서울시 도시계획변경 사전협상제도의 변천과정과 도입효과 연구

서울시 도시계획변경 사전협상제도의 변천과 도입 효과를 분석했다.

The Pre-negotiation System leads urban development by inducing good development that harmonizes with the surrounding area in terms of urban planning, and through integrated negotiations that can be win-win between the private sector and the public so that the benefits of planning from the change of use area can be shared socially. As a model for cooperative planning, the Seoul Metropolitan Government introduced it in 2009. The purpose of this study is to examine the background of Seoul’s introduction of this system at the time of its inception, 13 years after the establishment of , and the trend of the transition process in line with the times and social needs.

It is to check whether the system is evolving in accordance with the purpose and changing conditions of the times, and to suggest improvement plans by analyzing the effects and limitations of whether the system is being operated well in accordance with the purpose and purpose of the original introduction, centering on the cases of target sites that have been negotiated in advance. the Public Contribution incentive system, which was first introduced in the Urban Planning Act in 2000, only allowed land donations until the Pre-negotiation System was introduced.

In order for the Pre-negotiation System to work, it was necessary to diversify the types of public contributions and utilize them in a wide area, and to be able to change the use area through the District Unit Plan. In the end, as building donations became possible in March 2011, and changes in the use area for a specific area were allowed in April 2012, the Public Contribution was also expanded to autonomous districts, and was legislated. Consequently, preliminary negotiations were carried out in earnest, with ‘Gangdong-gu Seoul Seunghap’ in 2012, ‘Yongsan-gu Tourist Bus Terminal’ and ‘Mapo-gu Hongdae Station’ in 2013, and ‘Gangnam-gu Hanjeon Site’ in 2016.

The Seoul Metropolitan Government revised the ‘Pre-negotiation Operation Guidelines’ three times in 2015, 2016, and 2018 to include improvement plans based on trial and error in the negotiation process, leading to the process of establishing. In 2019, Pre-negotiations were actively underway, such as ‘Nowon-gu Kwangwoon University Station’, ‘Gwangjin-gu Dong Seoul Bus Terminal’, ‘Seocho-gu Kolon Site’, ‘Yongsan Railway Hospital’, and ‘Seoul Station North Station Area’.

The Seoul Metropolitan Government enacted the ‘Pre-negotiation Operation Ordinance’ in 2019 for the more stable operation of the Pre-negotiation System, and the National Land Planning Act was revised in 2021 to make wide-area use of public contributions. As such, it was confirmed that the public contribution of the Pre-negotiation System was repeatedly revised in accordance with the situation of the times and social needs, and is evolving developmentally according to the original purpose of introduction. The effect of the introduction of the Pre-negotiation System was confirmed through the analysis of the negotiation cases of 8 target sites where the Pre-negotiation was completed.

First, quantitative analysis was conducted by categorizing major issues such as public contribution, negotiation process, appraisal, and physical elements such as architecture and landscape planning. The effect of introduction was qualitatively analyzed in terms of aspects. The effect of the introduction of the Pre-negotiation System can be summarized as follows. First, the Pre-negotiation System established an appropriate development plan consistent with higher plans such as density, height, and use compared to other systems such as district unit plans, and contributed to urban development by expanding infrastructure such as roads and parks suitable for local conditions.

Second, it was confirmed that the system was being operated stably through the negotiation process for each site. the Pre-negotiation System was being operated stably by making up for institutional deficiencies while negotiating such as the establishment of the ‘Pre-negotiation District Unit Plan Establishment Guidelines’. Third, it provided considerable benefits to local residents and ordinary citizens by expanding infrastructure such as roads and cultural and welfare facilities for various purposes through public contributions following Pre-negotiations. Fourth, regional balanced development was induced by providing various types of public contributions in a wide area.

In the early days of the Pre-negotiation System, public contributions were limited to District Unit Plan Districts, but the scope of benefits gradually expanded beyond autonomous districts to the entire city of Seoul. Fifth, through the Pre-negotiation System, the private and public sectors were establishing a cooperative plan through integrated negotiation, establishing a win-win urban planning model. Breaking away from the existing top-down passive/regulatory urban planning, the negotiation and coordination council comprised of public and private parties raised various issues and went through intense discussions to improve the degree of completion of the plan.

Meanwhile, the following three system improvement tasks are proposed to overcome the limitations of revealed in the current research process. First, Pre-negotiations and establishment of District Unit Plans should be carried out in parallel so that matters agreed upon by the public and private sectors through Pre-negotiations can be consistently maintained during the implementation of follow-up procedures. Second, the main negotiation period should be shortened by preemptively presenting planning guidelines by introducing a pre-consulting system in the initial planning stage before negotiation. Third, the types of public contribution should be more diversified.

For the stable management of the continuously increasing number of public contribution facilities in the future, not only facility maintenance but also diversified utilization measures such as public funds should be prepared. 사전협상제도는