충북연구원

제1장 일제강점기 충청북도 전경 001

제2장 일제강점기 청주군 전경 089

제3장 일제강점기 충주군 전경 205

제4장 일제강점기 제천군 전경 245

제5장 일제강점기 보은군 전경 281

제6장 일제강점기 옥천군 전경 311

제7장 일제강점기 영동군 전경 339

제8장 일제강점기 진천군 전경 361

제9장 일제강점기 괴산군 전경 367

제10장 일제강점기 음성군 전경 385

제1장 일제강점기 충청북도 전경 001

제2장 일제강점기 청주군 전경 089

제3장 일제강점기 충주군 전경 205

제4장 일제강점기 제천군 전경 245

제5장 일제강점기 보은군 전경 281

제6장 일제강점기 옥천군 전경 311

제7장 일제강점기 영동군 전경 339

제8장 일제강점기 진천군 전경 361

제9장 일제강점기 괴산군 전경 367

제10장 일제강점기 음성군 전경 385

제11장 일제강점기 단양군 전경 391

본 연구는 우선 협동조합의 이념, 구성, 활동과 도전, 그리고 기후변화로 인한 재생에너지협동조합의 대두와 기대를 살펴본다. 해외 사례로 독일의 경험과 과제를 정리하고 한국에서 도시형인 안산의 시민햇빛협동조합과 농촌형인 여주 구양리의 마을공동체 협동조합의 선도 발전사례를 조사하였다. 그다음 이러한 독일과 국내 두 선도 재생에너지협동조합의 발전과 과제가 충북에 주는 시사점을 도출하였다. 본 연구는 기후변화와 탄소중립을 실천하는 중요 주체로서 재생에너지협동조합의 발전과 과제를 문헌 연구, 통계 조사, 사례연구, 면접조사를 통하여 정리하였다. 협동조합이란 재화 또는 용역의 구매, 생산, 판매, 제공 등을 협동으로 영위하여 조합원의 권익을 향상하고 지역사회에 공헌하는 사회조직이다. 협동조합은 국제협동조합연맹(ICA)의 7대 원칙에 의해 운영된다. 협동조합의 기본 이념은 크게 경제적 민주주의, 사회적 연대, 지속가능성 세 가지 핵심 가치로 정리할 수 있다. 2011년 12월 29일 협동조합 기본법이 제정됨에 따라 이전 생협, 소비자 협동조합 같은 식품, 의식주 중심의 협동조합에서 현재는 사회적 필요에 따른 시민참여에너지협동조합의 설립과 활동이 활발하다. 우선 해외 사례로 독일의 경우 협동조합의 역사는 오래되었다. 2011년 후쿠시마 원전 사고와 기후변화에 대한 환경 인식이 국가 차원의 탈원전, 탈석탄, 재생에너지 확대라는 에너지전환 정책을 가속화하고 강화한다. 이에 발맞추어 재생에너지협동조합 설립이 급격히 늘었고 전국연합회까지 구성되어 다양한 지원과 연대활동이 활성화되어 있다. 법·제도적으로도 재생에너지발전
설치를 위한 부지확보, 이격거리 완화, 금융지원 등을 통해 주민참여를 지원하고 있다. 이렇게 양적, 질적 성장에도 해결과제들은 남겨져 있다. 하나는 전문적 역량을 확보하는 것이다. 주민이 기업이나 지자체의 발전사업에 지분참여가 아니라 주도적 참여를 위해서는 사업을 수행하는 전문적 기술 역량을 배양하여야 한다. 복잡한 입찰 절차에 참여하려면 협동조합이 점점 더 전문적인 관리(자본 인수, 프로젝트 계획 및 관리 포함)를 필요로 한다. 지자체와의 협력 수준도 매우 다양하다. 더욱 긴밀한 협력적 거버넌스가 필요하다. 2014년 8월에 이루어진 재생에너지법(EEG)의 개정에 따른 의무화된 ‘직접판매제’(Direktvermarktung)와 이후 ‘경쟁 입찰제’(Ausschreibung)로 인해 불리해진 소규모 협동국내 지역 선도적 재생에너지협동조합의 발전 사례와 과제조합은 전력 판매를 전담하는 협동조합에 시장거래를 위탁함으로써 발전사업에 참여하게 된다. 그리고 협동조합 조직의 내부 운영이 더 협동조합의 이념과 원칙에 맞게 운영되도록 조합원들의 공동 결정권 강화와 구성원 간의 다양성과 구성원의 선호도를 더 많이 고려한 커뮤니티 구조를 만들어야 하는 과제를 안고 있다. 2012년 12월 1일부터 한국에서 협동조합 기본법이 시행되었고, 다음 해 2013년에 최초의 햇빛발전협동조합도 설립되기 시작한다. 2013년에 25개 조합 설치부터 시작하여 문재인 정부 시기 탄소중립 정책에 발맞추어 2020년 100개, 2021년에는 173개 설치로 정점을 찍고 이후
