문화관광 민간투자시설 운영개선을 위한 BTL·BTO 혼합방식 도입방안 실증연구 :An empirical study on the imposition of BTL·BTO mixed mode for improving the operation of culture tour public private partnership facilities

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자료유형: 학위논문

저자정보: 정창기 (동의대학교, 동의대학교 대학원)

지도교수: 강정규

발행연도: 2019

저작권: 동의대학교 논문은 저작권에 의해 보호받습니다.

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이 논문의 연구 히스토리 (3)

2019

문화관광 민간투자시설의 BTL·BTO 혼합방식 도입방안 및 재정개선 효과에 관한 연구

정창기 주거환경 2019.09 학술저널

문화관광 민간투자시설 운영개선을 위한 BTL·BTO 혼합방식 도입방안 실증연구

정창기 금융보험·부동산학과 2019.01 학위논문

2016

도시인프라 구축을 위한 문화관광분야 임대형 민간투자사업 시설의 효율적 운영방안 연구 : 부산영화체험박물관 운영방안을 중심으로

정창기 부동산학과 2016.01 학위논문

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민간투자사업은 1994년 8월 민간자본을 활용한 사회기반시설에 대한 필요성이 제기되는 시기에 「민자유치촉진법」이 제도화되면서 시작되었다. 2005년 1월 「사회기반시설에 대한 민간투자법」으로 개정되면서 사업대상이 사회기반시설로 확장되 어 현재에 이르고 있다. 민간투자사업은 공공시설의 기반 확충과 부족한 정부재원에 대한 보조적 기능으로 지금까지 우리나라 사회기반시설 조성과 경제활성화에 많은 기여를 하여왔다. 그러나, 일부 민간투자사업에서 잘못된 수요예측과 과도한 재정지원 문제가 불거지면서 정부는 최소수익보장(MRG:Minimum Revenue Guarantee)제도를 폐지하였다. 이후 민간사업자의 사업참여 저하와 정부지급금의 과도한 부담 등의 이유로 민간투자사업 추진은 현저하게 감소하고 있다.
2018년 문재인정부 출범 이후 기획재정부는 민간투자사업의 활성화를 위하여 민간투자 정책방향을 사용자부담 완화와 교육·문화·복지·환경 분야 시설 등 생활밀착형 시설의 공급확대를 골자로 하는 2018년 민간투자기본계획을 발표하였다.
특히, 문화관광분야 민간투자사업은 민간의 창의성과 효율성을 바탕으로 공공서비스를 조기에 공급하여 국민의 삶의 질 제고와 지역경제에 활력을 불어넣을 수 있는 중요한 정책수단으로서 지속적으로 시행하여야 할 필요성이 있는 분야이다.
본 연구는 문화관광분야 민간투자사업으로 시행되는 민간투자시설 중 시설이용수익으로 운영비를 조달하기 어려운 임대형 민간투자사업(BTL:Build Transfer lease)시설의 재정부담 완화와 운영 효율성을 높일 수 있는 사업방식 도입과 운영개선 방 안을 연구하는 데 목적이 있다.
기존 임대형 민간투자시설의 경우 시설운영비는 정부지급금에 포함하여 지급하고, 콘텐츠운영비는 별도로 운영예산을 편성해야 하는 이중적인 구조로 인해 재정부담과 운영 효율성에 문제가 발생하고 있다. 이러한 문제점을 개선하기 위해 사업시행자가 운영수익으로 운영비를 모두 충당하는 수익형 민간투자사업(BTO : Build Transferlease)방식을 활용하여 운영비 부담완화와 운영 효율성을 높일 수 있는 BTL·BTO혼합방식 도입방안을 제시하고자 하였다.
BTL·BTO 혼합방식의 운영개선 효과를 검증하기 위하여 부산영화체험박물관의 운영데이터를 바탕으로 수익미포함 방식, 수익포함 방식, 혼합방식에 의한 3가지 방식으로 20년간 재정지원금과 운영비 규모를 산출하여 각각 비교하고 분석하였다.
분석결과 재정지원금 및 운영비는 수익미포함 방식, 수익포함 방식, 혼합방식 순으로 규모가 큰 것으로 분석되었다. 총운영비의 감소는 재정지원금 감소효과로 이어져 BTL·BTO 혼합방식이 기존 BTL 방식보다 재정개선 효과가 큰 것으로 나타났다.
이상의 대안별 재정지원금 분석결과를 바탕으로 BTL·BTO 혼합방식을 도입하고 시행하기 위하여 필요한 사항들을 다음과 같이 도출하였다.
첫째, 사업시행자에 의한 시설운영과 콘텐츠운영의 일괄운영이 필요하며, 이를 위해서는 민간투자사업 공고 시에 사업시행자 선정요건을 강화하고 사전에 운영계획서를 제출받도록 해야 한다.
둘째, 운영안정성과 공익성을 담보하기 위하여 이익 및 손실에 대한 부담을 공유하는 사업시행자와 주무관청의 약정이 필요하다. 수익공유를 위해서는 사업시행자 선정 후 실시협약 전까지 기준수익을 정한다. 기준수익을 초과하는 한도에 대해서는사업시행자와 주무관청이 일정한 비율로 공유하며, 기준수익 미달에 따른 운영비 부족은 사업시행자가 부담하는 방식의 공유방안에 대한 검토가 필요하다.
셋째, 재정지원금 부담완화와 시설이용률을 높이기 위한 부대·부속시설 개발 및 복합시설 도입이 필요하다. 더불어, 현재 BTL 사업에서 부속시설 순이익을 정부지급금 중 시설임대료에서 일괄 차감하여 지급하는 것을 운영비에 충당하는 것으로 전환할 필요성이 있다. 이를 위해서는 지방자치단체와 중앙부처인 기획재정부와 협의를 통하여 제도개선을 검토해야 할 것이다.

