한국해양환경. 에너지학회지 Journal of the Korean Society for Marine Environment and Energy Vol. 16, No. 2. pp. 121-129, May 2013 http://dx.doi.org/10.7846/jkosmee.2013.16.2.121 해역이용협의제도의사후환경관리개선방안 김귀영 이대인 엄기혁 전경암 강성경국립수산과학원해역이용영향평가센터 Improvements of Post-Project Environmental Management for the System of the Sea Area Utilization Consultation Gui-Young Kim, Dae-In Lee, Ki-Hyuk Eom, Kyeong-Am Jeon and Sung-Kyung Kang Marine Environmental Impact Assessment Center, National Fisheries Research & Development Institute 요 약 본연구는해역이용협의제도의실효성확보를위하여해양개발사업의사후환경관리에대한문제점을파악하고개선방안을제시하였다. 협의내용이행및점검소홀, 사후관리조치및결과보고미흡, 사후관리인식저하및전문성부족등으로개발사업의사후관리가제대로이루어지지않고있으며, 또한사후해양환경영향조사의경우도사업전후결과의검증이매우중요한사항인데도형식적으로추진되는등사후환경관리에많은문제가나타나고있다. 따라서해역이용협의제도의실효성을확보하기위한사후환경관리개선방안으로관계자들의사후관리인식제고및이행력확보가절실히요구되며, 갈등해소를위한사후관리시스템구축, 협의내용미이행사항에대한제재및책임성을강화해야하고, 아울러체계적인사후해양환경영향조사모니터링방안이정립되어야할것이다. Abstract This study investigated the status and problems of the post-project environmental management for development projects and suggested improvements of the system to achieve effectiveness for the system of the sea area utilization consultation. The post-project environmental management has had several problems such as the neglect of implementations and checks for the consultation items, the lack of actions and notifications of results, the absence of awareness and expertise of the post-project environmental management. In addition, although it is very important to verify results of actual change and modelling of marine environment before and after the projects, the marine environmental monitoring and assessment have been perfunctorily carried out. Thus, for the improvements of the post-project environmental management to the system of the sea area utilization consultation, it is extremely necessary for related stakeholders to raise awareness of the post management and implement it faithfully, and establish the post management system for conflict resolution and enforce sanctions and accountability against executory items. Furthermore, it should establish systematic monitoring system of marine environmental impact survey. Keywords: Sea area utilization consultation( 해역이용협의 ), Marine environmental impact survey( 해양환경영향조사 ), Post-project environmental management( 사후환경관리 ), Development project( 개발사업 ) 1. 서론 해양은공유재로서국민누구나가이용할수있으므로무분별한개발과이용시에는회복할수없는수준으로해양환경이훼손되고해양자원이고갈될수있으며 (Lee et al. [2011]), 최근에는해양개발 이용행위가꾸준히증가하고있고 (MLTM [2013]), 그개 Corresponding author: dilee@nfrdi.go.kr 발 이용형태도다양화, 대형화되고있어그로인한해양생태계의훼손과해양오염이가중되고있는실정이다 (MLTM [2011]). 따라서해양에서이뤄지는각종개발및이용행위가해당해역의해양환경수용력의범위내에서환경적으로건전하고지속가능하게이루어지도록유도 지원하기위한해역이용협의및평가제도가해양환경관리법이전면개정되면서 2008년부터본격적으로시행되고있다 (Lee et al. [2011]). 그후로제도의실효성확보를위해지속적으로관련규정을정비하고, 협의와평가의신뢰성제고 121