코로나19 시기와 이전 정부시기에 하향하기 시작한다. 지역별 설립 수를 보면 경기도와 전라남도가 가장 두드러진다. 2014년에 전국시민발전협동조합연합회도 결성하여 연대활동을 펼치고 있다. 역사가 10년 남짓이어서 재생에너지협동조합의 활성화는 양적 확대와 비교해 내실은 부족한 편이다. 그리하여 과제 도출을 위해 우선 국내 지역 주민참여형 에너지협동조합의 선도적 지역사례로 도시형인 안산 시민햇빛발전협동조합의 출자 기여형, 농촌형인 여주 구양리의 마을공동체형으로 나누어 살펴보았다. 안산의 기여형은 협동조합 방식의 절차적 이익공유를 준수하고, 조합 배당과 일정부분 이익분을 지역사회에 환원하는 분배적 이익공유를 취하고 있다. 조합원 출자에 의한 기여 배당이며, 시민단체가 주축이 되어 강한 주민역량과 연대를 나타내는 유형이다. 지자체와의 협력을 통해 공공부지와 시설에 태양광을 설치한 민관협치의 모범이기도 하다. 과제는 협동조합이 조합원 중심이므로 더욱 많은 시민이 참여할 수 있는 발전설치를 모색하고 있고 시공 능력 기술을 향상하여 지역 협동조합에 전파하는 것도 계획하고 있다. 협동조합의 15.4% 배당소득세 징수는 소액 투자자에게 돌아갈 이익분이 적다는 것과 저소득층이 출자하기에도 한계가 있으므로 정부의 제도적 개선이 필요하다. 그리고 여주 구양리 마을공동체형은 공동체 관리와 소유로 100% 주민참여에 의한 절차적 분배적 이익공유를 실현하고 있다, 이를 위해서는 주민 간의 이해와 협력, 협조가 가장 중요한 부분이었다. 전형적인 농촌이지만 마을 임원들의 재생에너지 발전에 인식과 헌신, 지자체 공무원과의
협력이 두드러지게 나타난다. 이 유형은 마을 공유자산이 있을 때는 가능하지만 없는 마을들도 대다수이므로 전국적으로 확대되기에는 한계가 있다. 그래서 영농형 태양광이 농업시설로 법에 허용된다면 농신보에서 저리융자를 받을 수 있어서 확산성이 크다. 협동조합형과 마을공동체형 모두 저리 금융 대출을 받아서 투자할 수 있어야 하나, 국내에는 주민 또는 마을이 대출받을 수 있는 지역 금고는 없다. 지자체에서 금융지원을 위한 재생에너지 기금을 조성하여 지원한다거나 요 약국가가 재생에너지 전력기금으로 저리 담보대출을 확실히 보장한다면 주민참여형 재생에너지 확대가 빨라질 수 있다. 두 유형은 현 단계에서 각각 다양한 장점이 있고, 과제를 안고 발전 중이다. 그러나 전국 에너지협동조합에도 해당하지만, 계통연계, 부지확보, 이격거리 완화, 금융지원 등의 제도적 뒷받침이 되지 않으면 하나의 모델로 성장할 수 없다. 충북에 주는 시사점으로는 재생에너지 발전시설을 설치할 제도적 기반이 부족한 상황에서 독일의 사례나 국내 선도 재생에너지협동조합과 비교할 단계는 아니다. 우선 지자체와 민간 간의 협력 거버넌스의 구축이 무엇보다 중요하다. 청주, 충주의 시민햇빛발전협동조합이 작은 1호기 설치에 머물러 있고, 제천은 햇빛협동조합이 있어도 지자체와의 갈등으로 발전시설을 전혀 설치 못 하는 것은 충북 지자체의 무관심이 크기 때문이다. 그리고 독일의 환경교육과 환경시민운동의 성장이 기후변화 대응 재생에너지 확대 정책의 바탕이 되었다. 국내에서도 안산의 시민운동 활성화와 여주 구양리의 마을 임원진들의 헌신과 결속이 재생에너지 발전 활성화를 위한 주민 조직화에 기여하였다. 이렇듯 제도적 기반도 중요하지만, 시민사회의 역량과 의식이 기후 위기 대응 재생에너지 확대에 중요 주체로서 자리할 수 있다. 충북은 지자체의 무관심이 크고 상대적으로 시민사회의 상대적 량도 낮음을 알 수 있다. 제도적으로 우선 이격거리 규제 완화부터 개선하여야 한다. 실제로 이격거리 규제는 전국 재생에너지(주로 태양광) 설치 가능 잠재량을 대폭 감소시키는 요인이다. 지자체 조례에 따른 규제 완화가 필요하다. 금융, 계통연계 등 다른 제도적 기반을 다루기 이전에 부지확보가 선행되어야 조합원 확보, 금융 조달 방법 등을 고려할 수 있기 때문이다.

