中国的灾害治理和“颠倒意象” ― 以汶川地震为例

金暎根 ( Kim Younggeun ),蔡捷 ( Cai Jie ) 고려대학교 중국학연구소 2021 中國學論叢 Vol.- No.71

The purpose of this paper is to examine the current status and challenges of disaster governance by examining the case of disaster management in China. In particular, I would like to analyze to what extent the field-led “the reversed image” theory can be applied away from the traditional state-led governance. Furthermore, it aims to explore the possibility of international cooperation and to present a platform (model) in connection with lessons and tasks learned through case analysis. The structure of this paper is as follows. First, in the introduction (I), the disaster history in China is outlined, and a prior study and an analysis framework called “disaster governance of reverse image” is presented. Chapter II provides an overview of China’s disaster history by period. Chapter III examines China’s disaster management and theory (model). Chapter IV provides case analysis on China’s Wenchuan earthquake and crisis management system. Finally, Chapter V conclusively proposes Chinese-style disaster management and human security. In summary, unlike Japan, the traditional disaster governance led by the government (state) is still mainly operating in China’s “crisis management”. However, in recent years, there is an opportunity to shift to disaster governance based on the reversed image, and new actors such as local governments and NGOs/NPOs are also striking. In particular, the “social participation type governance” that has recently emerged when categorizing China’s disaster governance process and mechanism is a representative administrative system of the reverse image. However, the limitations of the preceding studies, which are still recognized as a system in which the traditional disaster governance under the government’s initiative operates, are also clear. As a result, international cooperation between Korea, China and Japan on the disaster agenda is also possible. It is evaluated as being prepared.

재난관리에 있어 로컬거버넌스 구축방안 연구 -허베이스피리트호 사고사례를 중심으로-

김계원 ( Kye Won Kim ),정웅 ( Woong Chung ) 대한정치학회 2015 大韓政治學會報 Vol.23 No.4

본 논문은 지역에서 발생하는 재난시의 효율적인 재난관리를 위한 로컬거버넌스 체계 구축방안을 제시하는데 목적이 있다. 이를 위해 허베이스피리트호 사고에서 나타난 시사점들을 토대로 지방자치단체가 주도 하는 재난관리 로컬거버넌스 체계 구축방안을 제시하여 보았다. 그 결과 첫째, 기본구조 면에서 재난관리 로컬거버넌스는 지역수준에서 지방자치단 체를 중심으로 지역에 산재한 공공네트워크와 민간네트워크, 그리고 재난시설주체가 협력적 네트워크를 기반으로 구축된 거버넌스 체계이다. 둘째, 재난관리 로컬 네트워 크에 참여하는 주체들의 역할 면에서 지방자치단체를 중심으로 한 공공네트워크는 전단계에 참여하여 법적.제도적으로 공식화된 역할을 수행하지만 특히, 대응 및 복구단계에서 주도적 역할을 수행한다. 이에 비해 민간네트워크는 대응 및 복구단계에서도 중요한 역할을 수행하지만 특히, 완화 및 대비단계에서 효율적인 기여를 할 수 있다. 셋째, 민간네트워크의 활용 면에서 특히 완화 및 대비단계에서의 민간네트워크 활용성 을 강화하여야 한다. 넷째, 재난관리 로컬거버넌스 체계에서 지방자치단체는 재난관리 에 대한 인식전환을 토대로 법규체계 정비, 재난유형에 따른 참여절차 및 유형별 매뉴 얼체계 구축, 예산 및 재정기반체계 구축, 컨트롤 타워의 체계화, 교육훈련체계의 구축 등에서 이니셔티브를 쥐고 주도적 역할을 수행해야 한다. 끝으로 거버넌스 체계가 지 니는 근본적인 한계를 고려해야 한다. This paper aims to present a construction plan of local-governance for efficient management of the national disaster. To this end, we will analyze a volunteers and private resources operational processes of Hebei-Spirit accident occurred in 2007. Next, based on the results of the analysis suggest ways to improve the future. In this paper, we analyze the Hebei Spirit incident as a case of a disaster management governance. Local-Governance System for the Disaster Management should consider the following points: First, Local-Governance System for the Disaster Management consists of the area of local government, public networks, private networks, and disaster facility subject. This is a governance system built on a cooperative network became the center local governments. Second, The public network center of local government should play a role formalized by law in all phases of disaster management. In particular, it should perform a leading role in the response and recovery phase. In contrast, private network performs a useful role in all stages of disaster management. In particular, they can be an effective contribution in the mitigation and preparation stage. Third, In particular, in mitigation and preparation stage it should enhance the private network utilization. Fourth, in the construction phase of the local governance for disaster management, Local government should establish to priority regulations, participation procedures in accordance with the type of disaster, disaster types in accordance with the manual system, budget system, control tower, a training and education system etc. Finally, it consider the fundamental limitations with the governance system. For the successful settlement of Local-Governance System should be instituted to aggressive efforts of local governments.

