제1장 연구개요 ··········································································································1 1. 연구의 필요성 및 목적 ·····················································································1 1) 연구의 배경 및 필요성 ···············································································1 2) 연구목적 ······································································································3 2. 연구범위, 내용 및 방법 ····················································································4 1) 연구범위 ······································································································4 2) 연구내용 ······································································································4 3) 연구방법 ······································································································5 제2장 자치구 제도검토 및 현황분석 ··········································································6 1. 자치구 제도검토 ·······························································································6 1) 자치구 제도의 기본 개념 ············································································6 2) 자치구 제도 운영의 이슈 ··········································································10 3) 자치구 개혁의 논의와 추진 ······································································15 2. 자치구 현황분석 ·····························································································19 1) 분석체계 ····································································································19 2) 자치구 기본 현황 ······················································································20 3) 자치구 행정 역량: 부산지역 구를 중심으로 ·············································30 제3장 특별지방자치단체 법·제도와 사례 ·································································38 1. 특별지방자치단체 법·제도 ··············································································38 1) 기본개념 ····································································································38 2) 법적성격 ····································································································40 3) 설치 및 해산 ····························································································43 4) 수행사무 ····································································································45 5) 기관구성 ····································································································45 6) 재정 ··········································································································47 7) 인력 ··········································································································48 2. 특별지방자치단체 관련 해외사례 ····································································49 1) 개요 ··········································································································49 2) 유럽 사례 ··································································································49 3) 일본 사례 ··································································································51 제4장 부산지역 구민 인식분석 ················································································53 1. 조사설계 및 분석 체계 ···················································································53 2. 조사분석 결과 및 시사점 ···············································································56 1) 지역 소속감 ······························································································56 2) 구정에 대한 인식 ······················································································57 3) 특별지방자치단체의 운영 ··········································································58 4) 특별지방자치단체의 수행사무 ···································································67 5) 특별지방자치단체 기관의 인적 특성 ·························································71 6) 분석결과 요약 및 시사점 ··········································································73 제5장 특별지방자치단체 설치·운영 방안 ·································································76 1. 특별지방자치단체 설치의 주요 검토 사항 ······················································76 1) 설치 전제와 방향 ······················································································76 2) 특별지방자치단체 관장 사무 ·····································································80 3) 구성 지방자치단체와 관할지역 ··································································86 2. 자치구 주도 특별지방자치단체 모형 ·······························································91 1) 모형 설정의 우선적 고려사항 ···································································91 2) 특별지방자치단체 모형 제안 ·····································································92 3. 설치 유인 및 운영방안 ················································································103 1) 설치 유인 방안 ·······················································································103 2) 재정 ········································································································105 3) 인력 ········································································································106 4) 기관 구성 ·······························································································109 Abstract ················································································································114 참고문헌 ·················································································································116 부록 ························································································································119