제I장 서론 ······················································································································· 1

1. 연구의 배경 및 목적 ·····································································································1

2. 연구의 방법 및 내용 ·······································································································3

제II장 이론적 배경 ············································································································ 5

1. 재생에너지협동조합의 이념과 구성 ·················································································5

2. 선행연구 검토 ··················································································································6

제III장 해외 사례 ‘독일’ ································································································· 9

1. 현황과 실태 ····················································································································9

2. 과제 ······························································································································15

제IV장 국내 선도적 재생에너지협동조합의 발전 사례와 과제 ····································· 19

1. 국내 재생에너지협동조합의 현황 및 실태 ····································································19

2. 선도적 사례 ···················································································································22

3. 과제 ································································································································31

제V장 결론 ······················································································································ 39

1. 요약 ······························································································································39

2. 충북에 주는 시사점 ·······································································································42

참고문헌 ····························································································································45

Abstract ·····························································································································50

Table of Contents ···········································································································51

본 연구는 충청북도가 2012년부터 추진해 온 ‘솔라페스티벌’과 이를 계승한 ‘친환경에너지페스티벌’의 지난 10여 년간의 성과를 회고하고, 급변하는 글로벌 에너지 통상 규제와 탄소중립 흐름 속에서 지속 가능한 산업 축제로 거듭나기 위한 혁신적인 발전 방안을 모색함. 기존 축제는 도민들에게 태양광 등 신재생에너지를 알리고 정책 수용성을 높이는 데 크게 기여했으나, 매년 개최지가 변경되는 시·군 순회 방식과 야외 텐트 중심의 시설 한계로 인해 기업 간 실질적인 비즈니스 창출이나 산업 생태계 고도화에는 구조적인 어려움이 있었음. 특히 글로벌 트렌드가 단순 홍보에서 기술 교류와 무역으로 이동함에 따라, 기존의 체험·관람 위주(B2C) 방식에서 벗어나 기업 지원 기능을 강화해야 한다는 필요성이 대두됨. 이에 본 연구는 2025년 개관하는 전문 전시컨벤션센터인 청주 오스코(OSCO)를 핵심 거점으로 활용하여, 행사의 성격을 기업 거래(B2B) 중심의 ‘(가칭)친환경에너지 산업위크(CEIW)’로 전면 개편하는 전략을 제시함. 구체적으로는 충북(생산), 충남(전환), 대전(R&D), 세종(정책) 등 충청권 4개 시·도가 보유한 상호보완적인 산업 밸류체인을 유기적으로 결합하여 광역 협력 시너지를 창출하는 데 중점을 둠. 이를 통해 단순 전시를 넘어 수출상담회, 투자설명회, 기술 이전 장터 등을 상설 운영함으로써 지역 기업의 판로 개척을 직접적으로 지원하고, 글로벌 바이어와 투자자가 찾아오는 중부권 최대의 에너지 비즈니스 플랫폼을 구축하고자 함. 나아가 연구 결과의 실행력을 담보하기 위해 단계별 추진 로드맵을 수립하였음. 1단계로 2026년 충북 주도의 성공적인 B2B 전시 모델(Reference)을 우선 정착시키고, 2단계로 충청광역연합 출범과 연계하여 4개 시·도 공동 개최로 확장하며, 최종적으로는 국제 인증을 획득하여 글로벌 에너지 엑스포로 도약하는 미래 청사진을 제시함. 아울러 축제의 안정적인 운영을 위해 ‘(가칭)충청권 에너지축제 지원 조례’ 제정 및 육성기금 조성 등 제도적 기반 마련을 제언하였으며, 지역 인재 양성을 위한 ‘에너지 잡(Job) 콘서트’와 비즈니스·관광을 결합한 ‘블레저(Bleisure)’ 프로그램을
병행하여 산업적 성과와 지역 경제 활성화를 동시에 달성하는 선순환 구조를 도출함.

제I장 서론 ························································································································· 1

1. 연구 배경 및 목적 ···········································································································1

2. 연구의 목적 ······················································································································3

3. 연구의 범위 및 방법 ·······································································································4

4. 연구의 기대효과 및 활용방안 ·······················································································7

제II장 친환경에너지페스티벌 운영 현황 및 진단 ···························································· 9

1. 페스티벌의 변천사 및 주요 성과 ····················································································9

2. 현행 운영 체계의 구조적 한계 ·····················································································12

3. 국내 유사사례 분석 및 시사점 ·····················································································16

제III장 충청권 에너지산업 생태계 분석과 상호보완성 분석 ········································· 21

1. 에너지 산업 분석 ··········································································································21

2. 지역별 에너지 산업 특화 현황 분석 ············································································24

3. 광역 협력의 당위성 및 상호보완성 분석 ·····································································29

4. 충청권 에너지 산업 클러스터 활성화를 위한 시사점 ················································31

제Ⅳ장 충청권 공동 에너지축제 플랫폼 구축 전략 ······················································ 33

1. 지속가능한 광역 협력 거버넌스 구축 ···········································································33

2. 오스코(OSCO) 기반 '친환경에너지 산업위크(CEIW)' 전환 ········································37

3. 고유 정체성 확립 및 시민·지역 상생 프로그램 구축 ·················································40

제Ⅴ장 결론 및 정책 제언 ····························································································· 45

1. 단계별 추진 로드맵 ·······································································································45

2. 광역 협력 지연·무산에 대비한 충북도 전략 ······························································48

3. 정례화 및 지속 가능성 확보를 위한 정책 제언 ·························································51

참고문헌 ·························································································································· 54

전 세계적으로 고령화와 저출산으로 인한 노동가능인구 감소가 심화되는 가운데, 특히 고령화로 인
한 노동력 부족 문제가 지역 단위에서 주요 현안으로 대두되고 있다. 충청북도 역시 고령층(65세 이상)
의 경제활동이 높은 반면, 산업 전반의 인력부족률과 빈 일자리율이 전국 최고 수준을 기록하는 등 구
조적 인력난이 지속되고 있다. 이러한 상황에서 충북도는 제조업과 농가의 만성적 인력 부족을 완화하
고, 경제활동을 하지 않는 유휴인력의 노동시장 진입을 촉진하기 위해 『충북형 도시근로자 지원사업』
과 『충북형 도시농부 사업』을 추진해 왔다. 두 사업의 참여 규모는 2023년 대비 2024년에 큰 폭으로 증가했으며, 참여자와 기업·농가 모두에
서 만족도가 향상된 것으로 나타났다. 또한 2024년 실적을 바탕으로 분석한 결과, 도시근로자 지원사
업은 128.4억 원의 최종수요를 창출하여 196.8억 원의 생산유발효과, 117.6억 원의 부가가치유발효
과, 315.1명의 취업유발효과를 발생시킨 것으로 분석되었다. 도시농부 사업 또한 108.0억 원의 최종수
요를 기반으로 177.7억 원의 생산유발효과, 93.6억 원의 부가가치유발효과, 326.2명의 취업유발효과
를 유발하는 것으로 나타났다. 아울러 두 사업은 지역경제 성장, 취약계층 소득증대, 사회적 연대 강
화, 지역 공동체 활성화, 기후변화 대응 등 다양한 정성적 효과도 창출하는 것으로 평가되었다. 정책적 측면에서, 향후 충북형 단기근로자 사업의 지속성과 효과성을 강화하기 위해서는 운영체계와 성
과관리의 고도화가 요구된다. 플랫폼노동의 확대와 고령화 심화 등 변화하는 노동환경에 대응하여 단순 단
기 일자리를 넘어 지역 산업 인력 수급을 상시적으로 매칭하는 인력 플랫폼으로 전환할 필요가 있다. 이를
위해 직무·경력·숙련도 기반의 통합 DB 구축, 산업별 인력수요 분석의 정례화, AI 기반 매칭 체계 도입, 참
여자·기업·농가 정보를 통합 관리하는 데이터 기반 성과관리 체계 등이 필요하다. 또한 충북의 인구·노동시장 구조를 고려할 때, 생애주기별 맞춤형 사업 설계의 강화가 요구된다. 고령층의 경험과 역량을 활용할 수 있는 새로운 일자리 모델 개발, 경력단절 여성의 재취업을 위한 진
단–교육–실습–근로의 패키지형 지원체계 마련 등 세대별·계층별 접근이 중요하다. 나아가 충북형 단기근로자 사업의 성과가 장기적으로 지속되기 위해서는 중앙정부 사업과의 연계, 재정 기반 다층화, 인접 시·도와의 광역 단위 협력체계 구축 등이 필수적이다. 이러한 전략적 연
계·협력을 통해 지역경제 활력을 제고하고 인구감소 대응 기반을 강화할 수 있을 것으로 기대된다.