Federal Governance and Disaster Management in Canada: A Critical Analysis of Federal and Provincial Acts, Policies and Disaster Financing

( Sanjay Sharma ) 인천대학교 사회과학연구원 2015 사회과학연구 Vol.7 No.-

Federalism is a non-hierarchical, non-centralized, model of governance. It accommodates people belonging to different regions, religions, races and culture. Disaster management is articulation and planned utilization of resources to deal with natural or manmade emergencies. At the national level disaster management requires concerted effort and coordinated action among different levels of government. It is not the sole responsibility of any one level of government, but of all. As disaster management has inter-regional and transnational ramifications, there is an urgent need for federal management and sharing of responsibilities. It is in this context that federal system of governance assumes critical resilience in addressing to the question of disaster management. Canada is the second largest country of the world. It has faced many natural as well as manmade disasters. By virtue of being a federal state the disaster management has to be located in between federal and provincial governments. Quantitative and qualitative research tools are applied in the paper to analyze federal governance of disaster in Canada. Qualitatively, federal and provincial policies, acts, program have been thoroughly analyzed. On the other hand, quantitative tools are applied to analyze disaster financing in Canada. Besides, a deconstructivist approach has been applied to explore disaster management from an unexplored perspective of federalism.

일본의 진재학과 재해부흥의 역(逆)이미지 : 한국형 위기관리 모델의 시론

김영근 ( Young Geun Kim ) 한림대학교 일본학연구소 2014 翰林日本學 Vol.0 No.24

本論文の目的は、日本の災害硏究(震災學)に關する理解と關心を深め、韓國における災害硏究への學問的なアプロ-チの基盤を構築するために、大災害後日本災害ガバナンスの變容を分析する理論的な樺組みの提供である。大震災(大災害)の發生後、日本では自然災害のみならず、國民の思想(人文學的な災害)や社會構造(社會的な災害)、ひいては經濟構造や經濟政策にも大きな變化が迫られた。これらを硏究する震災(災害)學も、被災地や政府、NGOなどから多角的な視点で考えるべきであり、しかも、地震被害や津波被害、原發事故などによる放射能被害から複合的な連鎖危機を視野にいれて硏究せざるを得ない時代になった。まさに、震災學は議題(アジェンダ)や分析レベルの多樣化が進んでいる。未曾有(想定外)の大災害を招いた東日本大震災は、「複合連鎖危機」とも呼ばれる融合的リスクであった。日本の問題だけにとどまらず、國際的な關心を集め、「災害」をガバナンスの重要性が高まっている。しかしながら、國際制度と言った國際システムレベルの視点では災害からの復구·復興や再生のプロセスを十分明らかにすることができず、地域の利益集團、議會(日本國會)、政府を巡る國內政治プロセスに着目する必要がある。これは、政府(國家)が主導する災害ガバナンス、つまり國家によって選擇する災害復興制度が異なることに注目する傳統的な災害ガバナンスイメ-ジから脫却し、一國の災害復興政策は、國內被災地の事情と政治を反映したものであるとの考えを持つ「逆イメ-ジ」に注目する視点である。その際、災害復興における社會文化·政治經濟的構造の變化に注目しつつ、復興制度(災後體制vs. 災間體制vs. 災前體制)の選擇モデル構築も試みる。結論では、日本の震災學と災害復興の逆イメ-ジ理論を韓國社會に紹介し、複合連鎖危機リスクに關連して、大災害からの復興への視座(韓國型危機管理モデルの試論)を提示する。 The goal of this study is to suggest a theory for disaster governance, which has become more significant than ever after the 3.11 Great East Japan Earthquake. Especially, I attempt to analysis the political change and economic structure of Japan and Korea, the way in which they deal with environmental changes. First of all, the analysing level(variables) on disaster studies has become diversified in relation to humane, local, community, trans-local, global, and transnational security. The issue of earthquake not only affects the very region it happens(domestic process) but it is rather a national(government behavior) or transnational one. Therefore, the dealing units for disaster now include a lot of non-governmental organizations and even individuals unlike the past. That is why disaster studies covers not only the aftermath of disaster but also its very impact on human, social structure as well as the economic structure and policy. The reversed image on recovery process in this article means the new perspective paying attention to the process of politic(endogenous institutional change: change in the preferences and the power of domestic/community actors), which influences disaster governance. Disaster governance associated with the different combinations of the socioeconomic institutions in local level and government policies, not affected by international economic conditions I argue that Japan`s disaster governance no longer only rely on governmental policies. In studying Japan`s transformation of risk governance or politic-economy system, the ideal of reversed image(theory) will be a meaningful attempt to link the theory to its practical use(case study).

