신도시 건설기본계획 수립과정에서 주민참여 제고방안 : 세종시를 중심으로

세종시 신도시 건설기본계획 수립에서 주민참여를 높이는 방안을 연구했다.

In modern society, citizen participation in the planning domain has emerged as a major theme reflecting a trend of diversification, multiculturalization, and democratization. As a consequence, the participation paradigm is emphasized in the domain of planning activities. With this trend, many countries has reinforced the participation in the planning system as in the United Kingdom. In spite of this changing planning environment, the urban planning law in Korea has introduced the limited participation method in a certain planning stage. Under the present planning law, public hearing is stipulated as a participation method in the adoption stage of the master plan.

Therefore, new institutional framework is urgently needed for the enlargement of public participation in the planning process. Generally speaking, major aim of new town planning is to develop a harmonious community with sustainable paradigm. With its characteristics, new town planning is more appropriate place than that of existing cities to examine genuine participation planning. As a new town, the development of Sejong city has paid great attentions from the people not only stakeholders around the development site but also the residents of the rest regions in the nation because of its functional characteristics of administrative city relocated from Seoul, the capital city.

The purpose of this study is to devise the improvement measures of citizen participation with focused on Sejong city planning process. The participation methods employed in Sejong master plan was mainly traditional methods such as public discussions, meetings, and hearings, etc. Participation opportunities in Sejong city plan were provided to the limited people in a certain stage as in the existing urban planning process. As a whole, the degree of citizen participation in Sejong city was insufficient in terms of participants, participation methods, subjects, and processes. Major participation problems identified in Sejong city plan can be summarized as following four items.

The first problem was unsystematic participants selection through top-down method. Considering its administrative functions relocated from the capital city, participants in Sejong city should be included as many residents as all the regions in the country. But, participants in Sejong city plan were selected from the residents living Chungcheong including Sejong and Seoul region through the top-down method. Secondly, the discussion subjects were selected not based on the residents needs but for the planning purposes. Therefore the residents had the great interest in the goal settings, they had no opportunity to take part in those activities.

On the contrary, they were permitted to participated in such less interesting topics as welfare facilities, landscape planning, etc. Thirdly, participation places were held in the limited regions, mainly in Seoul and Chungcheong, Moreover, every public hearings was held in large-scale conference rooms, which made citizens hard to express their opinions in the secession. Fourth, citizen participation was only available in the limited planning stages. There was no participation methods was allowed in the goal setting process which urgently needed for the genuine participation. Public hearings were held mainly for administrative purpose without the consideration of citizens' conveniences.

Lastly, in spite of the advanced information and communication technologies can be supplemented to the traditional methods, only limited traditional participation methods were employed in the planning process. As a way of improvements, following measures are required. Firstly, participants in the planning should be selected as a systematic and upward method. All the people should have opportunities to take part in the whole planning processes. Secondly, participation subject should be chosen based on the demands of citizen. In order to encourage people to take part in topics in which they have great interest, it is necessary to analyze the value and distribution of citizen.

Thirdly, participation place should be easily accessible. It is desirable for people to express their opinions in their own community, but there is limitation in reality considering the widely distributing citizen. Therefore, combining places such as large conference room and community units is needed rather than selecting only one type of place. Fourth, participation in the whole process of planning should be taken into consideration. The recently revised the guideline of city master plan which suggests various participation methods in the whole planning process is a advanced participation strategy.

Fifth, ways to encourage self-help methods such as voluntary and independent participation should actively be adopted in the planning process. Traditional participation methods should be complemented with new methods considering the features of participants and new town. Institutionalization is needed to implement those improvement measures including improving the traditional methods such as public hearing, which is most frequently used in the existing system. Changing planning paradigm is required the meaningful measures to enhance citizen participation in the urban planning process.

Under the present institutional framework of urban planning, participation planning should be adopted as a sector plan in the urban master plan. 현대사회의 다양화 및 다원화, 민주주의 역량강화로 ‘참여’를 중요한 가치로 받아들여지면서 계획이론적 측면에서는 참여계획의 패러다임이 강조되고 있다. 이러한 추세에 따라 영국에서는 주민참여를 강화하는 새로운 계획체계를 법제화하여 운영하고 있다. 그러나 우리나라는 1981년 도시계획법에 도입된 공청회를 큰 변경없이 유지하고 있는데, 인터넷, 스마트폰이 생활공간으로 들어와 시,공간적 한계가 없어지고 있는데도 도시계획의 참여제도는 변화되지 않고 있다. 그간 기존도시에서는 주민참여에 대한 다양한 방법이 시도되었지만 특정이익 집단의 과도한 영향력으로 진정한 의미의 주민참여를 실현하지 못하고 있는 실정이다. 그에 반하여 신도시는 기존주민들의 현실적인 요구에 대한 부담이 적어 새로운 도시계획 이론을 시험할 수 있는 여건을 갖춘 시험장이며, 이상과 꿈을 가진 사람들이 모여 공동체적 삶의 장을 만들 수 있는 미래를 위한 이상도시를 이룰 수 있는 기회인 점에서 의미를 가지고 있다.

본 연구에서는 신도시 건설의 주민참여 필요성에 대하여 균형화된 사회건설(social balance), 지속가능 개발(sustainable development)을 위하여 다양한 계