제I장 서론 ······························································································································· 1

1. 연구 배경 및 목적 ················································································································1

2. 연구 범위 및 방법 ··············································································································2

제Ⅱ장 정책동향 및 이슈 ······································································································· 3

1. 글로벌 노동시장 동향 및 이슈 ·····························································································3

2. 국내 노동시장 정책 동향 ······································································································6

3. 타 지자체 정책 동향 ···········································································································17

4. 정책적 시사점 ····················································································································29

제Ⅲ장 단기근로의 가치 ······································································································ 31

1. 경제학적 관점 ······················································································································31

2. 복지적 관점 ·························································································································35

제Ⅳ장 충북지역 현황 분석 ································································································· 39

1. 일자리 여건 ·························································································································39

2. 고령층 노동시장 현황 ·········································································································42

3. 충북의 농촌인구 현황 ·········································································································56

제V장 충북형 단기근로자 사업 성과 분석 ········································································· 63

1. 충북형 단기근로자 사업 ····································································································63

2. 충북형 단기근로자 사업 현황 분석 ··················································································65

3. 충북형 단기근로자 사업 만족도 분석 ··············································································67

4. 정량적 효과 분석 ··············································································································72

5. 정성적 효과 분석 ··············································································································85

제Ⅵ장 결론 및 정책 제언 ································································································ 105

1. 연구 결과의 요약 ············································································································105

2. 정책 제언 ························································································································107

참고문헌 ····························································································································· 109

충청광역연합의 출범은 충청권을 단일 생활·경제권으로 통합하는 국가적 실험이자, 초광역 단
위의 협력을 제도적으로 실현하는 새로운 정책 체계의 출발점이다. 그러나 충청권의 교통체계는
여전히 시·도 경계를 중심으로 분절되어 있으며, 생활권 확산 속도에 비해 대중교통 서비스·요금체
계·환승체계는 제도적 통합이 미흡한 상황이다. 대전–세종–청주–천안아산 등 주요 생활축에서 광역
통행이 빠르게 증가하고 있음에도 권역 전체를 포괄하는 통합 이동체계가 부재하여 승용차 의존도
는 지속적으로 심화되고 있다. 본 연구는 이러한 구조적 한계를 개선하고, 충청광역연합 출범 이후 시민이 체감할 수 있는 대표적 초광역 정책을 마련하기 위해 충청권 초광역 교통패스(C-PASS)의 도입 방안을 모색하고자
수행되었다. 초광역 교통패스는 충청권 전역을 하나의 이동권역으로 재구성하고 광역 간 이동에
대해 예측 가능한 요금·일관된 서비스·통합된 정산체계를 제공하는 상위 통합형 교통플랫폼으로서, 기존의 시·도별 패스 및 국가 패스와는 차별된 정책적 위상를 갖는다. 본 연구는 △국내외 교통패스 및 통합정산 제도 분석, △충청권 통행행태 진단, △정산·운영 시스템 구조 검토를 기반으로, △초광역패스의 도입 필요성(WHY), △개념 정의(WHAT), △운영구조(HOW), △단계별 도입전략(WHEN)을 체계적으로 정리하였다. 특히 기존 교통카드 기반 정산체계를 활용하는 최소변경형 구현전략, 광역교통 거버넌스를 광역교통청(가칭) 중심으로 고도화하는 추
진체계, 철도·시외·고속 등을 포함한 장기 확장 전략을 제시함으로써 초광역 교통패스가 충청권 통
합교통체계의 핵심 플랫폼으로 발전할 수 있음을 보여주었다. 초광역 교통패스는 단순한 교통비 지원정책이 아니라 충청권의 공간구조·생활구조·경제권을 통합하는 전략적 도구이며, 충청광역연합의 실질적 성과를 창출하는 핵심 정책으로 자리매김할 수 있다. 본 연구에서 제안한 정책방향과 운영구조는 향후 충청권 교통체계의 혁신과 초광역 협력정책의 제도화에 중요한 기반을 제공할 것이다.