재난관리조직의 실태분석과 발전방안

권오한,남상화,이춘하 한국화재소방학회 2001 한국화재소방학회논문지 Vol.15 No.1

재난관리업무 자체가 매우 복잡하고 각 부처간에 서로 연계되는 분야가 많아 여러 가지 어려움이 많지만 행정 조직상으로 볼 때 재난관리업무가 분산되어 있으면서도 총괄 조정하는 기능이 미흡하고, 재난관리 담당인력이 부족 할 뿐만 아니라 전문성도 결여되어 있고, 대개는 이들 부서들이 업무가 과중하여 기피하는 부서 정도로 인식되고 있는 실정이다. 특히, 우리나라의 경우 재난을 양분화하여 인위재난 및 자연재해를 분리하여 그 소관부서 및 법체계를 달리하고 있어 비효율적 재난관리체제를 취하고 있어 현재 미국에서의 재난이론의 개념 즉 "재난은 그 유형에 관계없이 계획, 수습 및 복구의 양태는 동일하다"는 원칙에 반하는 것이다. 그것은 지방자치제가 시행되면서 아직은 중앙과 지방의 역할이 불분명하거나 분명하더라도 서로 그 역할을 해 내기를 바라는 점은 철저한 계획수립과 점검으로 해결해 나가야 할 사항이다. Ⅰ.Introduction. A government goal at the present is established to make a welfare nation and to keep people's safe living, but it is criticized that when a large-scale disaster happens, the authority concerned could not deal with it, causing many people injured and material damage. Moreover, in these days, cities have many risk factors. Extremely large and intelligent building, industrial facilities and underground equipment have many risk themselevs along with scientific progress. To cope with disaster effectively, government must have efficient organization, skillful personnel, tool, facilities and so on. To reduce the damages, what's the most effective government organization? Ⅱ. Government organization for managing disaster In a few decades, a large-sized accidents broke out in Korea, for example, collapse of Sampoong deprtment store, break of Sungsoo bridge, explosion of Daegu city gas, gas explosion accident at Ahyon-dong etc. But government has not any adequate response organi zation. Especially, after collapse of Sampoong department store broke out, Disaster Management Act is enacted to solve the problem. According to Disaster management Act, disaster is limited in manmaid disaster. Therefore, in this thesis, disaster management is inspected theoretically, organization of disaster management for pattern of disaster, and role, duty of government organization, emergency relief organization system and actual conditions art analyzed. There are some problems. There art trials and errors. The government has changed the disaster management. But zation by the disaster management law. The organization consists of central and local government. But both of government do not work together harmoniously. In thesis, I could like to introduce the advanced nations disaster management organization, and study our central, local government organization. Ⅲ. conclusion Change and development of the government disaster managementorganization is the goal of this theses. We have to increase public service in response and manage disaster. Protecting civilian's life from the disaster is very important responsibility of government. There would be better way of government disaster management organization.

