion.

Secondly, project delays are found in the case of demonstrative districts including Seong-su Strategic Renewal District and Hannam Renewal Promotion District where public management system has been adopted, and other side effects such as emphasized indemnification responsibility and corruption of the union. Thirdly, there are problem in builder appointment period. Fourthly, there are absolute shortage in professional personnel and frequent personnel transfer, causing difficulties in progression of the renewal projects. Fifthly, insufficiency in procurement of data and risks in financing system are hindering the project progress.

Sixthly, supports for disposal plan and validating burden charges. Seventhly, damages and loss from public manger’s wrong roles and responsibility. Based on above 7 main problems, I would like to propose 9 improvement method of the system through in-depth interview with the professionals. Firstly, work scope of the public management system should be reexamined. Secondly, public intervention model should be diversified and part of the work should be reserved. Thirdly, tenant rights on public management system should be returned to the residents. Fourthly, a private·governmental consultative council should be organized to reexamine the conflict control work scope.

Fifthly, appointment period of builders should be adjusted. Sixthly, financing loan method should be improved. Seventhly, project fund and burden charge program problem should be improved. Eighth, relocation rate enhancement plan should be arranged. Ninthly, project promotion method of the public management system should be considered. Especially, the public should have to recognize that the committee is the main body of the renewal works, and should return the deserved rights to the residents so that the public management system and appointment of builders can be rightfully determined in the residents assembly and public can support whatever the committee wants.

Keyword: Urban Renewal Project, Geoyeo·Macheon Renewal Promotion District, Public Management System 국문초록 도시정비사업에 있어 공공관리제도 개선 방안 연구 -거여·마천 재정비촉진지구를 중심으로- 본 논문의 연구는 서울시에서 도시 및 주거환경정비사업에 의무적으로 적용하고 있는 공공관리제도가 시행된 지 약5년이 도래하는 시점에서 효과보다는 한계점이 봇물 터지듯 나타나고 있어 개선의 목소리가 점점 커지고 있는 가운데 실질적인 운용 사례를 통하여 공공관리제도가 어떻게 운영되고 있는 지, 공공관리제도로 인한 피해사례는 없는지, 공공관리는 정말 필요한 제도인지, 주민을 위해서는 어떻게 제도가 개선되어야 하는 지를 서울시가 지정하여 공공관리제도가 처음 적용된 시범지구사례와 서울시가 2014년 공공관리로 시공자를 선정한 공공관리제 적용 구역들 중 5개구역의 사례 및 공공관리제를 적용하지 않고 시공자를 선정한 재건축 정비사업사례, 그리고 본 연구의 중점연구지인 거여·마천 재정비촉진지구사례를 통하여 고찰하였다.

공공관리제도는 조합(추진위원회)과 시공자, 정비업체, 철거업체, 설계업체 등 사업관련 업체들 간의 유착으로 발생된 각종 비리와 부패가 만연하고 민원이 비등해지고 있어 국가가 나서야 할 문제로까지 발전되었으며, 이해관계자간의 갈등과 고발·고소 등으로 인해 사업이 장기화되고 있어 이를 공공의 관리와 지원을 통해 해결하고자 도입한 제도이다. 그