기후변화 대응 도시홍수 대책 (국회입법조사처, 2020.12)
[요 약]
우리나라의 도시는 여름철에 강우가 집중되는 기후적 특성과 함께 인구가
밀집되고 다수의 주요 시설이 설치되어 홍수에 취약한 여건을 가지고 있다.
더불어 최근에는 기후변화의 영향으로 홍수방어시설의 능력을 초과하는 이상
강우(異常降雨)의 발생이 증가하여, 도시에서의 인명 및 재산피해가 늘어나고
있다. 특히 2020년 여름의 역대 최장기간 장마와 집중호우는 우리가 예측하기
힘든 규모의 홍수가 지속적으로 발생할 수 있음을 의미하며, 향후 선제적인
홍수예방 대책과 홍수발생 시 피해를 최소화하기 위한 체계적인 대응방안의
중요성을 시사하고 있다.
이에 이 보고서에서는 국가 홍수대책 가운데 도시홍수에 대한 관리 현황
을 살펴보고, 가속화되는 기후변화에 대응하기 위한 방안을 모색하였다. 국내·
외 도시홍수 사례, 법체계 및 관련 사업 등을 조사하였으며, 현행 도시홍수의
예방 및 대응체계를 검토하여 다음과 같은 입법 및 정책 개선방안을 제시하였
다.
첫째, 다수의 부처에서 추진하는 도시홍수 관련 사업 간의 연계성을 강화
할 필요가 있다. ｢수자원의 조사·계획 및 관리에 관한 법률｣ 제20조에 따라
수립되는 ‘특정하천유역치수계획’의 대상 범위를 입법취지에 맞게 변경하고,
의무적·정기적으로 계획을 수립하며, 사업완료 후에는 사후관리를 실시하는 등
미비점을 정비하는 방안을 고려할 수 있다.
둘째, 저영향개발(LID, Low Impact Development) 기법과 같은 비구조적
대책을 적극 활용하여 도시의 왜곡된 물순환 체계를 개선해야 한다. 도시지역
에서 일정 규모 이상의 개발사업을 시행할 경우에는 녹지 조성을 통해 빗물의
침투를 활성화하고, 물 재이용시설을 설치하며, 도시하천을 자연형 하천으로
정비하는 등 저영향개발 기법을 고려하도록 규정할 필요가 있다.
셋째, 기후변화에 적절히 대응하기 위한 도시홍수 방어능력을 구축해야
한다. 도시홍수 예방을 위한 다양한 방재시설의 규모, 중요도와 함께 기후 및
지형요건 등을 종합적으로 고려하여 설계기준을 수립·운영하고, 설계기준의 적
정성을 정기적으로 검토할 필요가 있다. 더불어 기존의 대하천 중심의 홍수관
리에서 벗어나 홍수피해가 주로 발생하는 중·소규모 하천에 대한 정비를 확충
해야 한다.
넷째, 홍수발생 시 피해를 최소화하기 위한 도시홍수 대응 시스템을 체계
적으로 구축할 필요가 있다. 수위·유량 관측소를 확충하여 도시하천 유역 전
반에 대한 실시간 예·경보 체계의 정확도를 향상시켜야 한다. 침수흔적도 및
홍수위험지도 등 홍수범람위험도를 체계적으로 구축하고, 이를 기반으로 홍수
위험 지역에 위치한 다중이용시설의 관리를 강화해야 한다. 더불어 단시간에
발생하는 도시홍수의 피해를 최소화하기 위한 신속한 피난체계를 구축하고,
교육, 훈련 및 홍보를 지속적으로 실시할 필요가 있다.
[목 차]
Ⅰ. 서론 / 1
1. 연구의 배경 및 목적 ··············································································· 1
2. 연구의 범위 및 방법 ··············································································· 3
가. 연구의 범위 ························································································ 3
나. 연구의 방법 ························································································ 4
Ⅱ. 도시홍수 관련 현황 / 5
1. 개요 ········································································································· 5
가. 도시홍수의 원인 ················································································· 5
나. 도시홍수 발생 현황 ··········································································· 6
2. 법령 현황 ······························································································· 11
가. 부처별 소관 업무 및 법령 현황 ······················································ 11
나. 입법 연혁 ························································································· 23
Ⅲ. 도시홍수 예방대책의 문제점 / 28
1. 부처별 대책 간의 연계성 부족 ····························································· 28
2. 도시지역 개발로 인한 불투수면 증가 ·················································· 30
3. 도시홍수 예방시설의 효용성 부족 ························································ 32
4. 도시홍수 대응 시스템 미비 ·································································· 34
Ⅳ. 해외 사례 / 37
1. 중국 ········································································································ 37
가. 도시홍수 사례 ·················································································· 37
나. 도시홍수 예방대책 ··········································································· 39
2. 일본 ········································································································ 41
가. 도시홍수 사례 ·················································································· 41
나. 도시홍수 예방대책 ··········································································· 43
3. 유럽 ········································································································ 45
가. 도시홍수 사례 ·················································································· 45
나. 도시홍수 예방대책 ··········································································· 46
4. 시사점 ···································································································· 48
Ⅴ. 입법 및 정책 개선 방안 / 49
1. 특정하천유역치수계획의 정비 ······························································· 49
2. 도시물순환 체계 개선 ··········································································· 51
3. 도시홍수 방어능력 구축 ········································································ 53
4. 도시홍수 대응 시스템 선진화 ······························································· 55
Ⅵ. 결론 / 57
참고문헌 / 61
부록 / 63
[부록 1] 특정도시하천유역 침수피해방지대책법(안) ······························· 63
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