 [최형지도의원발제문] 수리권과 물 분쟁 해소방안
"2004춘천물포럼 발제문
- 수리권과 물 분쟁 해소방안(노재화, 건교부 수자원정책과장)에 대한 토론문
최형지
강원도의회 의원, 환경운동연합 물 위원회 위원, 댐반대국민행동 집행위원
www.yanggu.or.kr
016-770-4882
우리는 흔히 낭비가 심한 행위를 ‘물 쓰듯 한다.’라고 한다.
이는 예전부터 우리나라는 물이 아주 흔한 공공재였음을 나타내주는 표현인 것이다.
급격한 도시화는 물 사용의 지역적 편중을 가져와 일부 부족함을 경험하고, 급격한 산업화는 물의 오염으로 질적인 문제가 초래되고 있다.
‘양적으로 풍부하고, 질적으로 건전한 수자원’은 국가의 정책목표(국토종합계획)이자 누구나의 바램 일 것이다. 그러나 안타깝게도 물은 무한한 자원이 아닌 유한한 공공재인 것이다.
물을 둘러싼 권리의 주장과 이를 둘러싸고 발생하는 분쟁은 ‘민주적인 사고와 행동의 자유’가 급격히 신장된 최근 우리나라의 사회적 분위기에 편승하여 점점 더 첨예하게 대립되고 있으나 안타깝게도 우리나라는 물에 대한 권리의 규정과 분쟁을 해소하는 법과 제도가 미흡한 실정이다.
오늘 발제를 해주신 노재화 과장님의 ‘수리권과 물 분쟁 해소방안’은 수리권의 법적, 제도적인 개략적인 고찰과 학계에서 논의되고 있는 수리권에 대한 일반적인 논의 방향을 잘 나타내주었다고 본다.
평소 환경, 그리고 댐 건설과 관련된 이슈에 적극적인 관심으로 행동하는 시민운동가적 입장에서, 지방의원의 지위에서 느끼고 생각하는 수자원의 정책적인 면에 대해 우리나라 수자원정책의 비판과 댐 건설로 인한 분쟁 해소방안을 언급하는 것으로 토론에 갈음 하고자 한다.
● 수자원장기종합계획
수자원장기종합계획은 하천법에 근거하여 10년 단위로 계획하는 우리나라 수자원정책의 최상위계획이다.
정부가 작성한 수자원장기종합계획은 물의 과부족 현황을 파악 할 뿐 아니라, 물의 공급과 수요를 예측하는, 물의 양적인 문제와 물의 질적인 문제까지도 언급한, 하위 계획의 지표가 되는 매우 중요한 법상계획인 것이다.
2001년도 수자원장기종합계획의 특징은 과거 공급위주의 수자원 계획에서 수요관리가 가미된 수자원 계획을 입안 했다는 것이다.
그러나 엉터리로 작성된 수자원장기종합계획은 국론의 분열과 막대한 사회적 에너지를 낭비 시키고 있다.
수자원장기종합계획이 엉터리로 작성되었다는 근거는 무수히 많으나 몇 가지만 예로 들면, 1996년도에 작성된 계획에서는 수도권에 약 3억톤의 물이 2001년에 부족 할 것으로 예측 했으나 2001년도에 작성한 계획에서는 수도권에 현재 물이 약 3억톤 남는다고 하였다. 결과적으로 +,- 6억톤이 틀린 것이다.
농업용수의 수요에 있어서 벼 담수직파 면적이 정체에서 감소되고 있는데도 벼 담수직파 면적이 급격히 증가한다며 약 10억톤 이상의 천문학적인 물 부족을 잘 못 예측했다.
이밖에 댐 용수에 있어서 소양강댐 및 화천댐의 댐 용수를 잘 못 계산했다.
영월 동강댐 논란도 ‘2001년이 되면 수도권에 약 3억톤의 물이 부족해서 시급히 동강에 약 3억톤 규모의 댐을 건설해야 한다.’며 수자원 장기종합계획을 인용했고, 2001년 전국 12개소의 댐 계획을 발표 할 때도 2001년도 작성된 수자원장기종합계획을 인용 하였다.
이와 같이 수자원장기종합계획은 우리나라 수자원의 최상위계획으로 하위계획의 근거가 되고 있으나 잘못된 상위계획은 필연적으로 하위 계획의 연속적인 잘못을 초래하고 있다.
이러한 매우 중요한 수자원의 국가 최상위계획인 수자원장기종합계획의 오류 원인은, 수문 자료의 부족(하천 상류 지점별 수문자료의 부족으로 하류 총량의 역 배분), 비민주적 의사결정(참여 희망 전문가 배제), 전문가 집단의 형식적 자문, 기술 관료의 도덕적 해이와 급진적인 변화에 대한 부작용 우려(오류의 점진적인 개선)때문이라고 판단된다.
바람직한 수자원정책의 입안을 위해서는 수문자료의 연구와 확보, 민주적인 의사결정, 도덕적인 학자와 관료의 주도가 절실히 요구되며 결과에 대한 책임성의 담보가 필요하다.
● 참여정부와 댐 정책
참여정부의 성공여부는 도덕성 그리고 지방분권과 균형발전의 정도에 따라서 결정 될 것으로 예측된다. 참여정부가 지향하는 국가 발전은 계층간, 지역간, 세대간의 형평성 있는 성장적 발전, 즉 성장과 분배의 균형 있는 조화라고 표방한다.