지방자치단체의 재난관리기금 조례 검토

유영미(Yoo Young-mi) 사회복지법제학회 2018 사회복지법제연구 Vol.9 No.2

전례에 없던 재난이 국지적으로 발생하자 중앙정부의 지원과 대책을 토대로 지방자치단체의 신속한 초기 대응이 중요하다는 점이 인식되었고 무엇보다 재난관리체계 확립을 위해서는 지방자치단체 차원의 방안 모색이 필요하게 되었다. 이처럼 재난관리에서 지방자치단체의 역할이 중요하다고 인식함에 따라 관련 법의 정비와 함께 그 효력이 충분히 발휘될 수 있도록 지역사회에 기반한 자치법규의 필요성이 대두되었다. 실제로 재난관련 지방자치단체의 참여 및 책임에 대한 조례가 다수 제정되었고 재난에 대응하는 조례의 역할에 주목하게 되었다. 특히 재산피해액 및 복구비의 증가 등의 이슈가 등장함에 따라 재난관련 예산 및 기금 필요성에 대한 논의가 증가하고 있다. 따라서 본 연구는 지방자치단체의 재난관리 중에서도 17개 지방자치단체에서 제정한 재난관리기금 조례의 내용을 분석하여 향후 재난관리기금 조례의 실효성 확보와 아울러 재난관리가 지역사회 중심으로 발전하고 확립되는데 기여함을 목적으로 한다. 본 연구는 각 지방자치단체의 재난관리기금 조례를 목적 및 정의, 조성 및 용도, 전달체계, 기금 운용계획 및 결산과 관리, 임대주택 이주지원 및 임차비원 융자로 구분하여 조문의 내용을 분석하였다. 분석결과 일부 지방자치단체는 재난관리기금의 정의(용어), 기금운용심의위원회 중 특히 심의(제척사유)에 대해 전혀 제시하고 있지 않으며 운용계획과 결산에 관련된 정책에 대해서는 구체화하고 있지 않은 경우도 있다. 또한 본 연구 결과 거의 모든 재난관리기금조례의 내용이 유사하며 구체성이 결여되어 있고 특히 지방자치단체의 특성을 반영되거나 혹은 특성을 반영한 정책 및 제도를 규정하고 있는 조례의 내용은 빈약한 것으로 나타났다. 이 같은 결과를 바탕으로 지역사회에 기반한 재난관리기금 조례가 책무를 다할 수 있도록 하기 위한 개선방안을 제시하면 다음과 같다. 첫째, 지방자치단체의 특성을 반영한 조례로서 자리 잡을 수 있도록 해야 한다. 둘째, 지방자치단체의 책임성 및 대상자들의 권리 향상을 도모하기 위해 노력해야 한다. 셋째, 재난 취약계층 관련한 이슈에도 관심을 두어야 한다. It is recognized that the rapid response of local governments is important based on the support and measures of the central government when the unprecedented disasters occur mainly locally. In order to establish a disaster management system, In recognition of the importance of the role of local governments in disaster management, the necessity of self - governing laws based on local community has emerged so that the relevant laws can be revitalized and their effects can be fully exercised. In fact, a number of ordinances have been enacted for the participation and responsibility of local governments in disasters, and the role of the ordinance in response to disaster has been noted. Recently, disputes related to the disaster related budget and the need for funds have been increasing as issues such as property damage due to recent disasters and an increase in restoration costs have appeared. Therefore, this study analyzes the contents of the disaster management fund ordinance established by 17 local governments among the local governments disaster management, and contributes to ensuring the effectiveness of the disaster management fund ordinance and developing and establishing disaster management centered on the community The purpose is to. We analyze the content of the disaster management fund by dividing the disaster management fund ordinance of each municipality into purpose, definition, creation and use, delivery system, fund management plan and settlement and management, rental housing support and lending loan source loan. As a result, some municipalities do not provide any definition of the disaster management fund, especially the deliberation of the fund management review committee, and do not specify the policy related to the operation plan and settlement. There is also. In addition, the results of this study show that the contents of almost all disaster management fund ordinances are similar and lack specificity. In particular, the contents of the ordinances which prescribe policies and systems that reflect characteristics of local autonomous bodies or reflect characteristics are poor. Based on these results, suggestions for improving the disaster management fund ordinance based on the community are as follows. First, it should be set as a statute that reflects the characteristics of local governments. Second, efforts should be made to improve the responsibility of local governments and their rights. Third, we need to pay attention to issues related to disaster vulnerability.