122 김귀영 이대인 엄기혁 전경암 강성경 를위하여다양한측면에서제도의보완이이루어져왔으나, 실질적인협의제도의정착을위해서는협의내용의사후환경관리에대한제반노력이더욱필요한시점이다. 사후환경관리는해역이용협의과정에서제시된환경영향에대한예측및저감방안의수립이적정하게이루어졌는지를파악하고공사시와운영시에발생할수있는예상치못한환경피해를예방하는데목적이있다. 또한장래에유사한개발사업에대해협의시환경영향예측의실증적자료로활용이가능하여중요하게인식되고있다 (Choi et al. [2003]). 사후환경관리는협의내용의사후관리와해양환경영향조사로구분된다. 협의내용사후관리조사는사업자가제출한사업계획및인 허가승인기관의승인내용, 해역이용협의단계에서제시된각종저감대책을사업자가이행하고있는지의여부를조사 확인하는것이다. 그리고해양환경영향조사는대상사업의실제공사및운영시발생되는환경영향을조사하여사전예측결과및저감대책의실효성여부를확인하고필요시이에대한추가적인대책을마련하여해양환경을보호하는해역이용협의의목적을구현하는데있다 (Choi et al. [2003]). 그러나사후환경관리를위해해역이용협의시예측된환경영향의양적 질적변화에대한검증의수단으로서지금까지여러사업장에서사후환경모니터링을수행하고있으나, 제도시행의초기단계라아직까지형식적인이행수준에머물러있으며, 이들의효율적이행을위한제도적 운영적사후환경관리관련연구사례도매우미흡한실정이다. 따라서본연구에서는해역이용협의제도의실효성확보측면에서협의내용의사후환경관리에대한문제점을진단하고개선방안을제시하여협의내용의이행에대한실효성을모색하고자하였다. 2. 재료및방법 본연구의방법은 2010년부터 2012년까지해양환경관리법에따른해역이용영향검토기관인해역이용영향평가센터에서검토한해역이용협의서 (604건), 해역이용영향평가서 (17건 ) 및해양환경영향조사서 (50건) 의검토의견을분석하고, 관련정책연구등문헌자료를조사하여해역이용협의및평가후시행하는개발사업의사후환경관리실태및문제점을진단하여실효성있는개선방안을제시하였다. 3. 결과및고찰 3.1 해역이용협의사후환경관리제도의현황 3.1.1 사후환경관리관련법령및규정현황해역이용협의내용의사후환경관리는사업자가사업계획시행에따라야기될수있는환경영향에대해협의기관과협의된내용의이행을규정하는규제적장치라할수있다. 해역이용협의의협의내용관리를위한제도적조치는해양환경관리법및업무처리규정등에서 Table 1과같이규정하고있다. 해양환경관리법제93조및제95조에서사후관리의기본사항및조치등과해양환경영향조사기본사항및조치등에대해명시하고있고, 동법시행령제69조및제71조에는사후관리의결과보고및조치사항등과해양환경영향조사대상사업등이, 동법시행규칙제59조및제60조에는사후관리결과보고서식및해양환경영향조사결과의통보및조치사항등이제시되어있다 (MLTM [2012]). 또한해역이용협의등에관한업무처리규정제18조내지제30조에사후관리를위한조사계획수립및조사방법등과해양환경영향조사서검토및해양환경피해에대한조치사항등이규정되어있다. 3.1.2 사후환경관리절차및운영체계해역이용협의완료후협의내용의사후관리및해양환경영향조사와관련한절차는 Fig. 1과같으며, 처분기관은협의기관과해역이용협의를완료하고사업자에게사업승인을하면, 처분기관은협의기관에그승인내용을통보하고, 사업자는승인내용에따라사업을착공하게된다. 이때사업자는협의과정에서의협의내용을이행해야하고사업에따른사후환경영향을모니터링하기위해해양환경영향조사를실시하여야한다. 사후환경관리와관련된이해관계자들 ( 사업자, 처분기관, 협의기관등 ) 의역할및운영체계는 Fig. 2와같으며, 처분기관은협의내용이행여부확인을위해사후관리현장점검을실시해야하며, 그사후관리결과및조치사항을협의기관에통보해야한다. 또한, 협의기관은사후관리현장조사를실시하고처분기관의사후관리이행여부점검및조치를요청할수있으며, 사업자는사후관리대상사업에대해서해양환경영향조사서를작성하여처분기관및협의기관에통보하도록되어있다. 이때해양환경영향조사서작성은해양환경관리법에의해등록된해역이용영향평가대행자를통한작성 Table 1. The legislations and provisions for the post-project environmental management Legislation and Provision Key content MEMA (Article 93) MEMA (Article 95) Enforcement Ordinance of MEMA (Article 69) Enforcement Ordinance of MEMA (Article 71) Enforcement Regulation of MEMA (Article 59) Enforcement Regulation of MEMA (Article 60) Provision on Task performance Chaptor 3 (Articles 18-27) Chaptor 4 (Articles 28-30) Basics, measures etc. on the PPEM Submission of result, measures etc. on the PPEM Development project for the MEIS Report form on the PPEM Submission of result, measures etc. on the PPEM Result notification and measures on the MEIS report Plans and investigation methods on the PPEM Consultation on the MEIS report *MEMA: Marine Environmental Management Act, PPEM: Post-Project Environmental Management, MEIS: Marine Environmental Impact Survey
