제 4 개정판을 내면서

지역개발에 대한 논의가 학술적 차원뿐만 아니라 정책적 차원에서 주목받은 지도 벌써 반세기가 지났다. 지역의 자생적 경쟁력을 높여서 글로벌경제 흐름과 지방화 추세에 능동적으로 대처해야 한다는 공감대가 형성된 것 역시 벌써 수십 년이 흘렀다. AI(인공지능)와 빅데이터, 사물인터넷 등이 전통적 산업기술과 결합해서 고부가가치를 창출하는 4차 산업혁명 역시 어느 날 우리 앞에 나타났다. 특히 AI 기술의 엄청난 발전 속도는 관련 전문가들의 예상조차 뛰어넘고 있다. AI 기술이 다른 산업기술과 생산역량, 그리고 더 나아가서 사람들의 일상생활에 어떤 영향을 미칠지 예상하기 어려운 상황이다. 우리가 원하든 원치 않든 이와 같은 흐름과 기술 발전은 지역경제와 지역산업, 지역 노동력 및 인구구조, 사람들의 생각 및 생활방식까지 변화시켜 갈 것이다. 이와 같은 흐름과 기술 발전과정에 제대로 대처하지 못하는 지역은 쇠퇴하고, 나아가 지역주민들의 발전 의지까지 꺾는 악순환의 흐름에 빠져들게 될 것이다. 그리고 그와 같은 악순환 과정은 궁극적으로 해당 지역뿐만 아니라 국가의 장래에도 어두운 그림자를 드리우게 할 것이다.

지역개발의 목표는 지역의 자생적 경쟁력을 키워 글로벌경제 흐름에 대처하고, 지방화 흐름에 능동적으로 부응하며 지역주민들의 삶의 활력을 높여가는 것이다. 더 나아가서, 지역주민의 삶의 질 개선을 통해 국가 발전에 기여하는 것이 지역개발의 핵심적 지향점이다. 지역산업 정책에서 자유방임적 시장경제원리의 결과가 사회적 최적(social optimum)과 일치하지 않을 가능성이 높다. 지역산업 정책에서 자유방임적 시장메커니즘이 아닌 정부의 개입을 통한 현상 개선 여지가 상당 부분 존재한다. 물론 지역정책의 중요성이 지역산업 정책에 한정되는 것은 아니다. 다양한 부문별 지역정책이 중요하다. 그렇다고 해서 모든 지역문제에 정책적 해결방안이 능사가 아니라는 것 역시 분명하다. 시장의 적절한 역할과 그 범위에 대한 논의 역시 필요함을 부인할 수 없다. 지역개발 논의의 핵심 쟁점은 크게 공간흐름, 공간구조, 공간정책으로 구분할 수 있다. 이 핵심 쟁점들이 오래전 이 책을 처음 집필할 때부터 담고자 했던 책의 핵심 내용이다.

제 3 개정판을 낸 지 벌써 8년이 흘렀다. 새로운 변화 흐름을 수용하고, 내용상 다소 진부한 부분들을 수정하고 보완할 때가 되었다. 제 3 개정판을 낼 때부터 저자들은 특정 시공간에 국한되지 않는 내용 위주로 기술하고자 노력했다. 그리고 새로운 흐름에 부응해야 하지만, 아울러 기본에 충실해야 한다고 생각했다. 새로운 사회적 이슈를 반영하되 특정 공간에 한정될 수밖에 없는 각종 통계자료는 최대한 삭제하거나 정리했다. 핵심 쟁점 관련 이론과 정책 논의 위주로 편집했다. 다만, 복합적 지역 문제들에 대한 접근 및 해결방안 모색은 현상에 대한 이해 위주로 한정되어서는 안 될 것이다. 문제의 원인에 대한 성찰을 통한 창조적 해결방안으로 나아가야 한다. 창조적 해결방안이 절실하다는 것을 인지하고 있지만, 저자들의 역량 부족으로 이번 개정판을 통해 얼마나 이 책의 내용이 개선되었는지 장담할 수 없다. 앞으로도 부족한 부분은 계속 수정하고 보완할 예정이다.