Public Private Partnership Business began in August 1994 with the institutionalization of the Civil Liberties Promotion Act, during the time when the need for social infrastructure using private capital was being raised. The scope of the business was expanded to where it is today, as the act was amended as the Civil Infrastructure Investment Act in January 2005. Private investment businesses have so far played a huge role in contributing towards the expansion of social infrastructure and economic revitalization of the country as a supplementary function for public facilities and insufficient government resources. However, since the recent abolition of the Minimum Revenue Guarantee (MRG) system due to faulty demand forecasts and excessive financial support issues, the performances of private investment businesses have significantly decreased due to the decrease in the participation and excessive burden of government payments.
Since the Moon Jae-in administration stepped in back in 2018, the Ministry of Strategy and Finance announced the “2018 Private Investment Basis Plan”, which aimed to ease the burden of users and expand the supply of daily life facilities in education, culture, welfare, and environment sectors in order to revitalize private investment projects. In particular, private investment businesses in the culture and tourism sector are an important policy tool in enhancing the quality of life of citizens and revitalizing the local economy, as it provides public services in the early states, based on creativity and efficiency.
The purpose of this study is to investigate operation methods that can eventually reduce the financial burden and increase operational efficiency of rental private business facilities (BTL: Build Transfer Lease) which is a difficult business to raise operation expenses with facility income out of Public Private Partnership facilities in the culture and tourism sector.
In the case of existing leased private investment facilities, there are problems regarding financial burdens as the dual structure requires facility operating expenses to be paid as part of government payments, and content operating expenses are asked to be drawn up separately. In order to improve these problems, a profitable private investment business (BTO:Build Transfer Lease) which covers all operating expenses with operating income, was utilized to propose a management plan that mixes BTL and BTO to reduce the financial burden of operating expenses and increase efficiency.
In order to verify the financial improvement effect of the BTL and BTO mixed operation methods, three different ways including one that doesn''t involve revenue, one that does involve revenue, and one that mixes both were implemented. The amount of financial support and operational expenses for 20 years were calculated and further analyzed. The analysis results showed that the financial support and operational expenses were greater in the order of the mixed method, one that includes revenue method, and one that doesn''t involve revenue.
The decrease in the total operational expenses, which also eventually led to reduction in financial support, proving that the BTL-BTO mixed type operation method had the greatest effect in financial improvement compare to the existing BTL management system. Based on the above analysis of each type of financial support, the following points were derived in needing to implement the mixed BTL-BTO management method.
Firstly, it is necessary for the operator to jointly operate the facilities and contents. In order to do so, the selection requirements of operators must be strengthened when public announcements are made. An operation plan must also be submitted in advance.
Secondly, there must be a legal agreement made between the operator and the relevant government officer to share the profit and losses in order to ensuren operational stability and make sure it''s in the public interest. In terms of sharing the revenue, there must be a set revenue rate before the actual agreement is made. With the money that exceeds the set revenue rate, the operator and government officer must share it equally, and with the shortage in operational funds due to not reaching the revenue rate, there must be a way so that the operator pays the shortage.
Thirdly, there is a strong need to implement auxiliary or subordinate facilities to increase the utilization rate of these facilities and ease the burden of financial support. Also, it is necessary to convert the net profit of subsidiary facilities earned from the current BTL projects into the payment of rental fees of facilities and cover the operational costs. In order to do so, the Ministry of Strategy and Finance which is the central government body must cooperate with local governments to improve the system.