해역이용협의제도의사후환경관리개선방안 123 Fig. 1. The procedure of post-project environmental management. Fig. 2. The roles and operation system by inter-relation among stakeholders of the PPEM. 대행이가능하며, 작성항목으로는해양환경기준으로정해진항목과협의의견통보시제시된항목으로작성되어야하며, 해양환경영향조사서제출시기는단년도조사사업일경우해양환경영향조사기간이만료된날부터 30일이내에, 다년도조사사업일경우에는매연도조사결과를다음해 1월 31일까지협의기관및처분기관에제출하도록규정되어있다 (MLTM [2012]). 3.1.3 사후환경관리내용해양환경관리법제93조 ( 사후관리 ) 및제95조 ( 해양환경영향조사등 ) 에의해수행되는해역이용협의사후관리및해양환경영향조사내용에대해비교분석하여 Table 2에나타내었다. 해역이용협의제도에서사후환경관리는협의내용의사후관리와해양환경영향조사로이루어지고있다. 사후관리는처분기관과협의기관이관리주체로서개발사업자가협의의견을준수하고있는지또는처분기관이협의의견을적절하게관리 감독하고있는지여부를확인하기위하여조사를실시할수있게되어있으며, 다만, 협의기관과처분기관이동일한사업에대해서는원칙적으로사후관리조사를하도록되어있다. 처분기관은협의의견이행조치명령등을한경우에는즉시해당사항을협의기관에통보하고, 사후관리결과를해양환경관리법시행규칙별지제53호서식에따라다음해 1월 31일까지협의기관에제출해야한다. 해양환경관리법제95조 ( 해양환경영향조사등 ) 에의해수행하는해양환경영향조사는사업
124 김귀영 이대인 엄기혁 전경암 강성경 Table 2. Comparative analysis between the post-project management and the MEIS Item Post-Project Management Marine Environmental Impact Survey Subject Approval authority, Consultation authority Developer Meaning - Confirmation that the developer implements the consultations, - Following the approval of development projects, analysis, prediction and evaluation of likely environmental impacts that AA properly monitors the consultations Object - Projects of the SAUC and SAUIA - Projects of the SAUC (Item 1 of Asterisk 15 in Enforcement Compulsory: Projects that the AA and the CA are equal Ordinance of MEMA) General: Projects having a potential or negative impact on the - Projects of the SAUIA(Asterisk 16 in Enforcement Ordinance of MEMA environment, projects that civil complaints have been filed, projects in the environmental protection and restriction area Method Action - The AA or CA require the developer to submit documents for consultations. If necessary, relevant authorities can conduct on-site monitoring or joint-inspections for PPEM - The AA or CA should keep records on the implementation of consultations - The AA or CA can command the developer to implement consultations. But if the measures are not implemented effectively, the project can be suspended until they are completely conducted - The AA should notify the CA of the fact commanding the Notification, developer to implement consultations or Submission - The AA should notify the CA of the results on the PPEM until 31, Jan. of the next year - Developer must document MEIS report including parameters of marine environmental standards, and notified by CA. Developer may entrust the MEIS to the licensed impact assessment agency - In the case of projects with likely adverse environmental impacts, the CA ask the AA to take actions such as downsizing of project scale - The developer must conduct appropriate mitigation and abatement measures of environmental impacts - Single year project : The developer must submit the report to both authorities within 30days after expiration of the MEIS - Multi-year project : The developer must submit each MEIS report to both authorities until 31, Jan. of the next year *MEMA: Marine Environmental Management Act, PPEM: Post-Project Environmental Management, MEIS: Marine Environmental Impact Survey, SAUC: Sea Area Utilization