<표 2-1> 시·군이 수행하나 구가 수행하지 않는 사무 ····················································7 <표 2-2> 전체예산의 광역, 기초 예산 비교 ····································································9 <표 2-3> 수송 및 교통분야 예산의 광역, 기초 예산 비교 ···········································10 <표 2-4> 자치구 적정인구에 관한 기존 연구 ·······························································15 <표 2-5> 자치구제 개혁안 비교 ····················································································17 <표 2-6> 특·광역시의 자치구 비중 ···············································································21 <표 2-7> 특·광역시 평균 인구, 면적, 인구밀도 ···························································22 <표 2-8> 인구 기준 분위별 관할인구 ···········································································22 <표 2-9> 인구 기준 분위별 자치구 분포 ······································································23 <표 2-10> 특·광역시 사업예산 규모 ·············································································24 <표 2-11> 인구, 면적 요인 활용 2단계 군집분석 결과 ···············································25 <표 2-12> 3개 군집간 비교 ··························································································26 <표 2-13> 특·광역시의 유형별 자치구수 ······································································28 <표 2-14> 특·광역시 자치구 지역의 유형별 인구 및 면적 ··········································29 <표 2-15> 지역별 평균 자체수입 대비 인건비 비율 ·····················································30 <표 2-16> 부산지역 자치구의 재정역량 비교 ·······························································31 <표 2-17> 부산지역 자치구별 공무원 내역 ···································································32 <표 2-18> 부산지역 자치구의 인구규모별 공무원 내역 ················································33 <표 2-19> 평가등급 부여기준 ·······················································································34 <표 2-20> 전체 자치구의 인구규모 분위별 평가결과 ···················································35 <표 2-21> 부산지역 자치구의 인구규모 분위별 평가결과 ·············································36 <표 4-1> 지역수준별 소속감 ·························································································56 <표 4-2> 지역수준별 소속감 비교 ·················································································56 <표 4-3> 구정 인식 수준 ······························································································57 <표 4-4> 거주지 인접 타 지자체 서비스 이용에 대한 인식 ·········································59 <표 4-5> 특별지방자치단체 구성원인 구의 통합에 대한 인식 ······································64 <표 4-6> 특별지방자치단체와 구의 관계에 대한 인식 ··················································65 <표 4-7> 특별지방자치단체와 부산시의 관계에 대한 인식 ···········································66 <표 5-1> 정책분야별 예산규모와 의존도 ·······································································82 <표 5-2> 원도심 특별지방자치단체의 관할인구와 지역면적 ··········································88 <표 5-3> 권역별 특별지방자치단체의 인구 및 면적 ·····················································90 <표 5-4> 부산시 자치구주도의 특별지방자치단체 모형 ·················································92 <표 5-5> 복지 사무 해당 사업 분야 및 부문 ·······························································94 <표 5-6> 원도심 복지 자치연합의 관장 사무 ·······························································95 <표 5-7> 자치구 청소예산 평균재정자립도(2018년) ·····················································97 <표 5-8> ○○권 광역청소센터의 관장 사무 ·································································99 <표 5-9> 2019년 부산시 자치구 지방세 미수액 규모 ···············································100 <표 5-10> 부산시 자치구의 2019년 발생 미징수액의 당해연도 불납결손처분 규모 ····101

<그림 2-1> 통합전후의 베를린 구 비교 ········································································13 <그림 2-2> 통합구 슬로건, 비전 및 전략목표 ······························································19 <그림 2-3> 군집분석 결과에 따른 구의 3가지 유형 ·····················································27 <그림 2-4> 전체 자치구의 인구 규모에 따른 분위별 등급분포 비교 ····························35 <그림 2-5> 부산지역 자치구의 인구 규모에 따른 분위별 등급분포 비교 ·····················37 <그림 3-1> 특별지방자치단체 설치에 따른 사무수행 주체의 변화 ·······························39 <그림 4-1> 특별지방자치단체 개념 설명 예시 ······························································54 <그림 4-2> 엠브레인 패널의 특징 ·················································································55 <그림 4-3> 기관구성 방식 의견 ····················································································58 <그림 4-4> 특별지방자치단체에 대한 인지 ···································································60 <그림 4-5> 특별지방자치단체 설치의 중요한 목표 ·······················································61 <그림 4-6> 사업예산 절감효과의 활용방안 ···································································62 <그림 4-7> 인력 효율화에 따른 활용방안 ·····································································64 <그림 4-8> 구 수행 중요 사무 ·····················································································68 <그림 4-9> 구 수행 미흡 사무 ·····················································································69 <그림 4-10> 공동수행을 통한 성과 개선 기대 사무 ·····················································70 <그림 4-11> 특별지방자치단체장의 적합한 인물 유형 ··················································71 <그림 4-12> 특별지방자치단체 의회 의원의 적절한 인적 특성 ····································72 <그림 5-1> 구 사무의 중요도와 미흡도 인식 ·······························································84 <그림 5-2> 자치역량의 상향적 평준화에서 특별지방자치단체의 관할범위 ····················88 <그림 5-3> 권역중심 광역화에서 특별지방자치단체의 관할범위 ···································89 <그림 5-4> 부산지역 전 자치구가 참여하는 특별지방자치단체의 관할범위 ··················91 <그림 5-5> 부산시 자치구의 2019년 노년부양비 수준 ················································93 <그림 5-6> 특별지방자치단체의 체납정리사무 수행체계 ·············································102