출판 여건이 만만치 않음에도 불구하고 반듯한 제 4 개정판이 세상에 나올 수 있도록 중요한 역할을 맡아 준 박영사 편집부 사윤지 선생님과 표지 디자인을 맡아 준 벤스토리 직원 여러분, 그 외 여러분께 감사의 말씀을 전한다.

영남대 도시공학과 교수를 지냈고, 정년퇴직 후 현재 영남대 명예교수로 있다.

영남대학교 상대 경제학과 졸업
서울대학교 환경대학원 졸업(도시계획학 석사)
미국 The Ohio State University 대학원 도시 및 지역계획학과
졸업(도시 및 교통계획학 박사)
미국 Purdue University 객원교수
대한교통학회 이사, 부회장, 고문
대한국토·도시계획학회 이사, 상임이사
한국지역학회 이사, 부회장
국토교통부 중앙도시계획위원회 위원
국토교통부 신공항건설심의위원회 위원
국토교통부 중앙물류단지계획심의위원회 위원

제 1 편 지역개발의 의의
제 1 장 지역개발의 개념과 지역문제
제1절 지역개발의 개념··········································· 3
1. 지역이란 무엇인가················································3
2. 지역개발의 의미··················································7
3. 유사용어와의 구별················································9
제2절 지역문제·················································12
1. 지역문제의 개념·················································13
2. 지역문제의 원인·················································13
3. 전형적인 문제지역···············································15
? 연습문제····································································· 17
제 2 장 지역개발의 학문적 성격과 범위
제1절 지역개발의 배경··········································18
1. 도시문제의 등장·················································18
2. 지역불균형 현상·················································19
3. 자연자원의 개발 필요성··········································19
4. 국가주도적 경제개발의 추진······································19
제2절 지역개발의 학문적 성격···································19
1. 종 합 성·························································20
2. 응 용 성·························································21
3. 공 간 성·························································21
제3절 지역개발의 연구범위······································22
1. 전통적 연구범위·················································22
2. 최근 연구범위···················································24
제4절 지역개발의 구성요소······································25
제5절 지역개발의 이념··········································26
1. 효 율 성·························································26
2. 합 법 성·························································26
3. 민 주 성·························································27
4. 형 평 성·························································27
5. 대 응 성·························································27
6. 자 치 성·························································28
7. 환 경 성·························································28
8. 협 력 성·························································28
? 연습문제····································································· 29

제 2 편 지역의 공간구조에 대한 이론
제 3 장 공간흐름과 지역공간구조
제1절 공간흐름과 지역공간구조 : 공간구조분석의 이론적 틀······33
제2절 인구이동과 정주패턴······································35
1. 인구이동························································35
2. 정주패턴························································37
제3절 투자와 경제활동의 입지패턴·······························38
1. 1차 산업의 입지··················································38
2. 2차 산업의 입지··················································40
3. 3차 산업의 입지··················································47
4. 4차 산업의 입지··················································51
제4절 의사결정과 권력의 공간구조·······························52
제5절 쇄신의 확산과 사회·문화적 공간패턴······················53
1. 쇄신확산의 의의·················································53
2. 쇄신확산의 공간적 특성과 시간적 특성····························54
3. 쇄신의 확산유형·················································56
4. 쇄신확산의 지역정책적 시사······································59
? 연습문제····································································· 60
제 4 장 도 시 화
제1절 도시화의 의의············································61
1. 도시화의 개념···················································61
2. 도시화의 원인···················································62
제2절 도시화의 진행패턴과 추세·································63
1. 도시화의 진행패턴···············································63
2. 도시화 추세·····················································65
제3절 도시화의 특징과 문제점···································67
1. 대도시권의 외연적 확산··········································67
2. 종주도시화· ·····················································68
3. 가도시화························································68
? 연습문제····································································· 69
제 5 장 정주체계
제1절 정주체계의 의의··········································70
제2절 도시와 농촌의 공간구조···································71
1. 도시의 공간구조·················································71
2. 농촌의 공간구조·················································73
제3절 도시의 계층··············································74
제4절 도시의 규모··············································75
1. 순위규모분포····················································76
2. 도시의 적정규모·················································78
? 연습문제····································································· 81
제 6 장 지역성장의 이론 : 전통적 시각
제1절 지역성장이론의 의의······································82
제2절 수출기반이론·············································83
1. 모 형··························································84
2. 수출기반이론의 장점·············································85
3. 수출기반이론의 문제점···········································85
제3절 신고전이론···············································87
제4절 불균형이론···············································89
제5절 지역성장과 대도시의 성장관리····························90
? 연습문제····································································· 93
제 7 장 지역성장의 이론 : 비판적 시각
제1절 다양한 비판적 시각들·····································94
1. 중심과 주변관계론(center-periphery model)···················· 94
2. 마르크스주의 접근···············································99
3. 신개발론······················································ 101
제2절 비판적 시각의 적용······································105
1. 낙후지역······················································ 105
2. 도시토지이용에 대한 자본논리론································ 107
? 연습문제····································································109