Consultation, SAUIA: Sea Area Utilization Impact Assessment, AA: Approval Authority, CA: Consultation Authority Table 3. The period and frequency of on-site investigation for the MEIS Classification Period Frequency Projects of SAUC From beginning to completion of the development project A semi-annual investigation during the construction phase Projects of SAUIA From beginning to completion of a development project, and for 3 years afterwards - A quarterly investigation during the construction phase - A semi-annual investigation after the construction completion 자가작성주체로서면허등을받은후행하는사업으로인하여발생될수있는해양환경에대한영향의조사를실시하고그결과를처분기관및협의기관에통보하여야한다. 이때통보된해양환경영향조사결과해양환경에피해가발생하는것으로인정되는때에는처분기관이해양수산부령이정하는바에따라사업자에게필요한조치를하도록하여야한다. 해양환경관리법시행령제71조에해양환경영향을조사하여야하는대상사업과조사기간및조사주기에대해 Table 3과같이명시하고있다. 해양환경영향조사실시대상사업은해양환경관리법시행령별표15 제1호에따른일반해역이용협의대상사업및동법시행령별표16에따른해역이용영향평가대상사업으로되어있다. 그러나환경영향평가법에따라사후환경영향조사를실시하는사업에대해서는조사의중복을피하기위해해양환경영향조사를생략할수있게되어있으며, 또한해역이용협의시주변환경여건등에따라협의기관과협의된경우에는조사기간을단축하거나연장할수있다. 여기서주변환경여건등이란해역이용협의등의의견통보시환경영향조사시기를조정한경우, 해양환경영향조사결과대상사업착공으로인한환경영향이적어더이상의조사가불필요하다고인정되는경우, 해역이용영향평가당시예측하지못한환경영향이발생한경우를말한다. 조사기간및조사주기는해역이용협의 대상사업일경우사업시작부터사업완료까지반기별 1회, 해역이용영향평가대상사업은사업시작부터사업완료후 3년까지사업중에는분기별 1회및사업완료후에는반기별 1회로규정하고있다. 3.2 사후환경관리문제점 3.2.1 협의내용사후관리문제점해역이용협의단계에서사업으로인해일어날수있는환경영향에대한조사가구체적으로수행되고정확한영향예측을통해실효성있는저감방안을마련한다고해도이것이실제공사시혹은운영시에적절히반영되도록관리를하지않으면해역이용협의자체는의미가상실되게된다. 따라서해역이용협의이후사업시행시이루어지는협의내용의사후관리는매우중요하다. 그러나해양환경관리법이전면개정되어시행 (2008년) 된후현재까지해역이용협의에대한제도개선은꾸준히이루어져왔지만, 협의내용의사후관리에대해서는제도개선이미흡한실정이다. 협의내용의사후관리는이해관계자 ( 해역이용사업자, 처분기관, 협의기관 ) 들의정확한제도인식과역할이행이가장중요하며, 그문제점및원인에대하여 Table 4에나타내었다. 해역이용협의이후협의내용이행등의사후관리가제대로이루어지지않고있는가장큰문제점으로는사업자와처분기관에서의
해역이용협의제도의사후환경관리개선방안 125 Table 4. The problems and causes for the consultation implementation by each stakeholder related to the PPEM Classification Problem Cause Developer AA CA - Recognition as mere administrative process of SAUC - Distrust of consultation opinions - Conflict against CA - Obscurity of responsibility and accountibility on implementation manager Recognition that all environmental issues are solved whenever consultation processes are passed through Exclusion from budget allocations due to lack of awareness on necessity for the postproject management Perception of consultation opinions without practicality Doubt about effectiveness on the system of sea area utilization consultation Factitious manipulations and intentional omissions on contents of the consultation Distrust on nonfulfillment of administrative procedures Neglect in surveillance and supervision due to the self-regarding post-project management if the developer and AA are equal - Indistinctness of responsibility's whereabouts Separation of main manager on the agenda - Only formal implementation on PPEM Interest in only passage of consultation procedures Recognition as remit of CA on the agenda - Lack of suitably trained and educated personnel Lack of well-qualified and experienced staff in accord with a heavy administrative burden - Lack of environmental expertises Difficulty in the expertise accumulations due to frequent personnel transfer 협의내용사후관리에대한이해및인식부족으로보인다. 