재난대응과정에서 거버넌스 작동에 관한 연구: 한국과 중국의 비교를 중심으로

이장원 ( Jang Won Lee ),김학실 ( Hak Sil Kim ) 현대중국학회 2015 現代中國硏究 Vol.16 No.2

본 논문은 2007년 12월 한국의 태안 앞바다에서 발생한 허베이스피리 트호의 원유유출사고와 2008년 5월 발생한 중국의 쓰촨성 원촨대지진을 사례로, 재난발생 후 긴급대응과 복구과정에서의 참여자와 그들의 주요 역할을 협력적 거버넌스 차원에서 살펴보았다. 양 국가의 재난대응과정에서 정부와 사회의 역할을 비교하는 것은 비교정치학적 측면에서 국가별 거버넌스 특성 분석과 시사점 도출에 의미가 있기 때문이다. 한국과 중국의 대형재난 사례를 통해 본 재난 대응방식은 양국 모두 국가 주도의 거버넌스로서 시민사회의 참여를 통한 대등한 관계에서 이루어지는 협력적 거버넌스라고 보기는 어렵다. 그러나 허베이스피리트호 사례는 재난복구과정에서 이루어진 민간사회 차원의 개입과 지역사회주민의 연계 방식, 협의회 구성은 향후 재난 발생시 협력적 거버넌스가 작동할 수 있는 중요한 고리를 제공했다는 점에서 의의가 있다. 또한 중국 쓰촨성 대지진 사례는 중앙-지방정부간 유기적 협조체제 발휘, 법규제정을 통해 민간의 참여를 제도화하고, 국가적인 종합재난대응관리체계를 확립했다는 측면에서 긍정적인 평가를 받는다. 향후 협력적 거버넌스를 통해 지역문제를 지역사회주민의 주도하에 해결하기 위해서는 다음과 같은 방안을 고려할 필요가 있다. 첫째, 재난 발생시 지역주민의 피해가 상당하여 이 과정에 지역경제 악화, 지역공동체 해체 등 다양한 문제를 양산하게 된다. 지역문제인식과 문제제기, 해결방안 등 대형 재난이후 해결해야 할 다양한 문제가발생했음에도 불구하고 피해보상과 경제적 대립의 관계로만 인식되어 지역주민의 역할이 소극적이었다. 대형 재난으로 기존의 경제적 기반을 상실한 지역 주민들에게 개인과 지역문제를 해결할 수 있는 또 다른 기회를 제공할 수 있도록 지역주민들의 참여가 보장되어야 한다. 둘째, 재난 발생후 지역주민들이 지역문제를 해결하기 위한 제도로써 사회적 경제 영역을 고려해 볼 수 있다는 것이다. 지역문제 해결을 지역주민이 직접 추진하는 작동기제인 사회적 기업, 협동조합, 마을기업 등은 재난 발생 후 해당 지역주민이 문제를 인식하고 해결할 수 있다는 점에서 협력적 거버넌스를 추진할 수 있는 중요한 당사자조직이 될 수 있다. 때문에 사회적 경제 영역을 통해 피해주민과 지역사회가 공동으로 지역위기를 극복할 수 있도록 사회적 경제 영역의 활동을 적극 지원할 필요가 있다. This study is focused on the participants and their main roles in collaborative governance during national disaster response process based on the national disaster of Hebei Spirit Vessel oil leakage in South Korea (2007) and severe earthquake in China (2008). Comparing the national disaster response process of government and the society’s roles between two countries has its significance in a comparative political way of governance characteristic analysis and drawing implication of each country. The cases of the severe national disasters response process from the two countries are both governance of state-led which is difficult to look at as collaborative governance that takes place in an equal relationship with the participation of civil society. However, in the manner of a disaster recovery process of the Hebei Spirit case, aspect of civil society involvement and community association residents made, the council configuration is significant that it provided valuable relationship that can operate in the future disaster collaborative governance. In addition, in the severe earthquake in China case, practicing the central-local government cooperation, institutionalizing the participation of the private sector through legislation, and that establishing a national comprehensive disaster response management system receives a positive evaluation. To solve the problem, under the leadership of local community members through collaborative governance in the future, it is necessary to consider the following measures. First, the victim of the disaster area residents is very enormous that can create variety of problems, such as local economic deterioration, community disorganization in the process. Although there were recognizing, raising, and solving the local issues after the national disaster, the role of local people were reluctant because it was only recognized as damages and economic conflict. Local residents should be involved to ensure that local people have lost their traditional economic base with a severe disaster that provides another opportunity to resolve personal and community problems. Second, after the disaster, the local people can consider the social and economic area as a system to solve local issues. Troubleshooting the local issues by the local residents directly promoting working mechanism based on social enterprises, cooperatives, village enterprises, etc. can be the major party organizations that promote collaborative governance in its ability to identify and solve problems after a disaster. Therefore, through the areas of social economy, damaged local people and social community should be supported actively to overcome the regional crisis together.