제 3 편 지역개발의 전략
제 8 장 지역개발전략의 개관
제1절 지역개발전략의 의의·····································113
제2절 지역개발전략의 성격·····································115
1. 지역개발전략의 수립배경······································· 115
2. 지역개발전략의 성격··········································· 115
제3절 지역개발전략의 유형·····································116
1. 하향식 개발전략··············································· 116
2. 상향식 개발전략··············································· 117
제4절 지역개발전략의 한계·····································118
? 연습문제····································································119
제 9 장 성장거점전략
제1절 성장거점전략의 의의·····································120
1. 기본개념······················································ 121
2. 성장거점의 필요성············································· 124
제2절 성장거점도시의 선택기준과 활성화 방안··················125
1. 선택기준······················································ 125
2. 활성화 방안··················································· 127
제3절 성장거점전략의 평가·····································128
1. 긍정적인 면··················································· 128
2. 문 제 점······················································· 128
? 연습문제····································································130
제10장 기본욕구전략
제1절 기본욕구의 의의·········································131
1. 기본욕구의 개념··············································· 132
2. 기본욕구의 유형··············································· 133
제2절 기본욕구의 내용과 전략··································134
1. 기본욕구의 내용··············································· 134
2. 기본욕구의 전략··············································· 136
제3절 기본욕구전략의 활용과정································137
1. 기본욕구의 확인 및 측정······································· 137
2. 기본욕구의 분석 및 평가······································· 139
3. 기본욕구를 위한 계획 수립····································· 140
4. 정책집행······················································ 141
제4절 기본욕구이론에 대한 비판································142
1. 가정(假定)에 관련된 비판······································ 142
2. 순진성과 유토피아성에 관련된 비판····························· 143
? 연습문제····································································144
제11장 대도시권의 성장관리전략
제1절 대도시권 성장관리의 의의································145
제2절 대도시 인구분산을 위한 접근방법·························146
1. 지역 내 분산과 지역 간 분산 · ·································· 147
2. 인구이동촉진을 통한 접근방법과 자본이동촉진을 통한 접근방법························· 148
제3절 수도권의 성장관리전략··································149
1. 수도권문제· ··················································· 149
2. 수도권문제를 보는 두 가지 시각································ 150
3. 우리나라 수도권정책의 변천···································· 151
제4절 광역도시권 개발전략····································157
1. 광역도시권 개발의 의의········································ 157
2. 광역도시시설의 유형··········································· 158
3. 광역도시체제의 운영방식······································· 160
4. 광역도시권 개발의 문제점과 발전과제··························· 163
제5절 개발제한구역제도·······································167
1. 개발제한구역의 의의··········································· 167
2. 개발제한구역의 연혁··········································· 167
3. 우리나라 개발제한구역제도의 도입배경과 개발제한구역 지정현황························· 168
? 연습문제····································································169
제12장 낙후지역개발전략
제1절 낙후지역개발의 의의·····································170
1. 농촌개발의 개념··············································· 170
2. 농촌개발의 기본요소··········································· 171
3. 농촌개발의 측정지표··········································· 173
4. 농촌 및 농업의 기능············································ 173
제2절 농촌개발정책············································175
1. 농촌개발정책의 필요성········································· 175
2. 농촌개발정책의 요소··········································· 177
3. 농촌개발정책의 종류··········································· 178
제3절 농촌개발전략············································182
1. 성장지향적 전략··············································· 182
2. 복지지향적 전략··············································· 183
3. 대응적 전략··················································· 183
4. 통합적 또는 전체적 전략······································· 184
제4절 오지낙후지역의 개발·····································184
1. 오지(奧地)낙후지역개발의 의의································· 184
2. 오지낙후지역의 개발방향······································· 185
? 연습문제····································································187
제13장 지역혁신전략
제1절 지역혁신전략의 의의·····································188
1. 지역혁신전략의 개념··········································· 189
2. 지역혁신전략의 필요성········································· 190
3. 지역혁신전략에 대한 오해······································ 191
제2절 지역혁신전략과 지역혁신체계····························193
1. 지역혁신체계의 개념··········································· 193
2. 지역혁신체계의 성격··········································· 194
3. 지역혁신체계와 사회적 자본···································· 197
제3절 지역혁신전략의 정책적 함의······························199
? 연습문제····································································200

