물관리위원회 분쟁조정을 통한 낙동강유역 물분쟁 해결 방안 연구 ― 낙동강 통합물관리방안 변경(안) 관련 정책 논의와 제도를 중심으로 ―

최성열 한국환경법학회 2025 환경법연구 Vol.47 No.1

낙동강은 1991년 낙동강 페놀 유출 사태 이후 계속적은 화학물질, 정수장 유충사고 및 녹조 대창궐로 인하여 수질오염의 대명사와 같은 인식되고 있다. 정부는 유역민들에게 맑을 물을 공급하기 위한 정책과 재정적 지원을 계속하고 있지만 유역민들이 주요 상수원인 낙동강 본류에 대한 불안감을 종식시키기에는 역부족이었다. 즉 국가 중심의 수직적 물관리 정책은 지역적 특성에 따른 시민사회의 높아가는 환경 수요(needs)에 적절히 대응하기 어려웠으며, 유역 내 물관리 당사자들간의 불신과 갈등이 확산하고 있다. 물관리위원회는 지난 30년간 수량-수질 통합물관리정책에 대한 논의를 바탕으로 2019년 「물관리기본법」과 함께 출범하였다. 해당 위원회는 기존 분절적이고 수직적인 물관리정책을 국가물관리위원회와 4대강 유역물관리위원회를 통하여 점진적으로 해결하기 위한 정책 작업을 추진하였다. 또한 주무부처 환경부는 물관리기본법 상 통합물관리와 유역물관리라는 새로운 물관리 정책 깃발아래 낙동강유역 취수원 다변화를 통한 “낙동강 통합물관리방안”을 물관리위원회에 제안하였으며, 2021년 제1기 낙동강유역물관리위원회는 해당 안건을 심의・의결하였다. 하지만 2022년 윤석열 정부 출범과 제8기 민선 지방자치단체장 선출이후 낙동강 “낙동강 통합물관리방안”에 대한 불만의 목소리가 대구광역시장을 통하여 나왔다. 대구광역시장은 “낙동강 통합물관리방안” 이행을 위한 구미-대구광역시간 “맑은물 협정”파기 자체 연구를 바탕으로 환경부-대구광역시-안동시 간 합의를 통하여 “낙동강 통합물관리방안 변경(안)”을 공식화 하였으며, 2024년 환경부는 기술 검토후 해당 안건을 제2기 낙동강 물관리위원회에 접수하였다. 이 같은 정책 행보에 낙동강 유역 내 광역・기초 자치단체장과 환경단체, 지역주민 등 다양한 이해관계인들의 불만의 목소리가 터져나오고 있다. 이 같은 물분쟁상황에서 국가 및 유역 내 주요 정책을 심의・의결하는 물관리위원회는 물분쟁 상황에 대하여 관찰자적 입장을 취하고 있어 물관리기본법 제정 취지를 무색하게 하고 있는 상황이다. 본 논문은 낙동강유역물관리위원회의 정책 추진 활동과 물관리기본법 상 물분쟁 상황에 대하여 물관리위원회의의 기능과 역할 그리도 당사자들의 권한과 의무를 검토하여 향후 다양하고 복잡한 물분쟁 상황에 물관리위원회의 대응 방향성을 제시하고자 한다. Since the 1991 phenol spill incident, the Nakdong River has continued to suffer from chemical discharges and widespread algal blooms, becoming synonymous with water pollution in the public perception. Although the government has continuously implemented policies and provided financial support to supply clean water to residents in the river basin, it has fallen short of alleviating public concerns regarding the water quality of the main stream of the Nakdong River. The top-down, state-centered water management policies have struggled to adequately respond to the growing environmental needs of civil society, which vary by region. As a result, conflict and mistrust among stakeholders involved in water management within the basin persist. Based on three decades of discussions to improve water management policy, the Moon Jae-in administration established the Water Management Committee in 2019 under the Framework Act on Water Management. This was an effort to gradually address the fragmented and hierarchical structure of existing water policies through the National Water Management Committee and the four major river basin committees. Under this new framework, the Ministry of Environment proposed the “Nakdong River Integrated Water Management Plan,” which aimed to diversify water intake sources within the basin. The 1st Nakdong River Basin Water Management Committee deliberated and approved this plan in 2021. However, following the launch of the Yoon Suk-yeol administration and the election of the 8th local government leaders in 2022, opposition to the Nakdong River Integrated Water Management Plan arose—most notably from the Mayor of Daegu Metropolitan City. Based on its own study advocating the cancellation of the “Clean Water Agreement” between Daegu and Gumi, Daegu, together with the Ministry of Environment and Andong City, formalized a “Revised Proposal for the Nakdong River Integrated Water Management Plan.” In 2024, after a technical review, the Ministry of Environment submitted this revised proposal to the 2nd Nakdong River Basin Water Management Committee. This course of action has sparked discontent among other metropolitan and local governments in the basin, as well as among environmental groups and local residents. In the midst of this water dispute, the Water Management Committee—which is responsible for deliberating and deciding on major national and basin-level policies—has taken on more of an observer role. Therefore, this study aims to analyze the functions and roles of the Water Management Committee under the Framework Act on Water Management, as well as the rights and obligations of the stakeholders involved in water disputes. Based on the activities of the 1st Nakdong River Basin Water Management Committee, it seeks to present a direction for the future of the committee in handling such conflicts.

