[Choi Jun-young's Urban Pilgrimage] Changes in City Boundaries

Just as nations have borders, cities also have boundaries. Compared to strictly controlled and managed borders, city boundaries are often less perceptible. While the urban area distinguished from surrounding rural and forested regions is recognized as the city boundary, in reality, it is often much broader. This is because various types of land exist on the outskirts of urban areas, including green belts. Therefore, it is not uncommon for areas clearly within city limits to be listed in various agricultural statistics. According to data from the National Statistical Office, there were 123 hectares of rice paddies in Seoul last year, producing 601 tons of rice. The total agricultural land area in Seoul reaches 1,084 hectares, and the number of people engaged in agriculture as a profession is recorded at 9,374. For rice, there is even a brand called 'Gyeongbokgung Rice,' and pears are separately produced and sold under the brand 'Surabae.'

123 hectares of rice paddies exist in Seoul
601 tons of rice produced last year
Due to inclusion of land for agricultural purposes

This type of land use, which seems incompatible with a city, occurs because land used for agriculture and other purposes was incorporated during the expansion of city boundaries. Just as one buys clothes that fit when their body grows, cities also expand their boundaries in response to population growth. When one boundary expands in a limited land area, another must shrink.

In the past, areas that existed as 'gun (county)' were often upgraded to 'si (city)' when urbanized areas such as 'eup (town)' were established, resulting in a coexistence of donut-shaped counties and cities. However, nowadays, entire counties are upgraded to cities or existing cities and counties are merged, so much of the old boundary structure has disappeared.

What is the largest local government unit in South Korea? Among basic local governments such as cities, counties, and districts, the largest is Hongcheon in Gangwon Province. It boasts an area of 1,820 km², which is a massive size about three times that of Seoul’s 605 km².

When traveling from Seoul to the East Coast, you pass through Yangpyeong in Gyeonggi Province, and after that, Hongcheon begins and continues all the way to Yangyang on the East Coast. This fact alone shows how large Hongcheon is. Among cities (not counties), Andong in North Gyeongsang Province is the largest at 1,522 km², followed by Gyeongju at 1,324 km². Many are surprised by Gyeongju’s size because they do not realize it borders the East Coast. Just as children rapidly outgrow clothes during growth spurts, cities also continuously change their boundaries and increase in area during periods of rapid growth.

Largest local government in South Korea
Gangwon Hongcheon... three times the size of Seoul

For a long time, only the area inside the Four Great Gates was considered Seoul, but during the Japanese colonial period, with the construction of railroads and population growth, the first urban planning in Korea, the Gyeongseong City Plan, was established in 1936, expanding Seoul to 135 km², including areas such as Yongsan and Yeongdeungpo. Seoul expanded beyond the Han River not during the 1970s Gangnam development but earlier in the 1930s. After liberation, Seoul continued to grow due to sustained population increases. In 1950, areas such as Sungin, Eunpyeong, Guro, and Ttukdo were incorporated, further expanding the city.

The most decisive expansion of Seoul occurred in 1963. Until then, the area was 269 km², but in 1963 it expanded to 713 km². Areas corresponding to today’s Gangnam, Seocho, Gangdong, Songpa, Geumcheon, Gangseo, Yangcheon, Jungnang, Gangbuk, and Dobong were incorporated into Seoul at that time. This was a proactive expansion to accommodate the explosively growing population. The areas incorporated then were later used as housing supply sites for Seoul citizens through developments in the 1970s Gangnam area and the 1980s Sanggye and Mokdong developments. Although these places once felt so distant that people asked, “Is that really Seoul?” once designated as Seoul, these areas gradually transformed into urban districts over time.

After expanding to 720 km² in 1970, Seoul’s area, which seemed like it would endlessly grow, began to shrink over time. Starting in 1982, when the Gwangmyeong area, which was naturally assumed to be part of Seoul, was reassigned to Gyeonggi Province, followed by some areas changing to Gwacheon and Bucheon in 1991, and then to Guri in 1995, Seoul’s area decreased to 605 km². This boundary has remained unchanged for over 20 years now.

Choi Jun-young, Senior Advisor at Law Firm Yulchon

Seoul’s rapid growth with boundary changes
Gangnam, Seocho, Gangdong incorporated in 1963

One of the biggest issues this year is the rise in housing prices, especially in Seoul. There are many reasons, but primarily because demand exceeds supply. While supply that meets demand is necessary, everyone knows that there is a shortage of land to supply new housing in Seoul. Because of this, the belief that housing prices in Seoul will continue to rise has taken root among people, and prices keep climbing. The government and Seoul city are trying to increase housing supply by gathering small remaining plots, but large-scale supply that people can feel is realistically difficult. As a result, new housing supply is concentrated in Gyeonggi Province rather than Seoul. However, demand is limited because it is outside Seoul, and it only plays a limited role in stabilizing Seoul’s housing prices.

How can we overcome this situation where housing supply in Seoul must increase but land is scarce? Revitalizing redevelopment of aging downtown areas and increasing floor area ratios are discussed. However, due to complex interests, these are not short-term solutions to expand supply, and most people have resigned themselves to the idea that increasing housing supply in Seoul is impossible. Is that really the case?

This year’s biggest issue: 'Housing price rise'
Expanding Seoul’s boundaries as a housing supply method

The simplest way to increase housing supply in Seoul is to expand Seoul’s boundaries to incorporate areas where new housing can be supplied. Although it is thought that all surrounding areas of Seoul have already been developed, a careful look at maps shows that many areas still remain. If these areas are incorporated into Seoul and housing is built, new housing supply in Seoul could increase dramatically. Some may think this is a deceptive shortcut, but looking back, most areas now considered Seoul were not Seoul in the past.

The ever-changing city boundaries have come to be accepted as unchangeable at some point. This rigid spatial perception causes housing and transportation problems and makes them difficult to solve. Compared to major capitals such as New York, London, and Paris, Seoul’s area is indeed small. To solve Seoul’s problems, it is time to break away from the fixed notion of Seoul’s boundaries and attempt new approaches.