제I장 서론 ························································································································· 1

1. 배경 및 목적 ····················································································································1

2. 연구 범위 및 방법 ·········································································································3

제II장 충청광역연합 현황 진단 ······················································································ 5

1. 충청광역연합 개관 ···········································································································5

2. 충청광역연합 광역교통 현황 ·························································································12

3. 현안 및 문제점 진단 ···································································································31

제III장 국내외 교통패스 운영현황 ············································································ 33

1. 국내 교통패스 정책 현황 ······························································································33

2. 해외 교통패스 사례 ·······································································································43

3. 시사점 도출 ·················································································································49

제IV장 충청권 초광역패스 도입 구상 ······································································ 53

1. 도입 기본방향 및 전략적 필요성 ··················································································53

2. 초광역패스 개념 정립 ···································································································59

3. 운영구조 구상 ··············································································································62

4. 단계별 도입 로드맵 ·····································································································65

제V장 결론 및 정책제언 ·························································································· 71

1. 결론 ································································································································71

2. 향후 발전방향 ················································································································73

❍ 이 연구는 중부내륙연계발전지역의 상수원-산림-농지의 다중 규제 현황을 고찰하고, 지역
발전의 걸림돌이 되는 규제를 해소하기 위한 중부내륙특별법 기반의 입법적 개선 방안을
모색하였음
❍ 중부내륙지역은 국토의 생태적 핵심축으로서, 상수원보호구역, 백두대간보호지역, 국립공
원, 농업진흥지역 등 7~8개 법률에 의한 다중 규제가 중첩되어 왔고, 이는 주민의 재산
권과 지역 경제 활성화에 심각한 제약 요인으로 작용
❍ 수질 관리 기술 발전과 주민 의식 향상에도 불구하고 80~90년대 수준의 획일적 금지 중
심 규제가 여전히 작동하고 있으며, 오염총량제와 연동한 성과 기반 관리, 친환경적 이용
을 허용하는 '성과연동형 규제 합리화'로 패러다임을 전환해야 할 시기가 도래
❍ 이러한 흐름에 발맞춰 ｢중부내륙연계발전지역 지원에 관한 특별법｣ 제정은 상수원·산림· 백두대간을 지키느라 묶여 있던 내륙지역을 국가균형발전의 거점으로 재위치시키고, 그
공익적 역할에 대해 종합계획·재정·초광역 거버넌스로 보상·지원하는 첫 권역형 특별법이
라는 의미가 있음
❍ 핵심 규제 문제 해결과 중부내륙연계발전지역의 친환경적 발전을 유도하는 구심점으로서
중부내륙특별법이 기능하기 위해 1) 대청호 유역 통합관리시스템 구축 특례, 2) 공원자연
환경지구 및 공원마을지구 내 숙박시설 허용 특례, 3) 농업진흥구역 내 스마트농업혁신지
구 지정 특례와 개별 규제 법률의 탄력적 적용을 위해 4) 대청호 수질보전특별대책지역
내 경과 및 기존시설의 그린 리모델링, 2) 상수원보호구역 내 무공해 동력 교통수단의 운
항 허용을 위한 법령(안) 정비를 실효성 높은 대안으로 도출
❍ ‘개발 VS 보전’의 프레임이 아닌, ‘보전과 생산이라는 본래 목적이 제대로 달성되고 있는
가?’의 관점에서 정책 설계 및 법제 개선안의 지속적인 논의가 필요중부내륙 특별법 연계 토지이용규제 개선방안
❍ 보고서에서 제시된 개선 방안들의 법적 안정성과 집행력을 확보하기 위해 다음과 같은 보
완을 추진해야 함
❍ (통합심의 세부 기준의 법정화) 대청호 유역 통합관리계획 및 통합심의의 기준을 대통령
령을 넘어 법률 또는 시행령에 명시하여, 상수원 수질보호라는 최상위 목표를 훼손하지
않는 범위에서 규제 완화의 한계 선을 명확히 설정해야 함
❍ (GIS 통합관리시스템의 법적 위상 강화) 제안된 GIS 통합관리시스템은 단순히 정보의 공
개 및 관리를 넘어, 통합심의 및 인허가 결정의 근거로 활용될 수 있도록 시스템에 등록
된 자료의 법적 증거력을 인정하는 규정을 신설하여 정책 집행의 투명성을 제고
❍ (규제 우선순위 체계 확립) 국립공원·백두대간·상수원 등 부처별 중첩 규제가 무조건적으
로 가장 엄격한 규제를 적용하는 현행 관행을 개선하여, 보전 목적과 관리 강도에 따른
‘목적 기반의 규제 우선순위 체계(Hierarchy of Regulation)’를 확립하는 연구 필요
❍ (보호지역 국비 보조 근거 명확화 및 확대) 광역적·국가적 공익 기능을 수행하는 도·군립
공원 사업 및 농업진흥구역 내 생태복원·스마트농업 인프라 구축에 대한 국비 지원 근거
를 중부내륙특별법에 명시하고, 국가균형발전특별회계뿐만 아니라 수계관리기금 등 환경
관련 법정 기금을 연계하여 안정적인 재원을 확보하는 방안을 강구
❍ (성과연동형 관리 시스템 구축) 상수원 특별대책지역 및 산림보호구역에서 제안된 오염부
하위험등급 기반의 성과관리 체계는 전 유역으로 확대되어야 하며, AI·센서 기반 디지털
모니터링을 의무화하여 객관적인 실측 데이터를 기반으로 규제 완화·강화·보상 수준을 결
정하는 선순환적 정책 피드백 구조를 중장기적으로 완성해야 함

I. 개요 ······························································································································· 1

 1. 배경 및 목적 ················································································································1

 2. 연구의 범위 ················································································································3

II. 토지이용규제 법규 고찰 ······························································································ 7

 1. 토지이용규제 개요 ·····································································································7

 2. 상수원관리지역 ···········································································································8

 3. 산림지역 ···················································································································16

 4. 농지 및 기타지역 ····································································································25

 5. 종합 ··························································································································29

III. 토지이용규제 지역 현황 ··························································································· 31

 1. 상수원관리지역 ··········································································································31

 2. 산림 지역 ···················································································································36

 3. 농지 및 기타 지역 ·································································································· 38

 4. 다중 규제에 따른 지역 문제 사례 ·········································································· 40

Ⅳ. 개선 방안 ·················································································································· 49

 1. 중부내륙연계발전지역법 개정(안) 제안 ································································· 49

 2. 관련 법률 개정(안) 제안 ······················································································· 59