낙동강유역거버넌스의 격차분석

김창수(Kim Chang Soo) 한국지방정부학회 2018 지방정부연구 Vol.22 No.1

이 글에서는 OECD에서 활용하고 있는 격차분석틀을 적용하여 낙동강유역거버넌스를 진단하고 분석해보았다. 2002년 낙동강수계특별법 제정에 근거한 낙동강유역거버넌스를 통해 수질개선효과를 어느 정도 달성하였지만 유역 내 갈등은 심화되고 있었는데, 이는 직접적인 이해당사자인 유역주민들이 충분한 정보를 공유하고 의견을 표명할 수 있는 소통과 협력의 장치가 미흡하기 때문인 것으로 분석되었다. 환경부는 낙동강유역환경청과 환경공단 등을 중심으로 수직적으로 협력구조를 형성하지만, 유역의 지방정부와 지역주민들과 소통하고 협력하는 구조와는 괴리되어있었다. 국토교통부 역시 수량관리의 차원에서 부산지방국토관리청과 홍수통제소 등과 수직적 협력구조만을 형성하고 있었다. 낙동강수계에서 유일한 공론의 장인 낙동강수계관리위원회는 주민대표들이 의사결정에 참여할 수 있는 소통과 협력의 거버넌스는 작동하지 않고 있었다. 낙동강유역거버넌스는 책임, 목표, 관리, 역량, 재정, 정보 그리고 정책에 이르기까지 좋은 거버넌스로 보기에는 격차가 크게 나타났기 때문에 다각도의 격차완화를 위한 노력이 요구되는 것으로 분석되었다. 7가지 거버넌스 격차를 완화하고 낙동강유역의 공생공영을 위해서는 소통과 협력을 위한 민주적 유역거버넌스를 구축하는 것이 가장 시급한 과제로 평가되었다. 먼저 낙동강수계특별법의 개정을 통해 낙동강수계관리위원회를 낙동강유역관리위원회로 확대 개편하면서 지역주민들이 일정 비율 이상 구성에 참여하도록 하여 정보를 공유하고 책임성을 높일 필요가 있다. 이를 통해 상류지역에서 개발 행위가 있으면 공론과 담론의 장을 열어서 합의형성을 할 수 있는 장치가 필요하다. 무엇보다 물관리기본법 제정과 정부조직법의 개정을 통해 제도적 기반을 제공하는 것이 요구된다. The purpose of this study is to analyze water governance of Nakdong River Basin from the viewpoint of multi-level governance framework of OECD. The findings of seven gaps analysis are as follows. Firstly, only formal governments were accountable for the water management excluding residents living in Nakdong River Basin. Secondly, related actors on Nakdong River Basin are not sharing common goals without cooperating with one another. Thirdly, the integration of water-related agencies has begun since 1995 for supplying water, treating wastewater, and defending flooding unsuccessfully to abridge administrative gap. Fourthly, fair tax system and economic incentive mechanism are unsatisfactorily designed for overcoming the divide among regions to abridge capacity gap. Fifthly, the centralized financial system based on Beneficiary Pays Principle rather than Interest, Pay and Say Principle of the Netherlands, and gives rise to moral hazard and undermines the foundation of water governance on Nakdong River Basin. Sixthly, Korean government has not succeeded in integrating water agencies and public water corporations into optimal size to abridge information gap between central government and regional governments for 20 years. Lastly, Korean government has not succeeded in legislating National Water Act fostering regional water governance since 1995. In conclusion I suggest that legal-structural integration among water-related central departments, regional level authorities, and local governments should be proceeded in the long run to abridge the above 7 gaps. I also suggest that in case structural integration is not easy horizontal cooperation and multi-level cooperation among water-related actors based on Water Act legislation and steering basin committee be needed for successful water governance on Nakdong River Basin.

