공공과 민간 참여를 통한 공공성 기반의 지역개발 연구 : 지역주택조합을 중심으로

지역주택조합을 중심으로 공공·민간 참여형 지역개발을 연구했다.

Housing is a space for individual life and an essential element indispensable to human living. Housing policy, which aims to ensure the people's 'residential stability' and 'improvement of housing standards', is designed to enable the government to 'participate' in the construction and supply of housing. The 「Housing Act」 stipulates the fundamental matters concerning housing supply in Korea.

Local-Housing-Associations, which have long contributed to housing supply under the application of the 「Housing Act」, are private projects initiated and implemented by low-income individuals with actual housing needs, who organize cooperatives and 'participate' directly in the project, not for speculative purposes. When local development is promoted solely by the private sector, it faces difficulties in resolving various issues, thereby requiring the 'participation' of the public sector. The 'participation' of the public sector in private projects ultimately aims to realize the public interest through the 'enhancement of publicness'.

In light of this objective, the 'participation' of the public sector is necessary in Local-Housing-Association projects, which pursue public contributions in various ways. However, such 'participation'—particularly in the form of management, supervision, and support—has not been implemented, leading to a range of problems. Accordingly, this study aims to propose measures for securing 'publicness' so that the problems associated with Local-Housing-Association projects can be jointly addressed and improved through the 'participation' of both the public and private sectors.

The ultimate goal is to ensure that these projects serve as housing policies tailored to the characteristics and actual conditions of each region, thereby continuously contributing to the 'residential stability' and 'improvement of housing standards' for low-income households. Local development is essential for addressing regional problems, identifying strategies to cope with local changes, improving locational conditions, resolving broader inter-regional issues, utilizing natural resources, and reducing regional disparities.

In the context of local development, 'participation' refers to a process in which various stakeholders from both the public and private sectors, holding equal rights, form democratic and autonomous communities and influence development planning and decision-making. Accordingly, for Local-Housing-Association projects to continue playing a leading role in housing supply nationwide—as they have done thus far—active 'participation' from the public sector and sustained 'participation' from the private sector are required. This study identifies 'public interest', 'fairness', 'equity', and 'transparency' as the conceptual components of 'publicness'.

In the context of local development, 'publicness' is defined as: (1) actions carried out by the public sector toward the private sector through policies and legal frameworks, as well as actions presented by the private sector to the public sector in accordance with such frameworks (reciprocity); (2) the pursuit of mutual benefits based on the 'participation' of both the public and private sectors (commonality); and (3) the condition of being open and accessible to both sectors (openness). Accordingly, securing 'publicness' in local development is necessary to ensure that the benefits of development are distributed not only to the private sector but also to the public sector.

As a result of a 'status survey' conducted on 226 basic local governments across 17 metropolitan municipalities nationwide, it was found that, as of the end of 2024, Local-Housing-Association projects were being implemented at 839 locations across the country, with a total of 503,530 planned housing units.

Public contributions made through these projects have taken various forms, including the provision of rental housing; public facilities such as government offices, public parking lots, public health centers, welfare facilities, senior centers, local self-sufficiency support centers, and science and mathematics experience centers; as well as daycare centers, parks (e.g., small-scale parks and children's parks), elementary schools, roads, and other facilities such as public open spaces. However, both the quantity and quality of public contributions vary depending on the level of 'participation' by the public sector.

In municipalities where the public sector is actively involved, diverse and structured forms of public contributions are being implemented through systems such as the 'pre-negotiation system for urban planning changes', which enables both the public and private sectors to discuss public contribution methods from the district-unit planning stage. A structured 'survey' using a measurement scale was conducted targeting employees of project management agencies and trust companies, as well as professionals such as professors, lawyers, public officials, and urban planning specialists.

The results indicated that all sub-items related to the following categories recorded mean scores of 4.000 or higher: perception of the Local-Housing-Association system, recognition of system-related issues, and issue recognition at each project phase (establishment, approval, construction initiation, and dissolution), as well as across the overall project process. In addition, all sub-items under the reasons for unresolved problems and the proposed improvement measures also showed mean scores above 4.000, indicating a broad consensus on the necessity of developing detailed strategies to secure the 'publicness' of Local-Housing-Association projects.

Accordingly, this study proposes the following strategies to secure the 'publicness' of Local-Housing-Association projects. First, under 'expanding governance for sustainable development', the following measures are proposed: ① the implementation of 'participatory education programs'; ② the 'diversification of participating actors'; and ③ the