지역사회 돌봄정책에서 안정된 제도화와 사회적경제의 결합은 바람직한 성과를 담보하는가: 서울시 노인지원주택 <도담주택> 사례

초록

This study investigates the dynamics of why a public housing-care model, initiated with a stable institutional foundation and high expectations through the involvement of a professional social economy organization, ultimately resulted in operational suspension. To this end, <Dodam Housing>, a supportive housing project for the elderly in Seoul operated by the “Doowoonuri Social Cooperative,” was selected as a single case study. A qualitative case study was conducted from 2023 to 2024, utilizing in-depth interviews with managers, practitioners, and residents, alongside document analysis and participant observation. The findings reveal a phenomenon of ‘structural misalignment’ between institution and practice. First, the strong top-down institutionalization, where upper-level agencies determined all rules, suppressed the hybridity of the social economy organization by hindering coordination between administrative logic and care practice logic. Second, the exclusion of practitioners from the planning process led to the failure of co-production, shifting the burden of institutional voids onto the practitioners' emotional labor. Third, the operating entity’s lack of a local base impeded the formation of embeddedness, severing links with the local community. Fourth, these internal vulnerabilities made the project unable to effectively respond to external shocks, such as shifts in the political environment, becoming a decisive factor in its discontinuation. These findings demonstrate that despite stable institutions and good intentions, structural failure can occur when top-down control disconnects from field practices. This suggests that future public-private partnerships must be designed not only to establish formal institutions but also to ensure practitioner autonomy, participatory structures, and community embeddedness.

키워드