제 4 편 지역개발과 재정
제14장 지역개발 재정체계
제1절 지역개발 재원조달방안··································203
제2절 중앙정부로부터의 재원조달······························204
1. 지방교부세· ··················································· 204
2. 국고보조금제도················································ 206
제3절 지방자치단체의 자체재원조달····························208
1. 지 방 세······················································· 208
2. 세외수입······················································ 211
3. 지 방 채······················································· 214
4. 지역개발기금·················································· 219
? 연습문제····································································220
제15장 지역개발과 민간자본
제1절 지역개발의 의의·········································221
1. 재원조달의 기본방향··········································· 222
2. 민간부문의 활용을 통한 재원조달······························· 224
제2절 민자유치················································225
1. 민자유치의 기본방향··········································· 226
2. 민자유치의 추진절차··········································· 227
3. 민자유치의 활성화 방안········································ 228
4. 민자유치에 있어서 고려사항···································· 229
? 연습문제····································································230

제 5 편 지역개발의 분석 및 계획기법
제16장 지역인구의 예측모형
제1절 지역인구 예측의 의의····································233
제2절 지역인구 예측모형·······································234
1. 비요소모형(non-component models)···························· 234
2. 요소모형(component models)··································· 239
제3절 예측모형 선택시의 유의사항······························243
1. 인구자료의 유형 및 질·········································· 243
2. 예측의 용도··················································· 244
3. 분석의 규모··················································· 244
4. 예측기간의 길이··············································· 245
5. 이용가능한 예산·인원·시간···································· 245
? 연습문제····································································246
제17장 지역경제의 분석모형
제1절 경제기반모형············································247
1. 경제기반모형의 의의··········································· 247
2. 경제기반모형의 이론적 배경과 기본가정························· 248
3. 경제기반분석의 절차 및 방법··································· 249
4. 경제기반모형의 장점과 단점···································· 253
제2절 변화-할당모형··········································254
1. 변화-할당모형의 의의········································· 254
2. 변화-할당모형의 기본가정····································· 255
3. 변화-할당분석의 기본모형····································· 255
4. 변화-할당모형의 적용사례····································· 258
5. 변화-할당모형의 장점과 단점·································· 259
제3절 지역투입-산출모형······································260
1. 지역투입-산출모형의 의의····································· 260
2. 지역투입-산출모형의 기본가정································· 261
3. 지역투입-산출분석의 방법····································· 261
4. 지역투입-산출모형의 장점과 단점······························ 265
? 연습문제····································································267
제18장 지역 공공투자사업의 비용-편익 분석기법
제1절 비용-편익 분석의 의의와 절차···························268
1. 비용-편익 분석의 의의········································ 268
2. 비용-편익 분석의 절차········································ 269
3. 비용-편익 분석의 몇 가지 이슈································· 272
제2절 비용-편익 분석의 평가기준······························273
1. 순현재가치· ··················································· 273
2. 내부수익률· ··················································· 275
3. 편익-비용 비율················································ 277
4. 자본회수기간·················································· 278
5. 평가기준의 비교평가··········································· 279
제3절 비용과 편익의 측정······································280
1. 비용과 편익의 구분············································ 280
2. 비용의 측정··················································· 281
3. 편익의 측정··················································· 282
제4절 적정할인율의 선택과 분배의 문제·························291
1. 적정할인율의 선택············································· 291
2. 분배의 문제··················································· 293
? 연습문제····································································294
제19장 지역공간의 형평성 측정기법
제1절 형평성의 의의···········································296
1. 형평성의 개념················································· 297
2. 형평성의 유형················································· 297
3. 형평성과 효율성의 상충관계···································· 302
제2절 형평성 측정기법·········································303
1. 기존시설의 규정된 범위를 초월하는 지역의 도식화··············· 304
2. 욕구 대 서비스 비율············································ 304
3. 상관관계분석·················································· 305
4. 지수방법······················································ 305
제3절 형평성과 지방정부 재조직································307
1. 전통적 접근··················································· 307
2. 정치경제학적 접근············································· 308
? 연습문제····································································309