Ⅴ. 결론 ·························································································································· 65

 1. 요약 ····························································································································65

 2. 정책적 시사 및 향후 방향 ······················································································66

참고문헌 ·························································································································· 69

ABSTRACT ···················································································································· 70

최근 재정분권화 기조에 따라 중앙정부의 관광자원개발사업 권한과 재정이 지방자치단체로 이양
되면서 지방정부의 자율성은 확대된 반면, 사업 추진에 대한 책임성과 전문성 확보가 시급한 과제
로 대두되고 있다. 충청북도 역시 매년 상당한 예산을 관광자원개발사업에 투입하고 있으나 객관
적인 평가 기준의 부재로 인해 사업 간 중복 투자, 콘텐츠 차별화 부족, 선심성 사업 추진 등의
문제점이 지속적으로 제기되고 있다. 이에 본 연구는 충북의 지역적 특성과 개발 여건에 부합하는 체계적이고 객관적인 관광자원개발
사업 평가지표를 개발하여 예산 투입의 효율성을 높이고, 지속가능한 관광개발을 유도하는 것을
목적으로 하였다. 이를 위해 문헌연구를 통해 예비 지표를 도출하고 관광 분야 전문가 8인을 대상
으로 한 의견조사를 통해 지표의 적합도와 중요도를 분석하였다. 그 결과 ‘지역관광 공급역량’, ‘소
비역량’, ‘정책역량’의 3개 영역과 각 영역별 하위 속성으로 구성된 평가지표를 최종 도출하였다. 개발된 평가지표의 정책 적용 가능성을 검증하기 위해 충북 음성군 내 3개 관광자원개발 대상사
업을 선정하여 전문가 평가를 실시하였으며, 평가 점수를 기반으로 사업의 추진 우선순위를 도출
한 결과, 본 지표가 사업계획의 타당성 진단 및 비교 평가에 유효하게 작동함을 확인할 수 있었다. 본 연구는 이러한 분석 결과를 토대로 충북 관광자원개발사업의 체계적 관리 기반 구축을 위한
정책 방안으로 평가지표 활용 매뉴얼 개발, 평가 전문기관 지정 및 심사위원회 운영, 시계열 데이
터베이스 구축 등을 제안하였다. 개발된 평가지표는 향후 충청북도가 시·군 단위 관광자원개발사업
을 선정하고 예산을 배분하는 과정에서 합리적이고 객관적인 의사결정의 기준으로 기능할 수 있으
며, 무분별한 사업 추진을 방지하고 타당성과 차별성을 갖춘 관광개발을 유도하는 데 기여할 것으
로 기대된다.

제I장 서론 ························································································································· 1

1. 연구배경 및 필요성 ·········································································································1

2. 연구목적 ·························································································································3

3. 연구내용과 방법 ·············································································································4

제II장 관광자원개발 ·········································································································· 7

1. 관광자원의 이해 ···············································································································7

2. 관광자원개발 ··················································································································9

3. 충북 관광자원개발사업 추진현황 ················································································12

제III장 관광자원개발사업 평가지표 개발 ······································································· 17

1. 선행연구를 통한 지표항목 도출 ····················································································17

2. 관광자원개발사업 평가지표의 조사․분석 ·······································································28

3. 관광자원개발사업 평가지표(안) ·····················································································33

제IV장 실증조사를 통한 평가지표 활용 ········································································ 35

1. 실증조사 개요 ················································································································35

2. 충북 관광자원개발사업 평가 ·························································································37

3. 실증조사 시사점 ············································································································52

제V장 결론 및 정책제언 ································································································ 55

1. 결론 ································································································································55

2. 정책제언 ·······················································································································56

참고문헌 ·························································································································· 59

부록 ································································································································· 63

본 연구는 초고령사회 도래에 대비해 고령자의 자립적 삶, 관계성 유지, 지역사회 참여를 중심 가치
로 삼는 Aging in Community(AIC) 기반의 주거정책 방향을 모색한다. 기존 노인복지주택과 실버타운
이 가진 높은 비용·서비스 한계, 건강한 고령자를 위한 중간 주거유형의 부재 등을 문제로 지적하며, 고령
자가 익숙한 생활권에서 장기간 머물며 사회적 연결을 유지하도록 설계된 통합형 주거모델의 필요성을
강조한다. 이론적 배경에서는 AIC 개념을 중심으로 정주성·자기결정권·공동체 기반 참여·통합 서비스 접근성
등 네 가지 핵심 원칙을 제시한다. 단순히 물리적 공간이 아닌 지역사회 네트워크를 포함하는 확장된 주
거 개념을 강조하며, 스마트 기술 기반의 자립 생활 보조, 지역사회 활동 지원, 비공식 관계망 강화 등이
필수 요소로 언급된다. 국내외 사례 분석에서는 싱가포르 캄풍 애드미럴티, 일본 도요시키다이 프로젝트, 미국 미라벨라
ASU, 서울 해심당 등 다양한 복합형 시니어 주거 모델이 검토되었다. 이들 사례는 의료·돌봄·상업·커뮤
니티 시설을 한 공간에 통합한 수직형 복합 커뮤니티, 세대 간 교류를 촉진하는 공간 구성, 지역 주민에게
개방된 복합 서비스, 노인 일자리 연계 등을 통해 AIC 실현 가능성을 보여준다. 설문조사 결과 주민들은 건강·환경 프로그램(33%), 안전·방범(23.5%) 수요를 가장 높게 보였으며, 세대교류 프로그램은 개인적 성장·사회성 향상에 도움이 된다는 긍정 응답이 70% 이상으로 나타났다. 60대 이상에서는 건강·환경 활동 선호가 두드러지고, 청·장년층은 교육·돌봄·안전 분야 수요가 높아 세대
별 차이가 확인되었다. 정책 제안에서는 △고령자의 건강 상태와 기존 생활권을 고려한 새로운 주거유형 분류체계 마련 △민
간참여 확대 및 세제·금융 지원을 통한 공급 촉진 △인허가 절차 간소화 △서비스·임대료의 안정적 운영
을 위한 재정지원 △주거·돌봄·건강의 통합 서비스 체계 구축 등을 제시한다. 특히 지역사회 기반 커뮤니
티 활성화, 돌봄 공백 해소, 스마트 홈 기술 도입, 자립생활 지원 등이 핵심 요소로 언급된다. 본 연구는 단순한 노인주택 공급을 넘어, 고령자가 지역사회 안에서 존엄하고 독립적으로 살아가며, 세대와 지역이 함께 연결되는 지속가능한 주거생태계 구축이 필요함을 강조하며, 국가·지자체·민간이 협
력하는 새로운 주거정책 패러다임을 제안한다.