협의의견이행주체인사업자는해역이용협의만마치면환경문제는모두해결되었다고인식하고있어사후관리를위한예산미확보등해역이용협의를단순히사업승인을위해행하는하나의행정절차로보고있기때문이다. 아울러협의의견에대해현실성이결여된의견이라는협의의견불신, 협의이후의행정절차미이행에대한협의기관과의갈등, 협의의견관리및이행주체에대한책임불명확등도문제점으로나타나고있다. 처분기관은협의절차의이행여부에만관심이있으며, 협의이후발생하는모든문제는개발사업자의책임으로인식하고있어협의내용이행사후조사도형식에그치고있는실정이다. 또한처분기관은해역이용협의등에대한의견을해역이용사업자가이행하고있는지여부를확인해야하며그사후관리결과를다음해 1월 31 일까지해양수산부장관에게알리도록법령조항에규정되어있지만이것도실행이미흡한실정이다. 그리고협의기관은관리업무증가에대한담당인력부족과잦은인사이동으로담당자의전문지식확보곤란등이문제점으로나타나고있다. 또한해역이용협의사업중사업자, 처분권자및협의권자가동일한사업현황은 Table 5와같으며, 특히공공사업의경우사업자가그대로처분기관이되는경우가많고, 일부는사업시행기관이협의기관및처분기관이되는사업도있음에따라협의내용의이 Table 5. The status of projects among stakeholders related to the SAUC Unit: case Classification Year 2011 2012 Total consulted projects 216 178 Projects that the developer and the AA are equal 117 75 Projects that the developer and the CA are equal 16 11 Projects that the AA and the CA are equal 67 52 Projects that the developer and the relevant authorities are equal 13 4 행확인을위한사후조사가형식적이고방임적으로이루어질수있는문제점도있다. 3.2.2 해양환경영향조사문제점해양환경영향조사는개발사업으로인하여공사시와운영시변화하는환경질에대하여조사 분석하고이를토대로해역이용협의당시의예측치와실측치를비교 평가하여사후환경관리의신뢰성과실효성을높이는데하나의목적이있다. 지난 3년간 (2010-2012) 해역이용영향검토기관에서검토한해역이용협의, 해역이용영향평가, 해양환경영향조사및환경영향평가검토현황 (Table 6) 을보면해양환경영향조사의이행실적이상당히낮았다. 이것은협의후추진이어려운사업도있을수있고, 또한, 환경영향평가대상사업은해양환경영향조사를생략할수있도록규정되어있어실제수행되고있는해양환경영향조사건수가낮을수있다. 하지만상당수의사업은해양환경영향조사가제대로이루어지지않고있음을보여주고있다. 해양환경관리법시행령제69조에의거처분기관이협의내용의이행여부등사후관리결과를해양수산부로보고하도록되어있으나, 이에대한이행이이루어지지않고있는상황이며, 협의과정에서제시한의견이어떻게반영되고조치되었는지에대한정보가부족하여실효성있는사후관리가미흡한실정이다 (Kim et al. [2009]). 또한, 해양환경영향조사서작성현황을살펴보면주로해역이용협의시의예측치와사후결과치를비교하여제시하지않고조사결과 Table 6. Annual performance of review for SAUC and impact assessment Unit: case Classification Year 2010 2011 2012 Sea Area Utilization Consultation (SAUC) 210 216 178 Sea Area Utilization-Impact Assessment (SAUIA) 5 2 10 Environmental Impact Assessment (EIA) 121 80 85 Marine Environmental Impact Survey (MEIS) 8 12 30
126 김귀영 이대인 엄기혁 전경암 강성경 의수치가해양환경기준을만족하는지에초점을맞추어작성되고있고, 보고서가사업중혹은사업후환경상태가환경기준에부합하여영향이미미하다고기술하는경우가대부분이다. 이것은환경영향에대한예측및저감방안이적절하게수립되었는지를파악하고예상치못한환경피해를예방하는데한계가있을수밖에없다 (Choi et al. [2003]). 환경영향평가대상사업은해양환경영향조사를생략할수있으므로해역이용협의후공사시및운영시환경영향에대해협의기관으로의통보규정이미흡하여개발사업자의해양환경영향조사수행이소극적일수있는문제점도있다. 또한개발사업자의협의내용사후환경관리를위한해양환경영향조사에대한인식부족도큰이유의하나이다. 해양환경영향조사를수행해야하는조사대상은일반해역이용협의 ( 단공유수면매립대상사업으로서매립면적이 15,000 미만인경우에는제외 ) 및해역이용영향평가대상사업으로일률적으로규정되어있어사업으로인한영향이없는사업도조사를수행해야하는불합리성이발생할수있는문제점도있다. 조사기간및조사주기는해역이용협의대상사업일경우사업시작부터사업완료까지반기별 1회, 해역이용영향평가대상사업은사업시작부터사업완료후 3년까지사업중에는분기별 1회및사업완료후에는반기별 1회로일괄하여규정하고있어사업의공사시및운영시의단계에있어서환경영향을파악하는데한계가있다. 해양환경영향조사서제출시기는다년도사업일경우다음해 1월까지해역이용사업자가처분기관및협의기관에제출하도록일률적으로규정되어있어결과보고서가한꺼번에같은시기에제출되어업무집중에따른업무처리지연등상당한문제가발생되고있는실정이다. 