Assessment of Nakdong River Basin Management: Target Water Quality Achievement and Future Challenges

강경환,김중현,전현진,김경우,변임규 한국방재학회 2020 한국방재학회논문집 Vol.20 No.2

In 2006, the Korean Ministry of Environment established <The 1st Water Environment Management Master Plan>. The plan aimed at “Clean Water, Eco River 2015” and guided water quality protection and strengthened water management. This study evaluated the achievement of the target water quality among the 33 mid-level basins in the Nakdong River basin and assessments of the causes of non-achievement of the target water quality by mid-level basins. According to the 2015 water quality data, only 16 of the 33 mid-level basins achieved the target water quality. The low achievement of the target water quality was attributed to the failure to predict the pollutant load at the time of planning, problems with the management of tributaries, implementation of the <Four major river restoration project>, and problems with the representativeness of the water quality representative points. In addition, feasibility studies on the water quality monitoring representative point used in each mid-level basin were also performed; some mid-level basins required improvement or change of the representative points. This study also suggested further research to improve water quality, such as detailed studies of the management of pollutant load, mainstream tributaries, and water quality indicators, for the revision of the current ongoing <The 2nd Water Environment Management Master Plan>.

Assessment of Nakdong River Basin Management: Target Water Quality Achievement and Future Challenges

Kang, Kyeong Hwan,Kim, Junghyeon,Jeon, Hyeonjin,Kim, Kyoungwoo,Byun, Imgyu 한국방재학회 2020 한국방재학회논문집 Vol.20 No.2

2006년, 환경부에서는 <제1차 물환경관리 기본계획>을 수립하였다. 이 계획은 “Clean Water, Eco River 2015”를 목표로 수질을 보호하고 수자원의 관리를 강화하기 위하여 수립되었다. 본 연구는 낙동강 대권역 내 33개 중권역의 목표수질 달성 여부 및 미달성 중권역의 원인을 분석, 평가 하였다. 2015년 수질 데이터에 따르면, 낙동강 대권역 내 33개 중권역 중 16개 중권역이 계획수립 시 목표수질을 달성하였다. 이러한 낮은 목표수질 달성율은 계획 수립 당시 오염물질 부하 예측, 지류관리 문제, 4대강 사업 및 수질측정 대표지점에 대한 타당성 등의 문제점으로 인해 발생된 것으로 분석되었다. 또한 각 중권역 내 수질측정 대표지점에 대한 타당성을 조사한 결과, 일부 중권역에는 수질측정 대표지점 개선 및 변경이 필요한 것으로 분석되었다. 본 연구는 현재 진행중인 <제2차 물환경관리 기본계획>의 높은 달성율을 위한 오염 물질 부하 관리와 본류 및 지류 관리, 수질 측정 지표에 대한 연구와 같은 수질 개선을 위한 추가 연구도 제안하였다. In 2006, the Korean Ministry of Environment established <The 1st Water Environment Management Master Plan>. The plan aimed at “Clean Water, Eco River 2015” and guided water quality protection and strengthened water management. This study evaluated the achievement of the target water quality among the 33 mid-level basins in the Nakdong River basin and assessments of the causes of non-achievement of the target water quality by mid-level basins. According to the 2015 water quality data, only 16 of the 33 mid-level basins achieved the target water quality. The low achievement of the target water quality was attributed to the failure to predict the pollutant load at the time of planning, problems with the management of tributaries, implementation of the <Four major river restoration project>, and problems with the representativeness of the water quality representative points. In addition, feasibility studies on the water quality monitoring representative point used in each mid-level basin were also performed; some mid-level basins required improvement or change of the representative points. This study also suggested further research to improve water quality, such as detailed studies of the management of pollutant load, mainstream tributaries, and water quality indicators, for the revision of the current ongoing <The 2nd Water Environment Management Master Plan>.

