토지비축 대상지 선정을 위한 실증적 연구 : 경기도내 임대주택단지 선정을 중심으로

경기도 임대주택단지 조성을 위한 토지비축 대상지 선정 기준을 연구했다.

There is a limit to what the public policy can do to tackle the high land price. It resulted in theenactment of the ““Act on Public Land Banking”” and the establishment of a land banking system. This study reviewed main issues of the land banking system, i.e., land banking period (short- and long-term), parcels of land suitable for banking, selection criteria, etc. In addition, the study sought to identify high-priority land parcels for building rental housing complexes, which will help the government, local self-governments, and other public entities determine the land to be purchased first when initiating the land banking system.

Review of issues surrounding the land banking system showed that long-term land banking is ideal as it can help regulate land supply in the future and can curb land speculation, but in reality, its effects cannot be felt early, and there are management and financial burdens. Therefore, during the initial stage of the land banking system, short-term land banking should be implemented together with long-term banking. Secondly, in terms of the land suitable for banking, purchasing easy-to-acquire land parcels reduces financial burdens and minimizes purchase lead time.

However, purchasing land parcels that meet development needs of the future and that are in line with policy goals best serves the original purpose of the system. A review was conducted on land banking issues and a focus group was interviewed regarding more objective and professional land banking. The result was as follows: 1) The fundamental goal of the land banking system is to meet public demands for development and promote more efficient use of land. Stabilization of the real estate market is a by-product.

2) In terms of the land banking period, ideally, it is best to adopt a long-term perspective in land banking, but considering financial constraints during the initial stage of land banking and efficiency, short-term land banking should be implemented first, with gradual increase in the portion of long-term banking. 3) In terms of the standard for selecting land parcels, the land that can be utilized should be purchased first, that is, land that meets future regional demands and policy objectives. The pre-condition here is to assess the demand accurately and maintain consistency in policies to realize long-term policy goals.

4) The land that is on the high priority list for banking is the land for building SOCs, public facilities, public rental housing, and factories. 5) The land that should be purchased first for banking is not one that is readily available for purchase. Rather, the priority for purchase should be on the land that best meets policy goals and regional demands. Based on above factors, candidate sites of rental housing complex for banking were identified. In land banking, since the primary concern is accessibility to the labor market and price, it is best to purchase relatively low-priced land in places with high demands.

Assuming Seoul as the central labor market within the metropolitan area, residential districts within one hour’s commute distance from Seoul, i.e., those within a 40km radius were selected. After excluding certain restricted zones and green belts, land parcels suitable for banking in Gyeonggi Province were identified. Among the selected land parcels in Gyeonggi Province, the piece of land that is surrounded by roads bigger than sub-arterial road was regarded as an independent polygon. According to an estimate, there are 1,711 polygons in the region.

Assuming that land whose size is 1 million m2 can be used as the basic unit for rental housing complex, the size of the polygon is suitable to be used as a unit for land banking. Next, among the polygons that contain at least a bit of national or public lands, the average ratio of the national or public land within the polygon was 19.56%, with the maximum ratio reaching up to 99.75%. The average price of land within the polygon was 210,395 won/m2, and the cost of land per m2 ranged from a minimum of 3,130 won to a maximum of 6,181,560 won.

High priority land for banking is the land that is within a 40km radius from the three central labor markets in Seoul with high percentages of national or public lands. The percentages of national or public lands within polygons are as follows: Ansan City (32.32%) More specifically, the land can be purchased after considering the ratio of national or public lands within the polygons. It is possible to identify areas with more than 50% of polygon clusters. It was found that certain lands in Sungnam-si and Suwon-si can be suitable for large-scale development.

The analysis revealed that land parcels in areas that have a cluster of polygons with a high percentage of national or public lands should be purchased first to prepare for the time when large-scale developments areneeded, and even in areas with relatively small number of polygon clusters, a certain amount of land can be bought to implement policies. In conclusion, the usable lands in Gyeonggi Province are lattice shaped lands divided by roads bigger than sub-arterial roads.

By determining the ratio of national or public lands within the polygons and by purchasing land parcelsselectively in accordance with policy directions and the size of development, we can expect a better return for the money we spend than we did in the past. 높은 토지비용으로 인한 효율적인 공공정책수행의 한계에 도달하면서 ｢공공토지의 비축에 관한 법률｣ 제정과 토지은행의 출범함에 따라 주요 이슈인 토지비축기간(장기적/단기적), 대상 및 선정기준, 등을 중심으로 검토하였다. 또한 임대주택단지 공급을 위한 토지비축 대상지를 추출함으로써 향후 국가, 지자체 등 공공주체가 토지비축을 시행하는데 있어 우선적으로 매입해야할 토지를 선정하는데 기여하고자 하였다. 토지비축제도와 관련된 이슈를 검토한 결과, 첫째, 장기목적의 토지비축이 장래 토지의 수급조절 기능이 크며, 투기적 개발수요를 차단할 수 있다는 점에서 이상적이나, 현실적 측면에서 비축의 성과가 단기간에 가시화되기 어렵다는 점과 관리에 대한 부담 및 재정배분의 한계로 인해 단기목적의 토지비축을 병행하여 시행하는 것이 토지비축제도 시행초기에 적절한 방안으로 분석되었다.

둘째, 토지비축의 대상으로는 매입이 용이한 토지를 비축하는 것이 재정부담이 적고 매입기간이 최소화될 수 있다는 점에서 효율적이나, 장래 개발수요 및 정책목표에 따른 토지를 매입하는 것이 토지비축 본래의 목적을 달성하는데 적절한 것으로 판단된다. 검토된 이슈들을 점검하고 보다 객관적이고 전문적인 토지비축 개선사항들을 포커스그룹