김정은 시대 북한 재해 거버넌스 발전에 관한 연구 :재해 관련 법을 중심으로

허정필,김에스라 한국보훈학회 2023 한국보훈논총 Vol.22 No.2

Since Kim Jong-un came to power, North Korea has experienced several large-scale disasters. In the process, North Korea established disaster governance for domestic governance, self-reliance, and system development. First, the 「Disaster Prevention, Rescue and Recovery Act (2014)」 was enacted. Since Kim Jong-un came to power, typhoon damage and building collapse accidents have occurred. After the accident, North Korea enacted the Disaster Prevention, Rescue, and Recovery Act (2014) to protect people from disaster damage and respond promptly, emphasizing the people-first principle emphasizing people-oriented, people-respecting, and people-love. Disaster Governance was established. Second, it is to strengthen resilience for self-reliance in the midst of internal and external crises that North Korea has been facing since 2019. After the no-deal in Hanoi talks between North Korea and the United States in February 2019, North Korea showed a state of self-reliance by cutting itself off from the outside world. North Korea has a characteristic of overcoming and preventing disaster damage on its own without external help. Third, disaster governance has developed from people's safety prevention to safety guarantee. After Kim Jong-un came to power, North Korea established disaster governance to prevent people's safety through the process of unifying and unifying various disaster-related systems.

효율적 재난대응을 위한 지방정부 역할 개선방안- 미국, 일본과의 비교를 중심으로 -

최호택,류상일 한국콘텐츠학회 2006 한국콘텐츠학회논문지 Vol.6 No.12

In this study, in order to grope for local governments' roles for effective countermeasures for disasters, the researcher did comparative research on such roles of local governments of the USA and Japan. In case of the USA and Japan, their local governments take the 1st responsibility for quick countermeasures for disasters and cope with disasters in cooperation with central government and NGO, etc. In conclusion, in order to make Korea's system to cope with disasters more effective, first it is necessary to readjust roles of central government and local governments. In other words, in case of the USA and Japan, law provides that initial responsibility for coping with disasters lies in local governments. Accordingly, when disaster happens, initial countermeasures are quickly made by local governments. It is also possible for local governments to secure organizations, tools and manpower in their own ways. Therefore, in case of Korea, it is also urgently required to divide roles for disaster management between central government and local governments. Second, it is necessary to establish local disaster management system per type that is proper for regional characteristics and situations. Third, it is necessary to form organic networks between civic groups, local private enterprises, and central government. Fourth, informatization of local disaster management system must be prepared quickly. Finally, in order to do local governments' activities to cope with sites smoothly, specialization of manpower is required. Accordingly, it is necessary to train professional manpower of local governments for disaster management and to develop programs to improve specialty. 본 연구는 효율적 재난대응을 위한 지방정부의 역할을 모색해 보고자, 미국과 일본의 지방정부 재난대응체계와의 비교연구를 하였다. 미국과 일본의 경우에는 신속한 재난대응을 위하여 지방정부가 재난대응에 1차적 책임을 지고, 중앙정부와 NGO 등과의 협력하에 재난에 대응하고 있었다. 결론적으로 한국의 재난대응체계가 효율적으로 변모하기 위해서는 첫째, 중앙정부와 지방정부의 역할 재조정이 필요하다. 즉, 미국과 일본의 경우 재난 대응의 일차적인 책임이 지방정부에 있다는 것을 법률적으로 규정하고 있다. 때문에 재난 발생 시 지방정부 차원에서 신속히 대처하게 되고, 또한 지방정부 나름대로의 조직과 기구 및 인력을 확보할 수 있게 되는 것이다. 따라서 한국의 지방정부에서 발생된 재난대응을 효율적으로 하기위해서는 첫째, 중앙정부와 지방정부간의 재난관리에 관한 역할 분담이 시급히 이루어져야 할 것이다. 둘째, 지역적 특성과 상황에 맞는 유형별 지방 재난관리체계 구축이 요구된다. 셋째, 시민단체, 지역 사기업, 중앙정부와의 유기적인 네트워크 형성이 이루어져야 한다. 넷째, 지방 재난관리 정보화가 조속히 갖추어져야 할 것이다. 마지막으로, 지방정부의 현장 중심의 대응활동을 원활히 펼치기 위해서는 인력의 전문성이 요구된다. 따라서 지방정부의 재난관리 전문 인력을 양성하고 전문성을 키우기 위한 프로그램 등을 개발하여야 할 것이다.