낙동강수계 인공습지의 영양염 저류 효과

이병현(Byunghyun Lee),정인용(Inyong Jeong),김태석(Tae Suk Kim),문보라(Bora Moon),이석모(Suk Mo Lee) 한국생태공학회 2022 한국생태공학회지 Vol.9 No.1

As projects for maintenance and restoration of the river basin ecosystem are implemented, a riverine ecobelt creation project is being promoted to purchase and restore land in the Nakdong River basin. This study analyzed the effects of nutrients retention at two artificial wetlands and one pot seedling restoration area created by the Nakdong River basin's riverine ecobelt creation project. By type of retention, the amount of nutrient stored by plants was the highest, and the amount of nutrient stored by land plants was higher than that of aquatic plants. The total amount of retention was the largest in september in all study sites. As a result of evaluating the nutrients retention effect of each study site, the reduction rate of pot seedling restoration area was the highest. And the result showed that pot seedling restoration area reduces nutrients by 10.19% of nitrogen, 58.89% of phosphorus out of the total nutrients loading, through the only 5.95% area of the total basin area. Considering the Nakdong River basin's riverine ecobelt creation project in terms of the nutrients retention effect, it is more appropriate for that purpose to promote planting-type creation projects such as pot seedling restoration.

해방 후 낙동강 수해와 치산대책

강정원 부산대학교 한국민족문화연구소 2024 로컬리티 인문학 Vol.0 No.32

해방 후 한국전쟁을 거치면서 산림황폐로 인한 치산의 실패는 해마다 홍수를 비롯한 각종 재해를 초래했고, 낙동강도 예외는 아니었다. 낙동강 유역 내의 산림이 무입목지 혹은 황폐지가 되면서 유량이 증가하여 하상을 더욱 상승시키는 결과를 초래했다. 높아진 하상은 폭우를 견디지 못했고, 결국 하상보다 낮은 경지는 배수가 불량하여 장기간 침수되거나 수해의 피해가 커지는 상황이 반복되었다. 낙동강 범람이 해마다 반복되면서 당시로서는 높아진 하상을 낮출 수 없었기 때문에 하상이 더 이상 높아지지 않도록 낙동강 주변의 사방사업과 조림이 시급했다. 정부의 치산치수 정책이 큰 진전이 없는 가운데 매년 수해 피해가 늘어나자 낙동강 유역의 종합적인 조사 필요성이 제기되었다. UNDP·FAO의 낙동강 유역 조사단은 조사를 통해 낙동강 수자원의 종합적인 관리와 개발을 위해서는 댐 건설과 사방 조림사업이 필요하다고 진단했다. 특히 황폐해진 산림을 복구하기 위해 사방사업을 실시하였고, 연료림과 경제림을 조성하였다. 이 사업으로 토사유출과 산사태를 어느 정도 효과적으로 방지할 수 있었고, 목재 자원 확보로 경제적 이익도 일부 창출할 수 있었다. 그러나 기술 재정 측면에서 원조에 대한 지나친 의존과 원조가 중단되었을 경우 지속적인 관리 문제, 사방 조림사업에서 단일 수종 식재로 인한 생태계 문제, 댐 건설의 경제성 문제는 지속적으로 한국사회에 많은 논란을 일으켰다. After liberation and through the Korean War, deforestation led to repeated disasters such as floods, and the Nakdong River was no exception. As forests within the Nakdong River basin became treeless or barren, water flow increased, raising the riverbed. The elevated riverbed could not withstand heavy rains, and farmland lower than the riverbed suffered from poor drainage, leading to prolonged flooding or worsening flood damage year after year. As the Nakdong River’s flooding became an annual occurrence, and there was no way at the time to lower the elevated riverbed, afforestation and erosion control projects around the river became urgent to prevent further rises in the riverbed. With little progress in the government's policies for forest and water management, annual flood damage worsened, leading to calls for a comprehensive survey of the Nakdong River basin. The UNDP·FAO Nakdong River Basin Survey Team diagnosed that dam construction and erosion control afforestation were necessary for comprehensive water resource management and development of the Nakdong River. In particular, erosion control projects were carried out to restore the degraded forests, and fuel forests and economic forests were established. These projects effectively prevented soil erosion and landslides to some extent and generated some economic benefits through timber resource acquisition. However, ongoing reliance on foreign aid, concerns over sustainable management if aid were discontinued, ecological issues arising from the planting of single species in erosion control afforestation, and debates over the economic feasibility of dam construction continued to stir controversy within Korean society.