제 6 편 지역정책
제20장 지역정책의 의의와 성격
제1절 지역정책의 의의·········································313
제2절 지역정책의 성격·········································314
제3절 지역정책의 목표·········································316
1. 경제성장······················································ 316
2. 소득재분배와 형평성 제고······································ 316
3. 자립·························································· 317
4. 생활의 질의 개선·············································· 317
5. 상향식 개발··················································· 317
? 연습문제····································································318
제21장 도시개발정책
제1절 도시개발정책의 의의·····································319
1. 도시개발과 관련된 환경의 변화································· 319
2. 도시개발정책의 개념··········································· 320
3. 도시개발정책의 문제점········································· 320
제2절 도시개발정책의 추진세력································321
1. 다 원 론······················································· 322
2. 엘리트론······················································ 323
3. 마르크스주의·················································· 324
4. 코프라티즘(corporatism)········································ 327
5. 평가 및 적용··················································· 329
제3절 도시개발전략············································330
1. 전원도시관· ··················································· 330
2. 기획전략······················································ 331
3. 개선전략······················································ 333
제4절 도시재개발··············································334
1. 도시재개발시행의 이유········································· 334
2. 도시재개발의 유형············································· 335
제5절 신도시개발··············································337
1. 신도시개발의 개념············································· 337
2. 신도시개발의 목표············································· 337
3. 신도시개발의 유형············································· 338
4. 신도시개발의 주요 이슈········································ 338
5. 한국의 신도시개발············································· 339
제6절 도시지하공간의 개발·····································340
1. 지하공간의 개념··············································· 340
2. 지하공간 이용의 목적·········································· 341
3. 지하공간의 필요성············································· 342
4. 지하공간의 종류··············································· 343
5. 도시계획과 지하공간의 개발···································· 344
6. 법제도의 적용확대············································· 344
제7절 지속가능한 도시개발·····································345
1. 지속가능한 도시개발의 의의···································· 345
2. 지속가능한 개발의 대두········································ 347
3. 지속가능한 개발의 전략········································ 348
? 연습문제····································································349
제22장 지역경제정책
제1절 지역경제의 의의·········································350
1. 지역경제의 의의··············································· 350
2. 지역산업구조의 변화와 지역의 흥망····························· 351
3. 지역경제성장과 산업생산체제·································· 353
제2절 지역경제개발정책·······································354
1. 테크노폴리스·················································· 354
2. 테크노파크· ··················································· 358
3. 비즈니스 인큐베이터··········································· 358
4. 산업장려지구·················································· 360
5. 산업클러스터·················································· 362
제3절 주요 도시의 산업구조변화와 지역경제정책················366
1. 서 울······················································ 366
2. 피츠버그······················································ 367
3. 브 레 멘······················································· 368
4. 제 3이탈리아 산업지구········································· 369
? 연습문제····································································372
제23장 지역주택정책
제1절 지역주택정책의 의의·····································373
1. 지역주택문제·················································· 373
2. 불량주택의 개념··············································· 374
3. 도시지역 불량주거환경의 특성·································· 375
제2절 불량주택의 형성과정·····································378
1. 일제식민기· ··················································· 378
2. 해방과 한국전쟁··············································· 378
3. 산 업 화······················································· 379
4. 후기산업화· ··················································· 379
제3절 지역주택정책의 개관·····································379
1. 도시지역 주택정책············································· 379
2. 농촌지역 주택정책············································· 386
제4절 지역주택정책의 방향·····································388
1. 도시재개발사업의 지속적 추진·································· 388
2. 영구임대주택공급의 지속적 확대································ 388
3. 현금보조정책과 영구임대주택공급의 병행추진··················· 389
4. 금융지원 프로그램의 개발······································ 390
? 연습문제····································································391
제24장 지역토지정책
제1절 토지시장의 특성과 정부개입의 필요성····················392
1. 불완전경쟁적 토지시장········································· 392
