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District-Unit Plan and Calculation of Public Contribution
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지구단위계획과 공공기여의 산정

논문 기본 정보

Type
Academic journal
Author
Kim Jong-Bo (서울대학교) Heo Ji-in
Journal
Korea Administrative Law And Practice Association ADMINISTRATIVE LAW JOURNAL No.67 KCI Accredited Journals
Published
2022.3
Pages
137 - 162 (26page)
DOI
10.35979/ALJ.2022.03.67.137

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District-Unit Plan and Calculation of Public Contribution
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In order for the owner to build a building on the relevant land, he/she must comply with the urban plan already established and determined by the administrative agency. However, there are cases where large-scale idle land is developed in combination for urban development or the area needs to be newly developed due to the relocation of urban planning facilities. In this case, the implementer of development project can proceed with the development project accordingly only when the administrative agency first changes to an urban plan that includes matters necessary for development. And this change in urban plan generates enormous development profits for implementers of development project. Therefore, through pre-negotiation and district-unit plans, the administrative agency changes it to an appropriate urban plan for development projects such as floor space index incentive, and in return, imposes the payment of land or money for public facilities on the implementer of development project. In this way, the obligation imposed by the administrative agency to the implementer of development project to recover the development profits from the change in urban plan is called “public contribution”.
Since public contribution is a structure in which implementers of development project provide public facilities to relax the floor space index, it is often recognized and used similarly to “floor space index incentive according to the provision of new public facilities” among legal system for public facilities under the Development Project Law. Public contribution can be seen as a flexible transformation of the legal principles based on the legal system for public facilities under the Development Project Law. If so, public contribution needs to be interpreted and operated according to the characteristics distinguished from the legal system for public facilities under the Development Project Law. In particular, the key part that needs to establish standards for interpretation according to the conceptual purpose of public contribution is the calculation of public contribution.
Public contribution has limitations in public law that cannot exceed the increase in land value due to changes in urban plan. In addition, the calculation of public contribution shall be in line with the public interest and shall not violate the principle of proportionality. Specific methods of the calculation of public contribution can be determined according to the principle and characteristic of public contribution. First, in order to reflect the actual increase in land value, the calculation of public contribution is evaluated by classifying the current value and future value of the target land. Such property appraisal is conducted at the time of pre-negotiation and included in the district-unit plan through the public contribution plan. In addition, since the amount of public contribution is a part of the development profits that the implementer of development project must bear, it is calculated based on the future value reflecting the development profits. Specific legislation is needed in the future for the criteria for the calculation of public contribution and means for securing the performance of public contributions to implementers of development project.

건축주가 당해 토지에 건물을 건축하려면 행정청에 의해 이미 수립·결정된 도시계획에 맞게 하여야 한다. 그런데 도시의 발전을 위해 대규모 유휴토지를 복합개발하거나 도시계획시설 등의 이전으로 해당 지역이 새롭게 개발되어야 하는 경우가 있다. 이 경우 행정청이 먼저 개발에 필요한 사항이 포함된 도시계획으로 변경해야만 사업시행자는 그에 따른 개발사업을 진행할 수 있다. 그리고 이러한 도시계획 변경은 사업시행자에게 엄청난 개발이익을 발생시킨다. 따라서 행정청은 사전협상과 지구단위계획을 통해 용적률 완화 등 개발사업을 위해 적합한 도시계획으로 변경해주고 그 대가로 사업시행자에게 공공시설을 위한 토지 또는 금전 등의 출현을 부과한다. 이와 같이 행정청이 도시계획 변경으로 인한 개발이익을 환수하기 위해 사업시행자에게 부과된 의무를 ‘공공기여’라 한다.
공공기여는 사업시행자가 공공시설을 제공하여 용적률을 완화받는 구조라는 점에서 개발사업법상 공공시설 제도 중 ‘신설 공공시설의 제공에 따른 용적률 완화’와 유사하게 인식되어 혼용되는 경우가 많다. 공공기여는 개발사업법상 공공시설 제도를 원천으로 하여 그 법리를 유연하게 변형한 것으로 볼 수 있다. 그렇다면 공공기여는 개발사업법상 공공시설 제도와 구별되는 특징에 따라 그 제도가 해석되어 운영될 필요가 있다. 특히 공공기여의 개념 취지에 맞게 해석의 기준이 확립될 필요가 있는 핵심 부분은 공공기여의 산정이다.
공공기여는 도시계획의 변경으로 인한 토지가치의 상승분을 초과할 수 없는 공법상 한계가 있다. 그리고 공공기여의 산정 등이 공익에 부합하고 비례원칙에 위반되지 않아야 한다. 이와 같은 원칙과 공공기여의 특징에 따라 구체적인 공공기여의 산정방법을 정할 수 있다. 먼저 공공기여량 산정은 실질적인 토지 가치의 상승분을 반영하기 위해 대상 부지의 현재 가치와 미래 가치를 구분하여 감정평가 한다. 이와 같은 감정평가는 사전협상시에 실시하여 공공기여계획을 통해 지구단위계획에 담긴다. 그리고 공공기여량은 사업시행자가 부담해야 할 개발이익의 일부라는 점에서 개발이익이 반영된 미래 가치를 기준으로 산정한다. 공공기여의 산정기준, 사업시행자에게 공공기여의 의무이행을 확보하기 위한 수단 등에 대하여는 앞으로 구체적인 법제화가 필요하다.
#지구단위계획 #공공기여 #사전협상 #용적률 완화 #공공시설의 제공 #District-Unit Plan #Public Contribution #Pre-negotiation #Floor space index incentive #Provision of public facilities

Contents

국문초록
Ⅰ. 서론
Ⅱ. 지구단위계획과 공공기여
Ⅲ. 공공기여의 개념
Ⅳ. 공공기여의 산정
Ⅴ. 공공기여의 공공성과 의무이행 확보수단
Ⅵ. 결론
참고문헌
Abstract

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