All Issue

2025 Vol.43, Issue 5 Preview Page

Article

Priority Section Selection and Quantitative Evaluation Indicator Development for the Undergrounding of Aboveground Railways in Seoul

서울시 지상철도 지하화 우선구간 선정과 정량적 평가 지표 개발

Jae Min JANG1
,
Sangkeun LEE2
,
Young Eun KIM3*
장 재민1
,
이 상근2
,
김 영은3*
1Adjunct Professor, Department of Urban Planning & Real Estate, Dankook University, Seoul 16890, Korea
2Senior Researcher, Railroad AI Convergence Research Department, Korea Railroad Research Institute, Gyeonggi 16105, Korea
3Research Professor, Department of Urban Design and Planning, Hongik University, Seoul 04066, Korea
1단국대학교 도시계획·부동산학부 겸임교수
2한국철도기술연구원 철도AI융합연구실 선임연구원
3홍익대학교 도시공학과 연구교수
*Corresponding Author
31 October 2025. pp. 536-553
PDF XML Citation
Abstract

In 2024, the Korean government enacted the Special Act on Railway Undergrounding and Integrated Development of Railway Sites to address spatial fragmentation and deterioration of surrounding areas caused by above-ground railways. This study takes this institutional shift as an opportunity to identify priority sections for railway undergrounding among seven above- ground railway lines in Seoul and to propose strategic development directions. In particular, by establishing a structured quantitative evaluation framework that incorporates key elements—redevelopment needs, public benefit, and development feasibility—this study seeks to overcome the limitations of prior case-specific evaluations. The analysis is based on three criteria: (1) redevelopment needs and suitability, (2) public benefit, and (3) development feasibility and implementability, and utilizes spatial indicators such as floor area ratio, building age, land price, land ownership structure, and infrastructure conditions. Results show that the Gyeongui–Jungang Line, with a high proportion of underdeveloped areas, aging buildings, and public land, is a strong candidate for leading projects that can leverage both policy intervention and private investment. In contrast, the Gyeongwon Line demonstrates strong public demand but relatively low feasibility compared to surrounding lines, indicating a need for strategic intervention to enhance its development value. This study contributes by presenting a comparative, quantitative evaluation framework that supports decision-making for railway undergrounding projects and offers practical guidance for strategies that balance public benefit and profitability.

Keywords
development feasibility
integrated development
project environment analysis
railway undergrounding
redevelopment needs
seoul
public benefit

정부는 지상철도로 인한 도시공간의 단절과 주변 지역의 낙후 문제를 해결하고자, 2024년 「철도지하화 및 철도부지 통합개발에 관한 특별법」을 제정하였다. 본 연구는 이러한 제도적 전환을 계기로, 서울시 내 7개 지상철도 노선을 대상으로 지하화 우선 추진 구간을 도출하고, 전략적 개발 방향을 제안하고자 하였다. 특히 정비 수요, 공공성, 사업성 등 핵심 요소를 반영한 정량 비교 분석틀을 체계화함으로써, 그간 사례별 개별 검토에 머물렀던 기존 평가 방식의 한계를 보완하고자 하였다. 분석은 ‘정비 수요와 개발 적합성’, ‘공공성’, ‘사업성 및 개발 용이성’의 세 가지 항목을 기준으로, 용적률, 건축물 노후도, 토지가격, 토지소유 구조, 기반시설 등 공간 지표를 활용하여 수행되었다. 분석 결과, 경의중앙선은 저개발 구간 비율과 노후 건축물 비중이 높고 국공유지 비율도 높은 것으로 나타나, 정책 개입과 민간 유인을 동시에 유도할 수 있는 선도사업 후보지로 평가되었다. 반면, 경원선은 공공적 수요는 크지만 주변부에 비해 상대적으로 사업성이 낮아, 인접 노선 대비 개발 가치를 향상시킬 수 있는 전략적 개입이 요구되는 구간으로 분석되었다. 본 연구는 노선 간 상대 비교를 통한 정량 기반의 의사결정 지원 체계를 제안함으로써, 철도지하화 사업의 실행 가능성 진단과 함께 공공성과 수익성을 동시에 고려한 전략 수립에 실질적인 기초자료를 제공한다는 점에서 의의를 갖는다.

키워드
사업성
통합개발
사업환경 분석
철도지하화
정비 수요
서울시
공공성
References
1

Gu S. J. (2024), Railway Undergrounding Project, Special Act Alone Is Not Enough: Securing Business Feasibility Is Key, National Assembly Research Service, Research Report, 2241.