제1장 서론 ··································································································· 1
제1절 연구의 배경 및 목적 ························································································ 1
1. 연구의 배경 ··········································································································· 1
2. 연구의 목적 ··········································································································· 2
제2절 연구의 범위 및 방법 ························································································ 3
1. 연구의 범위 ··········································································································· 3
2. 연구의 방법 ··········································································································· 4
3. 연구의 구성 ··········································································································· 5
제2장 민간투자사업의 이론적 고찰 ··························································· 7
제1절 민간투자사업의 제도적 이해 ··········································································· 7
1. 민간투자사업의 개념 및 변천과정 ······································································· 7
2. 민간투자사업 대상 사회기반시설 ······································································· 9
3. 민간투자사업 추진방식 ······················································································· 11
4. 민간투자사업 사업지정 유형 ·············································································· 13
제2절 민간투자사업의 유형별 내용 ··········································································· 17
1. 임대형 민간투자사업(BTL) ·················································································· 17
2. 수익형 민간투자사업(BTO) ················································································· 22
3. 개별법에 따른 민간투자사업 ·············································································· 27
제3절 문화관광분야 민간투자시설 운영유형 ····························································· 29
1. 문화관광분야 민간투자시설 대상 ······································································· 29
2. 문화관광 민간투자시설 운영유형 ······································································· 30
3. 운영유형별 특징 ·································································································· 33
제4절 선행연구 고찰 ································································································· 35
1. 수익형 민간투자사업 활성화 및 재구조화 선행연구 ········································ 35
2. 임대형 민간투자시설 운영 개선방안 선행연구 ················································· 38
3. 선행연구와의 차별성 ························································································· 40
제3장 문화관광 민간투자사업 현황 및 사례분석 ··································· 42
제1절 문화관광 민간투자사업 현황 ········································································· 42
1. 문화관광 민간투자사업 현황 ·············································································· 42
2. 문화관광 민간투자시설 콘텐츠 운영현황 ·························································· 44
제2절 문화관광 임대형 민간투자시설 사례분석 ····················································· 47
1. 국립해양박물관 ··································································································· 47
2. 천안홍대용과학관 ································································································ 51
3. 아산장영실과학관 ································································································ 54
4. 창원과학체험관 ··································································································· 57
5. 부산영화체험박물관 ···························································································· 60
6. 분석결과 및 시사점 ···························································································· 63
제2절 문화관광 수익형 민간투자시설 사례분석 ····················································· 66
1. 해운대 해저테마수족관 ······················································································· 66
2. 송도 해상케이블카 ······························································································ 69
3. 분석결과 및 시사점 ···························································································· 73
제4장 BTL·BTO 혼합방식 재정효과 분석 및 도입방안 ························ 75
제1절 BTL·BTO 혼합방식 개요 ·············································································· 75
1. 필요성 ················································································································ 75
2. BTL·BTO 혼합방식 개요 및 기본전제 ····························································· 77
제2절 BTL·BTO 혼합방식 재무모델 수립 ······························································ 80
1. BTL·BTO 혼합방식 재무모델 구성 및 작성방안 ············································ 80
2. 총민간투자비 및 시설임대료 산정방법 ······························································ 82
3. 운영비 지급액 및 총운영비 산정방법 ······························································· 85
4. 기준수익과 부대·부속사업 이익처리 ······························································· 88
제3절 BTL 방식과 BTL·BTO 혼합방식 재정지원금 비교분석 ······························ 89
1. 대상시설 현황자료 분석 ····················································································· 89
2. 대안별 재정지원금 비교분석 ·············································································· 97
3. 대안별 재정지원금 산출결과 ············································································ 102
4. 대안별 재정지원금 산정결과 비교 및 재정절감 효과분석 ····························· 108
제4절 BTL·BTO 혼합방식 도입방안 ····································································· 118
1. 사업시행자 선정방안 ························································································· 119
2. 주무관청과 사업시행자의 수익 및 위험부담 공유 ·········································· 120
3. 수익향상을 위한 부대·부속시설 및 복합시설 도입 ······································ 122
제5장 결론 ······························································································· 124
제1절 연구결과의 요약 ··························································································· 124
제2절 향후과제 ········································································································ 126
참고문헌 ····················································································································· 128
Absract ······················································································································· 132

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