저성장기 도시재생 재원 조달 방안 연구 : 길음1동 도시재개발사업을 중심으로

길음1동 재개발사업을 중심으로 저성장기 도시재생 재원 조달 방안을 연구했다.

New Town and Redevelopment Projects starting from Seoul since 2002 have been carried out by the subject of real property owners’ union, based on the disposal of their own assets and the development gains produced by redevelopment. This method can be said to be a ‘high growth type’ urban regeneration project that needs a steady growth of the real estate market and a high growth of the national economy supporting this. Thus, it does not fit the domestic economic conditions following a route of a slow growth since the international financial crisis in 2008.

Moreover, within the project district, regarding the residents’ compensation, an extreme conflict over measures for tenant residence/migration has occurred between union members and non-union members. In addition, existing residents’ resettlement rate was low, so publicity has been significantly undermined: e.g. local communities were destroyed. Accordingly, as the Act on the Maintenance and Improvement of Urban Areas and Dwelling Conditions for Residents was revised in February 2012, public management work and responsibilities range of the maintenance project expanded.

Services of support for the establishment of measures for tenants’ housing and relocation and support for management plans were added, and the local government’s responsibilities for public management also expanded from the date of designation and announcement of a maintenance area to the point of time of the approval of the initial plan for management and disposal. The urban regeneration project itself means the expansion of awareness of public service as inherent regional public goods, and an action emphasizing the roles and responsibilities of the local government as public administrator of the urban regeneration project.

This study recognizes the lack of profitability replacement and publicity recovery of an urban regeneration project as the priority task for the continuous promotion of the urban regeneration project in low-growth era, and the local government’s plan for financial aid in the areas of demolition and relocation measures on which the conflicts between residents are concentrated in the process of promotion of the project conflicts between residents. Specifically, a plan for the assignment of revenue surplus following the urban regeneration project to ‘Local Tax Urban Regeneration-GAP’ and using it for the urban regeneration project was presented.

Also, with a case of Gireum 1(il)-dong area where redevelopment and maintenance project has been carried out throughout the area from 2000 through 2012, its validity was demonstrated empirically. A scale of regional development fund borrowing with Gireum 1(il)-dong Local Tax Urban Regeneration-GAP as repayment financing based on the concept of Tax Increment Financing (TIF) was estimated, and a financial aid-repayment simulation for the urban regeneration project was carried out by fully applying this scale of funding to costs of measures for evacuation and migration of the redevelopment project and then repaying it with the Urban Regeneration-GAP.

As a result, as costs of measures for evacuation and migration were supported, the estimated proportional rate of the redevelopment project of Gireum 1(il)-dong would increase by 6.25% up to 9.11% and it would take about 11 years to repay borrowings. Through this, it was found that if the urban regeneration project was carried out in phased development at area units, the urban regeneration project support model of the method of “financial aid→development→creating tax revenue→recovery” using the Urban Regeneration-GAP could operate effectively.

Based on the results of this analysis, a TIF model using the special account of the urban regeneration project and regional development fund was drawn for the urban regeneration project activation areas provided by the current Special Act on Urban Regeneration. System improvements were suggested in order to install and operate the special account of the urban regeneration project provided by the Special Act and organically connect the revitalization plan for the urban regeneration project with the strategic plan. Continued uses of physical methods of urban development by the local government like the past are not desirable: e.g.

supplementing private development profits with passive policies such as a variety of deregulation, like floor area ratio and reducing charges. The local government should establish a systematic urban management policy piecing together residential, economic, social and cultural environments for a sustainable urban growth should be established, and through active administrative and financial supports, the private project should be supplemented and the city’s public service should be expanded.

For this purpose, with avoidance of a private development-oriented urban quantitative expansion policy established in the past high growth period and the local government’s implementation of the means of funding for the urban regeneration project, the foundation of an indigenous urban regeneration project by the private sector and the public sector should be prepared. 2002년 이후 서울시를 중심으로 시작된 뉴타운 ․ 도시재개발사업은 토지 등 부동산 소유자 조합이 사업주체가 되어 자기 자산을 처분하고 재개발로 발생하는 개발이익을 기반으로 사업이 이뤄진다. 이러한 방식은 꾸준히 성장하는 부동산시장과 이를 뒷받침하는 국가경제의 고도성장을 필요로 하는‘고도성장기형’도시재생사업이라 할 수 있다. 따라서 2008년 국제금융위기 이후 저성장의 경로를 따르고 있는 국내경제 상황과는 잘 맞지 않는다. 뿐만 아니라, 사업지구 내에서는 주민보상과 세입자 주거․이주대책과 관련하여 조합원과 비조합원 및 세입자 간 극한 갈등이 발생되어 왔다.

또한 원주민의 재정착율이 낮아 지역공동체가 파괴되는 등 공공성이 크게 훼손되어 왔다. 이에 따라 지난 2012년 2월「도시 및 주거환경 정비법」이 개정되어 정비사업의 공공관리 업무와 책임범위가 확대되었다. 세입자의 주거 및 이주대책 수립에 관한 지원, 관리처분계획 수립에 관한 지원 업무가 추가되었고, 지방정부의 공공관리 책임범위도 정비구역을 지정․고시한 날부터 최초 관리처분 계획 인가 시점까지로 확대된 것이다. 이는 도시재생사업 그 자체가 내재하고 있는 지역공공재로서의 공공성에 대한 인식의 확대를 의미하며, 도시재생사업에 대한 공공관리자로서의 지방정부의 역할과 책임을 강조한 조치로 볼 수 있다. 본 연구는 저성장기 도시재생의 지속적 추진을 위한 선결과제를 도시재생사업의 부족한 수익성 보충과 공공성 회복으로 인식하고, 사업추진 과정에서 주민 간 갈등이 집중되고 있는 철거 및 이주대책 부문에 대한 지방정부의 재정지원 방안을 제시하고자 하였다. 구체적으로 도시재생사업에 따른 세수잉여를‘지방세 도시재생-갭(GAP)’이라 명명하고, 이를 이용하여 도시재생사업에 활용하는 방안을 제시하였