제Ⅰ장 연구의 배경 및 필요성 ······························································································ 1

1. 연구의 배경 ·························································································································· 1

 1.1. 고령화 가속화에 따른 주거 패러다임 전환 ···························································· 1

 1.2. 청년층과 고령자층을 동시에 고려 ··········································································· 2

2. 연구의 방법 및 범위 ··········································································································· 4

 2.1. 연구 방법 ···················································································································· 4

 2.2. 연구 범위 ···················································································································· 4

제Ⅱ장 이론적 배경 ················································································································ 5

1. 세대공존 주거 ······················································································································ 5

2. Aging in Community(AIC) ····························································································· 7

 2.1. Aging In Community(AIC)의 개념 ···································································· 7

 2.2. Aging In Community(AIC)의 핵심 원칙 ···························································· 9

3. 마을단위의 주거와 공동체주택 ························································································ 11

제Ⅲ장 관련 정책 현황 ········································································································ 15

1. 중앙정부 정책 ···················································································································· 15

 1.1. 주거제공 정책 ·········································································································· 15

 1.2. 주택개조지원 : 수선유지급여사업 ········································································· 19

2. 지자체 정책 사례 ·············································································································· 21

 2.1. 서울시 어르신 안심주택 ······················································································· 21

 2.2. 부산형 해비타트 챌린지 사업 ················································································ 23

제Ⅳ장 국내·외 사례 분석 ··································································································· 25

1. 해외 사례 분석 ················································································································ 25

 1.1. 덴마크 : 제너레이션 하우스(Generationernes Hus, GH) ······························ 25

 1.2. 싱가폴 : 캄풍 애드미럴티(Kampung Admiralty) ············································· 29

 1.3. 일본 : 도요시키다이(豊四季台) 단지 ····································································· 33

 1.4. 미국 : Mirabella at ASU ····················································································· 36

2. 국내 사례 분석 ················································································································ 39

 2.1. 해심당(海⼼堂) ·········································································································· 39

 2.2. 스프링카운티자이 ····································································································· 42

제V장 설문조사 결과 ··········································································································· 45

1. 설문개요 ····························································································································· 45

2. 설문조사 결과 ···················································································································· 46

 2.1. 응답자 일반적 특성 ································································································· 46

 2.2. 현재 거주 현황 ········································································································ 47

 2.3. 세대교류에 대한 인식 ····························································································· 53

 2.4. 세대공존 주거에 대한 인식 ···················································································· 57

 2.5. 세대교류 프로그램에 대한 인식 ············································································ 65

 2.6. 세대교류를 위한 공간 및 프로그램에 대한 의견 ················································ 75

제Ⅵ장 충북지역 여건 분석 ································································································· 85

1. 충청북도 인구 현황 ·········································································································· 85

 1.1. 시군별 인구 현황 ··································································································· 85

 1.2. 청·장년 인구특성 비교 ·························································································· 98

2. 고령자의 주거 및 생활 여건 ······················································································· 105

 2.1. 노인주거시설 현황 ································································································· 105

 2.2. 충북 노인생활실태 ································································································· 106

제Ⅶ장 고령자 대응형 주택정책 제안 ············································································· 111

1. 과제 도출 ························································································································· 111

2. 단계별 정책 과제 ············································································································ 115

 2.1. 준비단계 ················································································································ 115

 2.2. 기획단계 ················································································································ 116

 2.3. 고령자 대응형 주택 공급 방안 ·········································································· 119

3. 고령자 대응형 주택의 실행력 강화방안 ······································································ 121

참고문헌 ····························································································································· 124

ABSTRACT ······················································································································· 128