청말(淸末) 이래 ‘의진(義賑)’의 전개와 20세기 ‘재해 거버넌스’의 변용

朴敬石 ( Park Kyungsuk ) 중국사학회 2021 中國史硏究 Vol.- No.135

This paper looked at the development of “Yizhen”(Charity Disaster Relief, 義賑) over the first half of the 20th century since the Late Qing. In particular, attention was paid to the collaborations between “Guanzhen(Government Disaster Relief, 官賑)” and “Yizhen”. This was intended to reveal the characteristic aspects of disaster relief in the 20th century from the perspective of ‘Disaster Governance.’ “The Great Drought Disaster in North China” of the Late Qing clearly revealed the limitations of Guanzhen. On the other hand, new attempts and experiences related to disaster relief were accumulating in the charity sector, which is so-called Yizhen. Since then, the Yizhen activity continued, and there was a distinct trend by the Late Qing Dynasty and Early Republic of China. Of course, even before Yizhen, there were small-scale and peripheral private relief activities covered in the magnetic field of Guanzhen, but Yizhen is clearly distinguished from this historically. Yizhen overcame regional and hierarchical closeness due to social and economic changes in modern China. It expanded its scope of activity throughout the country, secured ‘autonomy’ to the government as a social force, and it improved the rationality of the operating system. This emergence of private Yizhen is significant in that it has led to a change in the disaster relief system itself, that is, a new disaster governance, by supplementing the decline of Guanzhen in Late Qing. In the summer of 1931, an unprecedented major flood occurred in the Yangtze River basin, and Chinese society's response to this disaster was also new and effective unprecedented. This was possible because the collaboration between Guanzhen and Yizhen developed very efficiently at the national level. That means that Yizhen which was started in Late Qing, maintained vitality until 1931, and the representative organization was “Shanghai's Association for Planning Rapid Relief for Those Provinces Stricken by Flood(上海籌募各省水災急賑會).” This Association efficiently raised donations from a wide range of classes and carried out relief activities nationwide across the 16 Provinces and 3 Cites. In addition, it has the basic characteristics of Yizhen, which excludes Guanzhen and collects it from the private sector and processes it directly by the private sector, and applies efficient and transparent procedures and regulations. In addition, “Collaboration Relief of Government and Charity(官義合賑)” was typically conducted at the scene of the disaster. A close cooperation relationship, that is, harmonious ‘disaster governance’, was formed between the central and local governments and nongovernmental Yizhen. From the summer of 1942 to the spring of 1943, drought damage was severe in Henan. The victims were neglected because it was a ‘war situation’, and the tragedy reached its peak. Accordingly, there was active criticism from domestic and foreign media, and domestic and foreign public opinion sympathizing with the victims was a great burden on the national government. The National Government urgently took relief measures, but the effect was very limited. As Guanzhen was sluggish again this time, Yizhen supplemented it. At that time, the Yizhen organization representing Shanghai was the “Shanghai Association for Rapid Relief of North China(上海各界華北急賑會).” Shanghai was under the “Wang Jingwei Regime(汪精衛政權)”, but the main figures that made up this Association were those who had led the Yizhen in the Nanjing National Government Period. “Chongqing National Government”, “Wang Jingwei Regime”, Japanese Army, Shanghai's national Yizhen, and Xian(西安) and Zhengzhou(鄭州)'s Yizhen intertwined with each other appeared. After the establishment of the People's Republic of China, “Catastrophic Flood(特大洪水)” occurred in Yangtze River basin in 1954. People's Government responded actively and had a relatively effective effect, thanks to preemptive repair projects and the rapid establishment of a relief system in the early days of its foundation. The fact that the People's Government was so active is deeply related to its experience of emphasizing disaster relief during the revolution. In addition, disaster relief was a ‘political project’ to strengthen political support for the New Regime. Through the practice of “politicalized” disaster relief, the ‘governance’ structure was ‘nationalized’ as the state's control penetrated widely and deeply into the underlying society, which led to a change in the subject of disaster relief. Now, the social relief system independent of state power has disappeared. Disaster governance, which has been composed of a collaboration between Yizhen and Guanzhen since the Late Qing, has been transformed into “Yizhenless governance”.