3.3 해역이용협의사후환경관리개선방안해양환경관리법에서규정하고있고현재현장에서이행되고있는해역이용협의제도에서의사후환경관리는해역이용협의내용의이행관리를위한사후관리조사와개발사업에따른해양환경영향조사로구분되어있다. 본협의제도가본격적으로시행된지 5년정도지난현재해역이용협의의사후환경관리에는제도적인측면뿐만 아니라운영상에많은문제점이노출되고있어제도적보완이시급히요구되는실정이다. 3.3.1 협의내용이행사후관리개선방안해역이용협의내용의이행관리를위한사후관리의문제점및제도개선방안을 Table 7에나타내었다. 첫째, 협의내용사후관리주체의명확한역할구분이필요하다. 협의기관은사업자가협의의견을준수하고있는지또는처분기관이협의의견을적절하게관리 감독하고있는지여부를확인하는역할을하게되어있으며, 처분기관은사업자가협의의견을준수하고있는지여부를확인하는역할을하므로사업자측에서는협의기관뿐만아니라처분기관의이중관리를받게되어업무부담이과중될수있고, 사후관리주체가처분기관과협의기관으로되어있어관리업무의책임을서로떠넘기는것이현실이다. 따라서협의내용의사후관리실효성을확보하기위해서는협의의견이행주체인사업자의협의의견준수확인은처분기관으로일원화하고, 협의기관은협의후사업시행으로인한사후환경영향조사에대한전문적인영향평가업무로협의기관과처분기관의명확한역할구분의개선이필요할것이다 (ME [2006]). 둘째, 협의기관의사후환경관리담당전문인력이시급히확보되어야할것이다. 현재협의기관인각지방해양항만청별로사후관리담당인력이 1명으로배정되어있으나, 실질적으로는사후관리업무만을담당하는것이아니라해역이용협의업무및공유수면점 사용업무등해양환경업무전반을담당하고있는경우가대부분이다. 그래서현재의인력으로는연간 2,000여건의해역이용협의업무와협의내용관리사업장의현장점검및사후관리조사등의업무를수행하기엔한계가있기마련이다. 따라서사후관리전담인력의충원이시급한실정이다. 한편이는단기간에이루어지는것이아니며, 필요한인원을충원하는것도어려운현실이기때문에실효성있는사후관리를위해제도적 운영적측면에서의방안도병행하여마련해야할것이다. 셋째, 사업자와처분권자등이동일한사업에대한협의내용관 Table 7. The problems and improvements of the PPEM with respect to consultations Item Problem Improvement Duplication of main manager for the PPEM Relevant personnel in the CA for the PPEM Management for projects that the developer and the relevant authorities are equal Inter-links among relevant stakeholders Double burdens on the developer Degradation of responsibility the PPEM Perform difficult work due to lack of personnel in the CA for the PPEM Neglect of the implementation on consultation opinions Neglect of roles and obligations due to conflict among stakeholders Sanctions in the event of a failure to implement Faint sanctions in the event of a failure to implement developer AA: Verify implementation of post-project management CA: Assessment and diagnosis on marine environmental impact Recruitment of relevant personnel Improvements in the system on the post-project management and operation Establishment of system on compulsory submission of relevant plans and reports Build-up of complementary system for postproject manager and operator Strengthen of mandatory obligation on the Provision of "the compliance order right" for the CA
해역이용협의제도의사후환경관리개선방안 127 리실효성확보방안이강구되어야할것이다. 일반해역이용협의및해역이용영향평가대상사업은일정규모이상의사업을대상으로하고있으며, 공공사업의경우개발사업자와처분기관또는협의기관이동일한사업이상당부분이루어지고있음에따라협의내용의이행확인을위한사후조사가형식적이고방임적으로이루어질수있는여지가충분히있다. 또한이를관리할사후관리조사가협의기관과처분기관이동일한사업에대해서는원칙적으로사후조사를수행하도록규정하고있지만담당인력부족등으로협의내용사후관리가미흡한실정이다. 사업자와처분기관, 협의기관이동일한사업의경우단기간내에협의내용관리의실효성을기대하기는한계가있으며, 사후조사의주체인협의기관또한현재의인력규모로는실효적인사후관리조사를수행하기에어려움이있으므로, 협의내용이사업계획및설계에확실히반영되도록하기위해서는처분기관이사업시행전에협의내용이행계획서를사업자로부터제출받아사후관리계획서와함께해양수산부장관에게제출하도록제도개선이필요할것이다. 넷째, 사후관리이해관계자간의유기적연계성강화가필요하다. 사후관리는사업자, 처분기관및협의기관등이 Fig. 2에제시한각자의역할과책임을다하고유기적으로연계되어사업현장환경관리및점검이원활히수행되어야한다. 그러나사후관리관계자들의실행의지및인식부족, 현장중심의사후관리실행미흡등으로많은문제가발생하고있고, 또한운영 제도적인다양한원인등으로사후관리관련이해당사자간에많은갈등도발생하고있다. 이러한갈등은사후관리의이행주체와이를점검하고관리하는관리자라는상반된입장에서각자의역할과책임을소홀히한것이주요원인이라할수있다 (Maeng et al. [2008]). 