◯ 본 연구는 충청북도 내 외국인 주민의 급속한 증가와 이에 따른 사회･경제적 변화 양
상을 분석하고, 지역 여건에 적합한 대응전략을 제시하는 것을 목적으로 함
◯ 충북은 제조업 중심 산업구조와 수도권 인접성으로 인해 외국인 근로자, 결혼이민자, 유학생 등의 유입이 꾸준히 확대되고 있으며, 이는 지역 인구구조와 사회통합 체계 전
반에 중대한 변화를 가져오고 있음
◯ 국가통계포털(KOSIS), 법무부 출입국･외국인정책본부, 충북도청 통계 등 공공데이터를
기반으로 외국인 인구의 시계열 변화, 시･군별 분포, 산업별 고용구조, 복지 및 교육
수요를 종합적으로 분석함
◯ 분석 결과, 외국인 주민은 2010년대 이후 지속적으로 증가하여 2023년 기준 약 6만 5
천 명(전체 인구의 3.5%)에 달함
◯ 주요 거주지는 청주, 진천, 음성, 충주 등으로, 이들 지역은 산업단지 밀집지역으로서
외국인 근로자 비율이 높고, 일부 지역은 전체 인구의 10% 이상이 외국인으로 구성
◯ 외국인 구성은 근로자층이 다수를 차지하나, 결혼이민자, 유학생, 단기 체류자 등으로
다양화
◯ 외국인 근로자의 고용형태는 제조업･서비스업 중심의 단기 및 비정규직 형태가 많으며, 노동조건의 불안정성과 체류 불확실성이 공존
◯ 결혼이민자와 다문화가정의 증가로 인해, 지역 내 초･중등 교육기관과 사회복지서비스
에서 다문화 수요가 빠르게 확산되는 단계
◯ 농촌 지역은 계절노동자 중심의 단기 체류가 많고, 도시 산업지대는 장기 거주 외국인충북 지역 외국인 현황 분석 및 전략적 시사점
이 늘어나는 등 지역 간 정착패턴의 이중구조가 형성
◯ 그러나 충북의 다문화 정책은 시･군 간 편차가 크며, 행정 부서 간 협력체계 부족으로
인해 정책적 연계성이 낮은 것으로 분석
◯ 일부 지자체는 외국인복지센터, 통역지원센터 등 제도적 기반을 마련했으나, 프로그램
운영의 지속성･전문성 확보 미흡
◯ 외국인 주민은 지역 경제의 필수 인력으로 기여하지만, 사회적 포용과 제도적 지원 수
준은 여전히 초기 단계에 머물러 있음
◯ 특히 언어･문화 장벽, 사회적 고립, 교육 및 의료 접근성 제한, 행정정보 부재 등이 구
조적 취약 요인으로 작용
◯ 본 연구는 이러한 현실을 바탕으로 충북이 나아가야 할 정책 방향을 다섯 가지 전략으
로 제시
- 다층적(multilevel) 거버넌스 체계 구축
∙ 도(道)–시군–지역 공동체 간 협력 네트워크를 강화하여 정책 연계성 확보
∙ 민관 협의회, 지역 다문화포럼, 이주민 대표 참여 구조 등을 통해 의사결정의 포용성 제고
∙ 지방정부 간 분절된 행정체계를 통합 관리할 수 있는 조정기구 필요
- 고용안정 및 직업역량 강화
∙ 산업 수요와 연계된 한국어･직업교육･기술훈련 체계 확립
∙ 외국인 근로자의 노동권 보호 및 숙련인력 정착을 위한 제도 개선 필요
∙ 기업-지자체-교육기관 간 협력형 직업훈련 모델 구축
- 다문화 교육 및 지역사회 통합 촉진
∙ 학교와 지역사회 중심의 다문화 인식 개선 및 상호교류 프로그램 확대
∙ 지역주민과 외국인 간 공동 참여형 문화행사, 자원봉사, 공동체 활동 활성화
∙ 다문화가정 자녀의 교육격차 해소를 위한 맞춤형 지원체계 필요
- 데이터 기반 정책관리체계 구축
∙ 외국인 인구, 고용, 복지, 교육 등 관련 데이터를 통합 관리하는 실시간 모니터링 시스템 도입
∙ 정책성과 평가와 예산 배분을 연계하여 효율성 제고
∙ 통계 및 행정데이터를 연계한 증거기반(evidence-based) 정책결정 지원
- 중장기 선제적･통합적 정책 전환
∙ 외국인 관련 문제 발생 이후의 사후적 대응이 아닌, 장기 인구변화를 예측한 사전적 접
근 필요
∙ 인구감소 및 노동시장 변동을 고려한 다문화 정책의 지역발전 전략화
∙ 충북의 지속가능한 사회통합 모델을 구축하기 위한 중장기 로드맵 마련
◯ 이러한 전략들은 단순한 복지지원 수준을 넘어, 충북이 인구구조 변화에 대응하는 지역
회복력(regional resilience) 기반의 발전전략으로 기능
◯ 다문화 거버넌스와 사회통합정책을 통합적으로 추진할 경우, 외국인 주민의 경제적 기
여를 극대화하면서도 사회적 갈등을 완화
◯ 또한, 충북의 사례는 지방정부가 다문화 시대의 인구변화에 어떻게 대응할 수 있는지를
보여주는 모범적 모델로 발전할 가능성 제고
◯ 본 연구는 궁극적으로 충청북도의 외국인 정책을 “포용적･데이터 기반･지속 가능한 지
역정책”으로 재정립함으로써, 인구 다양성을 지역혁신의 동력으로 전환하는 실천적 기반을 제시

I. 서론 ···································································································································· 1

1. 연구 배경과 목적 ··················································································································1

2. 연구 내용 및 방법 ················································································································3

3. 선행연구 고찰 ························································································································7

II. 외국인 동향 관련 검토 ··································································································· 17

1. 글로벌 동향 ·························································································································17

2. 국내 동향 ·····························································································································36

Ⅲ. 충북도 외국인 동향 분석 ······························································································ 57

1. 정책 동향 ·····························································································································57

2. 도내 외국인 현황 분석: 외국인 근로자 ·············································································64

3. 도내 외국인 현황 분석: 이주 여성 ····················································································71

4. 도내 외국인 현황 분석: 외국인 유학생 ·············································································78

Ⅳ. 실태조사 ························································································································· 97

1. 조사 개요 ·····························································································································97

2. 조사 결과 ··························································································································101

3. 근로 조건 및 지원 환경 ···································································································109

4. 시사점 ································································································································118

Ⅴ. 충북의 외국인 정책 활성화를 위한 대안 모색 ·························································· 121

1. 인력확보 및 매칭 ··············································································································121

2. 사회통합 인권 증진 ··········································································································124

3. 정주 인프라 구축 ··············································································································124

4. 거버넌스 ····························································································································129

Ⅵ. 요약 및 향후 연구 발전 방향 ···················································································· 131

1. 요약 ···································································································································131

2. 향후 연구 발전 방향 ········································································································135

참고문헌 ··································································································································137

Appendix ·······························································································································145

Abstract ·································································································································149