2. 시장의 실패··················································· 394
제2절 지역토지정책의 목표·····································395
제3절 지역토지정책수단(Ⅰ) : 토지이용규제·····················397
1. 토지이용계획과 용도지역·지구제· ······························ 397
2. 용도지역·지구제의 연혁········································ 398
3. 용도지역·지구제의 내용········································ 400
4. 전통적인 용도지역·지구제의 문제점 및 발전방향················ 404
5. 새로운 도시토지이용 규제방법의 모색··························· 406
제4절 도시토지정책수단(Ⅱ) : 토지개발과 공급··················409
1. 토지개발사업의 종류··········································· 409
2. 토지구획정리사업·············································· 410
3. 공영개발사업·················································· 413
4. 도시개발법에 의한 도시개발사업································ 415
제5절 도시토지정책수단(Ⅲ) : 개발이익환수제도················417
1. 개발이익환수의 의의··········································· 417
2. 과세적 방법··················································· 418
3. 비과세적 방법················································· 419
? 연습문제····································································419
제25장 지역교통정책
제1절 지역교통의 의의·········································420
1. 지역교통의 의의··············································· 420
2. 교통체계와 토지이용체계······································· 421
제2절 지역교통문제············································423
1. 도로교통혼잡·················································· 424
2. 주차문제······················································ 424
3. 대중교통수단의 문제··········································· 425
4. 교통공해······················································ 426
5. 교통사고······················································ 427
제3절 지역교통정책············································428
1. 지하철시대의 대중교통체계 정비································ 429
2. 도시공간구조의 다핵화········································· 430
3. 교통시설의 확충과 정비········································ 430
4. 교통체계관리·················································· 431
5. 교통행정체계·················································· 432
6. 첨단 경량전철시스템··········································· 434
7. 지능형 교통체계··············································· 435
? 연습문제····································································437
제26장 지역환경정책
제1절 지역환경보전의 의의·····································438
제2절 지역환경의 문제·········································440
1. 대기오염······················································ 441
2. 수질오염······················································ 441
3. 폐기물 발생 및 처리············································ 442
제3절 지역환경정책············································443
1. 지역환경정책의 기본방향······································· 444
2. 대상분야별 대책··············································· 446
3. 지역환경정책의 문제점········································· 449
제4절 새로운 선택과 과제······································450
? 연습문제····································································451
제27장 지역정책과 갈등관리
제1절 갈등과 지역이기주의·····································452
1. 지역이기주의의 대두배경 ······································ 452
2. 갈등과 지역이기주의의 개념···································· 454
3. 갈등과 지역이기주의의 유형···································· 455
4. 갈등의 상호양식··············································· 456
제2절 지역이기주의의 원인과 대립적 시각······················457
1. 지역이기주의의 원인··········································· 457
2. 지역이기주의에 대한 대립적 시각······························· 460
제3절 지역이기주의와 갈등관리방안····························462
1. 행정제도적 방안··············································· 463
2. 타협(compromise)적 전략······································· 467
? 연습문제····································································474

제 7 편 지역개발의 미래
제28장 지역개발의 회고와 전망
제1절 지역개발의 회고·········································477
1. 단편적 지역개발시대(1960년대)································· 477
2. 제 1차 국토종합개발계획시대(1970년대)························ 479
3. 제 2차 국토종합개발계획시대(1980년대)························ 481
4. 제 3차 국토종합개발계획시대(1990년대)························ 483
5. 제 4차 국토종합계획시대(2000년대)····························· 483
6. 지역개발의 종합평가··········································· 484
제2절 지역개발의 전망과 방향모색······························486
1. 세계화시대의 지역개발········································· 486
2. 광역생활권시대의 지역개발····································· 487
3. 지방자치시대의 지역개발······································· 488
4. 도시화시대의 지역개발········································· 489
5. 환경보전시대의 지역개발······································· 489
6. 갈등표출시대의 지역개발······································· 490
7. 정보화시대의 지역개발········································· 491
8. 통일시대의 지역개발··········································· 492
9. 지방인구소멸시대의 지역개발 ·································· 493
? 연습문제····································································495

참고문헌···································································· 496
인명색인···································································· 515
사항색인···································································· 517