도시기본계획 수립 과정에 있어 참여그룹의 역할 및 평가지표에 관한 연구 : 2030 서울플랜을 중심으로

2030 서울플랜 수립 과정의 참여그룹 역할과 평가지표를 분석했다.

The policy of urban comprehensive plan has been firstly introduced to Korea in 1981 for the purpose of preventing indiscreet urbanization and facilitating efficient usage and long-term plan for urban space. The urban planners had intention to enhance the coherence with higher-level plan for the purpose of phase provision of urban comprehensive plan, the connectivity with plans for each different department established by different ordinances and the guideline for lower-level plans. These efforts were approached by two aspects.

The first is the effort of estimating various variables required for establishing urban comprehensive plan including population of urban comprehensive plan and land use plan in a more precise way in the aspect of establishing plans. The second is the effort of establishing the law- and system-oriented status of urban comprehensive plan in the planning and managing aspect. The problem is that, despite these efforts, there were difficulties for establishing the status for urban comprehensive plan as the top priority legal space planning. This was mainly due to the external factors of plan which had been established from introducing municipality in early 1990’s.

In order to recover its place for urban comprehensive plan, it is necessary to establish exquisiteness of internal variables as well as procedural democracy which is capable of managing political authority and administrative authority which are the exterior factors. Procedural democracy is essential in order to maintain the authority of planning after establishing one. Procedural democracy will be increased more and more when community participation is continuously and substantively practiced during the process of planning. The opportunity for community participation has been practiced in various methods in big cities of advanced countries.

The composition of planning has been rapidly switched to major issue oriented strategy planning from standardized department oriented planning. Adopting the global paradigm changes in urban comprehensive plan, Ministry of Land, Infrastructure and Transport in Korea has handed over the approval authority of urban comprehensive plan to local government by revising 「National Land Planning and Utilization Act」 in 2009.

It also revised 「Guidelines for Urban comprehensive Plan」 in 2012 and proceeded the various improvements in law and system for the purpose of enhancing effectiveness including community participation, expanding local council authority and setting goals for each major issue for characteristic of each city. In this research, analysis of role for each participating group had been conducted for the process of establishing urban comprehensive plan through 2030 Seoul Plan, the first case established after the revision of the law and system above. Investigation on awareness had been also performed on the role of participating group for each actual level in parallel with the expert surveys.

In addition, it has drawn the analysis items required for ultimately improving plan status by community participation and 12 detailed indexes have been drawn out through criticality analysis for each analysis group. In order to evaluate the community participation which affected the process of establishing urban comprehensive plan, the weighted value for each index has been computed and the management plan and evaluation standard has been proposed for the purpose of establishing urban comprehensive plan. Analysis items and detailed indexes for community participation had been finally drawn out by performing consideration upon existing researches and Focus Group Interview.

The weighted value of each analysis item and detailed index had been drawn out by utilizing Analytic Hierarchy Process for the expert group (academia or communities) which had been directly and indirectly involved in the process of establishing 2030 Seoul Plan. The criticality analysis on analysis item through AHP analysis regarding expert survey yields that professionalism is accounted for the most important factor followed by effectiveness, procedural legitimacy and democracy.

The result was conflicting: the academia experts put the priority on importance in the order of effectiveness, professionalism, procedural legitimacy and democracy, while community experts had procedural legitimacy, democracy, professionalism and effectiveness. Despite the fact that 2030 Seoul Plan was established with community participation, the participants actually put more emphasis on effectiveness and professionalism which were the original task for urban comprehensive plan. The implication of this research had been reviewed in the aspect of establishment and evaluation on effective management plan regarding community participation for establishing future urban comprehensive plan.

First, the results were conflicting depending on the type of the community group. One group was focused on ‘effectiveness’ and ‘professionalism’, while the other was focused on ‘procedural legitimacy’ and ‘democracy’. On the other hand, it should be reminded that ‘effectiveness’ of urban comprehensive plan can be enhanced when accumulated ‘professionalism’ is in harmony with ‘procedural legitimacy’ in accordance with the democratic process during the establishment. Second, it is necessary to establish a model for ‘process of establishing participating urban comprehensive plan’ under the premise that community participation is a comprehensive trend for establishing urban comprehensive plan.

Numbering means of the weighted value for 4 analysis items and 12 detailed indexes is required in this regard. Third, community participation has high performance in specific stages only for the process of establishing urban comprehensive plan, from which it requires a plan of promoting community participation in every process and a plan of enhancing representativeness of community participation. 우리나라에 1981년 도시기본계획 제도가 처음 도입된 것은 무분별한 도시화를 막고 도시 공간의 효율적 이용과 장기적 계획 수립을 용이하게 하기