따라서사후관리이해관계자들의유기적연계성확보를위해서는통합네트워크구축등보다구체적인사후관리운영시스템이마련되어야할것이다 (Choi et al. [2011]). 다섯째, 협의내용미이행사항에대한제재수단의강화가필요할것이다. 현재해양환경관리법에서처분기관은해역이용사업자가해역이용협의등의내용및협의등에대한의견을이행하지아니하면그이행을위하여필요한조치를명하여야하고, 조치명령을이행하지아니할경우에는 2차조치명령을하고, 그래도명령시 한까지이행하지아니할때에는조치명령이행시까지해당사업에대한중지를명하도록되어있다. 하지만이경우도상당부분의대규모사업의경우개발사업자와처분기관이동일함에따라상기법적규제조항은실효성이미약할수밖에없다. 또한, 협의기관은처분기관이해역이용협의등을거치지아니하고면허등을하거나해역이용협의등의의견을반영하지아니하고면허등을한때에는그면허등의취소, 사업의중지, 공작물의철거 운영정지및원상회복등필요한조치를할것을처분기관에요청할수있지만, 이것또한강제성이있는명령권한이아니다. 따라서협의기관도직접해역이용사업자에게협의내용의미이행에대해현장에서직접공사중지명령등행정조치가가능하도록제도개선이필요할것이다 (Choi et al. [2003]). 3.3.2 해양환경영향조사체계개선방안해양환경영향조사는사업에따른환경변화와영향에대한추적및적정대응방안강구가초점이므로사업도중의당해연도조사현황과결과의단순한제시가아니라사업전후의시간경과에따른제반환경요소의변화를파악하고해역이용협의단계에서제시한결과를검증하며, 나아가서향후이루어질수있는유사사업의계획에반영하는결과도출이중요하므로실증적자료확보도중요하다. 그러나해양환경영향조사의운영체계미흡및형식적인환경영향조사로인해제도의효율성및결과의활용성이부족한실정이다. 따라서중요성이커지고있는해양환경영향조사의실효성을확보하기위한제도개선방안을 Table 8에제시하였다. 해양환경영향조사를수행해야하는조사대상은일반해역이용협의및해역이용영향평가대상사업으로일률적으로규정되어있어사업으로인한영향이없는사업도조사를수행해야하는불합리성이발생할수있으므로, 예상되는환경영향의규모로조사대상사업을규정하는것이합리적일것이다. 조사항목에서도현형해양환경기준항목과협의시제시한항목으로되어있는것을협의시제시되어협의된조사항목으로규정을개선할필요가있다. 조사기간및조사주기는해역이용협의대상사업일경우사업시작부터사업완료까지반기별 1회, 해역이용영향평가대상사업은사업시작부터사업완료후 3년까지사업중에는분기별 1회및사업완료후 Table 8. Improvements on the marine environmental impact survey Classification Present Improvement Target project Projects of SAUC and SAUIA Projects of the more significant environmental impacts Investigation item Environmental parameters of marine environmental standards Environmental parameters consulted by CA Environmental parameters consulted by CA Investigation period Submission time Implementation of investigation SAUC: From beginning to completion of the development project Selection of investigation period by the nature and size of SAUIA: From beginning to completion of a development the development projects project, and for 3 years afterwards Single year project: within 30days after completion of the MEIS Multi-year project : until 31, Jan. of the next year The developer can dispense with the MEIS if the postproject environmental impact survey based on the environmental impact assessment (EIA) will be implemented Determination of the submission time considering the beginning date of the project Even if the developer did dispense with the MEIS, they must submit the post-project environmental impact survey report to relevant authorities
128 김귀영 이대인 엄기혁 전경암 강성경 에는반기별 1회로규정하고있다. 그러나해양환경영향조사는사업의공사시및운영시의단계에있어서환경에미치는영향을파악할수있도록하여야한다. 따라서환경영향조사기간을현행과같이일괄규정하는것보다대상사업마다사업특성및영향예측정도를고려하여협의과정에서설정하도록개선하는것이바람직하며, 즉운영시영향이거의없는사업은공사완료시까지, 운영시영향이예상되는사업은그영향여부를확인할수있는기간까지조사기간을설정할필요가있다. 또한조사시기에서도공사시의현장조사는주변해역에미치는영향이최대가예상되는시기에실시하도록하며, 운영시의현장조사는시설이전면가동되어환경영향의정도가정상상태가되는시기에하도록해야한다. 해양환경영향조사서제출시기는다년도사업일경우다음해 1월까지해역이용사업자가처분기관및협의기관에제출하도록일률적으로규정되어있어업무집중에따른업무처리지연등문제가발생될수있으므로, 다년도사업의경우제출시기를사업착공일을기준으로 1년후에제출하도록개선하는것이바람직할것이다. 규모가크고연안육역을포함하는해역이용협의대상사업은대부분환경영향평가법에따른환경영향평가대상사업으로되어있다. 동법에의한사후환경영향조사를실시하는사업에대해서는사업자의환경조사에대한이중부담해소를위해해양환경영향조사를생략할수있도록되어있다. 