Institutional frameworks of public-led modular housing in Korea through chronological and process-based analysis

In Korea, MODULAR HOUSING has been promoted as an alternative to conventional on-site construction amid labor shortages, productivity constraints, and growing demand for standardized housing delivery. However, despite repeated public-sector initiatives, its diffusion has remained uneven. This study examines the development of public-led modular housing in Korea from an institutional perspective and identifies conditions influencing its implementation and diffusion. Using a qualitative research design, the study combines peer-reviewed literature, legal and policy documents, procurement guidelines, public agency reports, project-level cases, and expert consultation. The analysis clarifies the conceptual boundaries among Off-Site Construction (OSC), MODULAR CONSTRUCTION, and MODULAR HOUSING, while document analysis focuses on certification systems, procurement structures, and delivery frameworks. In addition, a chronological review of project-level cases conducted by major public housing providers is undertaken. The analysis shows that public-led modular housing in Korea has developed through multiple institutional pathways rather than a single linear process. Persistent institutional challenges are identified in certification, procurement, performance verification, and standardization, as well as ongoing ambiguity in the conceptual boundaries between OSC and modular systems. The study concludes by outlining directions for institutional improvement and further research.