2

Jang J. M., Cho D. H. (2024), A Study on the Establishment of a Comprehensive Plan for Underground Railroad Development in Seoul, The Minjoo Party’s Seoul Metropolitan Government Research Report.

3

Kim S. H. (2024), Railway Undergrounding as a National Policy Task Faces Many Challenges, Maeil Ilbo, https://www.m-i.kr/news/articleView.html?idxno=1171505, 2025.01.20.

4

Kim C. H. (2022), Strategies for Railway Undergrounding and Urban Regeneration in Local Small and Mid-sized Cities, Urban Information, 489, Korean Planners Association, 35-47.

5

Kim H. (2021), Improving Feasibility Evaluation Criteria for Metropolitan Railway Underground Projects, J. Korea Plann. Assoc., 56(2), Korea Planning Association, 77-89.

6

Kim J. H., Kwak H. C. (2022), Efficient Strategies for Promoting Urban Railway Undergrounding Projects: A Case Study of the Gyeongin Line, J. Korean Soc. Urban Railw., 10(3), Korean Society for Urban Railways, 1323-1329.

10.24284/JKOSUR.2022.09.10.3.1323
7

Kwok A. (2015), Hudson Yards: Engineering the Overbuild, Council on Tall Buildings and Urban Habitat (CTBUH) J., Issue IV, CTBUH, 32-37.

8

Lee J. H., Lee I., Jin W. J. (2014), A Study on the Estimation of the Influence Area of Railway Stations According to the Introduction of the Metropolitan Express Railway in the Seoul Metropolitan Area, J. Korea Soc. Disaster Inf., 10(1), Korea Society of Disaster Information, 49-60.

10.15683/kosd.2014.10.1.049
9

Min K. (2024), Non-metropolitan Local Governments Unable to Start ‘Underground Railway’, Seoul Newspaper, https://go.seoul.co.kr/news/newsView.php?id=20240807019001, 2025.01.15.

10

Ministry of Government Legislation (2024), Special Act on Underground Railways and Integrated Development of Railway Sites (철도지하화 및 철도부지 통합개발에 관한 특별법), National Law Information Center, https://www.law.go.kr/LSW/lsInfoP.do?lsiSeq=259587, 2024.12.26.

11

Ministry of Land, Infrastructure and Transport (2024), Special Act on Railway Undergrounding and Urban Complex Development Support Act Passed in the National Assembly, Press Release, https://www.molit.go.kr/USR/BORD0201/m_69/DTL.jsp?id=349692, 2025.02.14.

12

OECD (2000), Integrating Transport in the City: Reconciling the Economic, Social and Environmental Dimensions, OECD Publishing, Paris, 275.

13

Park S. D. (2024), Progress and Future Direction of Underground Railroad Development, Monthly Transp., 317, The Korea Transport Institute, 42-53.

14

Park S. W., Lee D. H., Jung J. W. (2020), A Study on Realignment of Central Seoul Railway Lines Following Gyeongbu Line Undergrounding, Korea Railroad Research Institute, Research Report, 63.

15

Seoul City (2024), 2030 City Master Plan News: Underground All Sections of the Ground Rail... Creating a ‘Second Yeontral Park’, https://mediahub.seoul.go.kr/archives/2012550, 2024.12.30.

16

Seoul Metropolitan Government (2024), Urban Planning Ordinance – Enforcement Rule, Seoul Metropolitan Government.

17

Strand J., Vågnes M. (2001), The Relationship Between Property Values and Railroad Proximity: A Study Based on Hedonic Prices and Real Estate Brokers' Appraisals, Transp., 28, Springer, 137-156.

10.1023/A:1010396902050
18

Yoon J. J., Woo M. J. (2015), An Empirical Study on the Spatial Definition of Public Transportation Accessibility in Seoul, J. Korea Plann. Assoc., 50(4), Korea Planning Association, 69-85.

10.17208/jkpa.2015.06.50.4.69
Information
  • Publisher :Korean Society of Transportation
  • Publisher(Ko) :대한교통학회
  • Journal Title :Journal of Korean Society of Transportation
  • Journal Title(Ko) :대한교통학회지
  • Volume : 43
  • No :5
  • Pages :536-553
  • Received Date : 2024-11-04
  • Revised Date : 2024-11-28
  • Accepted Date : 2025-08-18
  • DOI :https://doi.org/10.7470/jkst.2025.43.5.536
Journal Informaiton Journal of Korean Society of Transportation Journal of Korean Society of Transportation
Archives
: 2015 Vol.34~
  • scopus
  • NRF
  • KOFST
  • crossref cited-by
  • crosscheck
  • orcid
  • open access
  • ccl
Journal Informaiton Journal Informaiton - close