낙동강 수계 배출원별 유해물질 오염실태 조사

이인정 ( In Jung Lee ),이철구 ( Chul Gu Lee ),허성남 ( Seong Nam Heo ),이재관 ( Jae Gwan Lee ),김혜란 ( Hye Ran Kim ),양득석 ( Deuk Seok Yang ),김종하 ( Jong Ha Kim ),이용희 ( Yong Hee Lee ) 한국환경분석학회 2011 환경분석과 독성보건 Vol.14 No.3

There are many industrial factories in the central Nakdong river basin and have been occurred water pollution accidents by hazardous chemicals such as phenol, 1,4-dioxane and perchlorate. The object of this study is to establish the database on the hazardous chemicals for the industrial wastewater and to prevent the pollutant accident of the Nakdong river. We categorized 20 hazardous chemicals potentially discharged into the Nakdong river. The concentrations of 20 compounds were measured in surface water samples, wastewater treatment plants(WWTPs) influents/effluents and wastewater discharge facilities in the Nakdong River basin. One compound( 1,4-dioxane) was detected in surface waters and three(1,4-dioxane, perchlorate, vinyl acetate) were detected in WWTPs. Eleven compounds(beryllium, perchlorate, 1,3-butadiene, vinyl acetate, ethyl acrylate, styrene, hexachloroethane, 1,4-dioxane, diethyl phthalate, di-n-butyl phthalate, 4,4`-bisphenol A) were detected in wastewater discharge facilities. 1,4-Dioxane was most frequently observed in surface waters, WWTPs and wastewater discharge facilities.

낙동강 유역의 지속적인 이용을 위한 미래예측

김진이,이석모 한국환경과학회 2001 한국환경과학회지 Vol.10 No.4

A macroeconomic minimodel was simulated to suggest the public policy for sustainable use of Nakdong River Basin. The minimodel for the simulation shows the interrelationships between natural environment and economic activity. Topsoil, water, economic assets, and money stock are plotted for 300 years, beginning with 1996 in each simulation. The computer simulation runs suggest that the Nakdong River Basin system in the near future may strongly be influenced by the favorable availability of outside resources, while the economic assets and money stock may be declined by indigenous environmental stock depletion. The simulation run made under the constant decrease in systems purchased inputs with investment ratio of developed country and for sustainable use. The results of simulation shows the recover of natural environment and decrease of economic activity under these condition. Therefore, the economic structure of Nakdong River Basin should be transformed from the present industrial structure to the social-economic structure based on an ecological-recycling concept which depend on renewable resources rather than industrial structural which depend on outside resources.