그러나이들사업들은해역이용협의만수행하고협의후협의기관으로의사후환경영향조사결과서의통보에대한명확한근거가없어협의기관의협의내용에대한사후환경관리에한계가있어왔다. 따라서이들해양환경영향조사를생략하는해역이용협의대상사업에대해서는사후환경영향조사서를협의기관으로통보하도록근거를명확히하여협의내용이행의실효성을확보해야할것이다. 4. 결론 본연구에서는해역이용협의제도의실효성확보측면에서협의내용의사후환경관리에대한문제점을제시하고개선방안을마련하여협의내용의이행에대한실효성을모색하고자하였다. 협의내용의사후관리부분에서처분기관이협의내용이행여부등사후관리결과를해양수산부로보고하도록되어있으나, 협의과정에서제시한의견의반영여부및사업의추진유무등에대한협의기관으로의통보미흡으로실효성있는협의와관리가이루어지지않고있다. 특히, 사후환경관리방안의하나인해양환경영향조사의경우협의과정에서제시한평가내용과결과가적절했는지, 예측치못한상황이발생했는지등사후모니터링으로사업전후결과의검증이매우중요한사항인데도사업자의인식부족및형식적인조사로인해조사결과의활용성이떨어지고, 이에대한협의기관및검토기관의인력부족등으로해양환경영향조사의효율성및결과의활용성이떨어지는등사후환경관리에많은문제점이발생되고있다. 따라서해역이용협의의사후환경관리에대한 실효성을강화하기위해서는개발사업자는협의의견에대한조치계획및조치결과의제출을의무화해야하고, 처분기관은협의의견의사업계획반영여부확인등협의내용에대한사후관리를강화해야한다. 협의기관은협의의견이행여부확인등을위한현장조사및처분기관의사후관리조사결과의제출을준수하도록해야한다. 또한협의내용미이행사항에대한제재및책임성을강화해야하고, 이해관계자들의유기적연계성및사후관리이행력강화가절실히요망된다. 아울러해양환경영향조사는사업에따른환경변화와영향에대한추적및적정대응방안강구가중요하므로단순한조사현황결과의제시가아니라사업전후의시간경과에따른제반환경요소의변화를파악하고해역이용협의단계에서제시한결과를검증하는체계적인모니터링방안이재정립되어야할것이다. 후기 본연구는국립수산과학원 (RP-2013-ME-017) 의지원에의해수행되었습니다. 참고문헌 [1] Choi, J.K., Kang, Y.H. and Joo, Y.J., 2003, Improvement of Post-environmental Management System in Environmental Impact Assessment, Korea Environment Institute (KEI) environmental forum, Vol.7, No.5, 201-207. [2] Choi, S.K., Kim, T.H. and Song, Y.I., 2011, Institutional Discussions concerning Agreements on Effective Implementation of EIA, Korea Environment Institute (KEI) working paper, 2011-08, 1-28. [3] Kim, G.Y., Lee, D.I., Jeon, K.A., Eom, K.H. and Woo, Y.S., 2009, Diagnosis for Review of Statement and System Improvement of Consultation on the Coastal Area Utilization, Journal of the Korean Society of Marine Environment & Safety, Vol.15, No.4, 345-354. [4] Lee, D.I., Kim, G.Y., Jeon, K.A., Eom, K.H. Yu, J., Kim, Y.T., Moon, J.H. and Kam. M.J., 2011, An Application Status and Consideration of System Improvement on the Sea Area Utilization Conference and Impact Assessment, Journal of the Korean Society for Marine Environmental Engineering, Vol.14, No.4, 239-248. [5] Maeng, J.H. and Joo, Y.J., 2008, Studies on Establishing and Effective System for the Management after Construction in the EIA Process, Journal of Environmental Impact Assessment, Vol.17, No.1, 57-66. [6] ME (Ministry of Environment), 2006, Studies on Improvement of Environmental Impact Monitoring and Post Management in EIA System. [7] MLTM (Ministry of Land, Transport & Maritime Affairs), 2011,
해역이용협의제도의사후환경관리개선방안 129 Establishment of the Assessment Guideline for Development Type of Sea Area Utilization, The final report, 11-1611000- 001647-01, MLTM. [8] MLTM (Ministry of Land, Transport & Maritime Affairs), 2012, Marine Environmental Management Act. [9] MLTM (Ministry of Land, Transport & Maritime Affairs), 2013, The Continuous Increasing of Developments and Utilizing Projects on Sea Area, Press release of MLTM, 14, Feb., 2013. 2013 년 4 월 5 일원고접수 2013 년 5 월 13 일심사수정일자 2013 년 5 월 15 일게재확정일자