낙동강 유역의 연안 해저지하수 유출특성에 관한 연구

김대선 ( Daesun Kim ),정한철 ( Hahn Chul Jung ) 대한원격탐사학회 2021 대한원격탐사학회지 Vol.37 No.6

Submarine groundwater discharge (SGD) in coastal areas is gaining importance as a major transport route that bring nutrients and trace metals into the ocean. This paper describes the analysis of the seasonal changes and spatiotemporal characteristics through the modeling monthly SGD for 35 years from 1986 to 2020 for the Nakdong river basin. In this study, we extracted 210 watersheds and SGD estimation points using the SRTM (Shuttle Radar Topography Mission) DEM (Digital Elevation Model). The average annual SGD of the Nakdong River basin was estimated to be 466.7 ㎡/yr from the FLDAS (Famine Early Warning Systems Network Land Data Assimilation System) recharge data of 10 km which is the highest resolution global model applicable to Korea. There was no significant time-series variation of SGD in the Nakdong river basin, but the concentrated period of SGD was expanded from summer to autumn. In addition, it was confirmed that there is a large amount of SGD regardless of the season in coastal area nearby large rivers, and the trend has slightly increased since the 1980s. The characteristics are considered to be related to the change in the major precipitation period in the study area, and spatially it is due to the high baseflow-groundwater in the vicinity of large rivers. This study is a precedent study that presents a modeling technique to explore the characteristics of SGD in Korea, and is expected to be useful as foundational information for coastal management and evaluating the impact of SGD to the ocean.

Assessment of the vulnerability of groundwater level management in Nakdong river basin

Yang, Jeong-Seok,Lee, Jae-Beom,Kim, Il-Hwan 한국수자원학회 2017 한국수자원학회논문집 Vol.50 No.12

TOPSIS (Techniques for Order Performance by Similarity to Ideal Solution)를 이용하여 낙동강 유역의 21개 시 ․ 군을 대상으로 지하수위 관리 취약성을 평가하였다. 낙동강 유역 21개 시 ․ 군을 대상으로 자연, 인문, 사회적 자료를 수집하여 10개의 지표를 선정하였다. 선정된 지표를 스케일 재조정법을 이용하여 표준화 하고, 전문가 집단의 설문을 반영하여 각 지표에 가중치를 부여하였다. 가중치 산정 설문 결과 연평균 지하수 위 지표가 0.157으로 가장 큰 가중치를 받았으며, 연평균 강수량 지표가 0.154, 연도별 지하수함양량 지표가 0.152로 얻어졌다. 가장 적은 가중치를 얻은 지표는 인구 밀도로 0.043 의 가중치를 얻었다. 최종적으로 지하수위 관리 취약성 평가 결과, 상주가 연평균 강수량, 연평균 지하수 함양 량, 연평균 지하수 이용량 지표에서 높은 순위의 취약성을 보여 낙동강 유역 21개 시 ․ 군 단위 행정구역 중 가장 취약한 것으로 결과가 나타났다. 그 뒤로 예천군, 함안군의 순으로 취약성이 높게 나타났다. 향후 한국의 5대강 유역 지하수위 관리 취약성 평가는 전국 지하수위 관리 정책 수립에 필수적이라고 판단된다. Groundwater management vulnerability was assessed using TOPSIS (Techniques for Order Performance by Similarity to Ideal Solution) for 21 administrative districts in Nakdong river basin. Ten indicators were selected for 21 administrative districts in the Nakdong river basin by collecting natural, human, and social data sets. The selected indicators were standardized using rescale method, and each indicator was weighted by considering the questionnaire of expert group. The results of the weights determination survey showed that the annual average groundwater level index was 0.157 and this is the highest value. The annual average precipitation index was 0.154 and the annual groundwater recharge index was 0.152. The lowest weighted index was 0.043 for population density. Finally, the result of assessment of groundwater management vulnerability showed that Sangju-si was the most vulnerable to groundwater management among 21 administrative districts in Nakdong river basin because the annual average precipitation, annual average groundwater recharge, and annual average groundwater use indicators were highly vulnerable. The second and the third vulnerable regions were Yecheon-gun and Haman-gun respectively. The assessment of groundwater management vulnerability for the five major river basins in Korea can be a essential basis for the establishment of groundwater management policy.