세계적인 댐 건설 정책의 추세는 ‘지역주민과 지방정부의 찬성과 주도’에 의해서이다.
과거 한강수계 댐 건설의 편익은 주로 하류지역(수도권)에 집중됐으며 상류지역은 댐 건설로 일방적인 피해만 가져왔음은 누구도 부인하지 않는 사실이다.
이러한 댐 건설의 편익과 피해의 이분법적 적용은 상하류 지역간의 경제적인 격차를 가져와 국가의 불균형적 성장을 초래했다.
홍수와 가뭄의 공포에서 수도권 주민들이 해방 될 수 있는 이유는 댐 상류 강원도민의 희생이 있기 때문인 것이다.
댐 건설의 환경적, 경제적, 심리적 피해는 이루 말 할 수 없을 정도다.
댐 건설의 편익과 피해의 공평한 상하류간의 배분을 통해서 경제정의를 실현시켜야 한다.
물이 있는 곳에 도시가 형성되고, 홍수가 나는 곳에 살지 않는 것은 자연과 인간의 조화로운 삶의 방식이며, 자연의 섭리를 과도하게 파괴하여 물이 없는 곳에 도시를 건설하고, 홍수가 나는 저지대를 개발하기 위해서 흐르는 강을 막고 물의 흐름을 왜곡하는 파괴적인 반자연적 행위는 정의로운 사회 발전을 저해하고 더 이상의 국가와 인류의 발전을 가져오지 못할 것이다.
이미 과도하게 개발된 도시에서는 공급 위주의 수자원 정책에서 수요관리 위주의 수자원 정책으로 전환 하여야 한다.
불가피하게 댐 건설을 해야 한다면 지역주민과 지방정부의 동의 하에 댐 건설의 편익과 피해를 공평하게 분배 하여야 한다.
과거 공급 일변도 수자원정책은 국토의 불균형적 성장을 가져왔지만, 균형적인 국토 발전을 위해서는 일방적으로 대도시를 위한 수자원 개발(댐 건설)정책은 포기 되어야 하며, 댐 건설 권한 뿐 아니라 댐의 운영 이익도 지방정부에 이양하는 분권적 수자원 정책으로 국가의 균형발전을 이룩하여야 한다.
3. 한탄강댐 -- 매국노의 잔치인가?--
한탄강댐은 다목적 댐으로 계획하였다.
그러나 전력 생산과 용수 공급의 댐 건설 목적이 여의치 않자 홍수전용댐으로 계획이 변경 되었다.
한탄강댐의 각종 자료의 거짓이 밝혀져 국가정책에 대한 국민의 신뢰가 떨어지고 있으며 급기야는 정권에 대한 불신으로 이어지고 있다.
한탄강댐 건설의 찬반 논란의 핵심은 환경 문제도 아니고 경제적인 이유도 아닌 ‘정부가 국민을 상대로 사기 친다.’는 정부 불신의 이슈인 것이다.
이러한 정부(수자원공사)의 한탄강댐 건설을 위한 각종 자료의 조작은 강원도와 철원군에서 실시한 용역에서 밝혀졌으며, 수자원공사에서도 일부 시인이 있었다.(임진강수해원인및대책 보고서와 자료의 통일을 기하기 위해서라며)
필자는 한탄강댐의 경제성, 대안비교 등 각종 자료의 거짓은 당초 다목적댐으로 개발 할 예정이었던 것을 홍수전용댐으로 건설 목적을 불가피하게 전환 하면서 발생되었다고 판단한다.
용수공급도, 전력 생산도 하지 못하는 200년 빈도 홍수 시 연간 단 15일 저수하는 댐이 투자에 비해서 효과가 높다는 것을 누가 믿는단 말인가!
정부 보고서를 이의를 제기 할 때마다 수치를 5번씩이나 바꿔가면서 억지를 부리는 무식함이 정부의 올바른 정책이라고 수자원공사는 고집한다.
댐을 만들기 위해 다른 대안인 제방 축조는 3살 먹은 어린애도 건너 뛸 수 있는 도랑에도 제방을 쌓야 하고, 민통선의 지뢰밭은 물론 북한 지역까지도 제방을 쌓야 한다며 댐이 가장 경제적이라고, 푸줏간에 걸려있는 소대가리가 웃을 거짓말을 태연하게 한다.
이것이 우리나라의 수자원 개발 정책의 단면이다.
한탄강댐 건설을 정부가 고집한다면 국제적인 망신을 당할 것이 틀림없다.
부패관료, 건설회사, 용역비 챙기는 어용교수--댐 마피아 3형제--의 매국적 잔치를 더 이상 용납해서는 안 된다.
정부는 한탄강댐 건설계획을 조기에 백지화 할 것을 다시 한번 춘천물포럼의 자리에서 촉구한다.
다음은 10월 15일부터 10월 21일까지 대만에서 ‘댐의 대안’을 주제로 열리는 강보전연대 국제회의에서 발표할 환경운동연합 물위원인 장용창님의 발표문을 소개한다.
Hantan River Dam Report
March 1, 2004
Prepared by Yong-chang Jang
A member of Green Hub: volunteers' group for international cooperation team of KFEM
Korean Federation for Environmental Movement (KFEM), Friends of the Earth Korea
yongchangjang@hotmail.com
http://greenhub.kfem.or.krEnglish edition by Naomi Park
Hantan River Dam report #1. Yunchun Dam. I would like to write a report about the Hantan River Dam issue. But, there are too many debates concerning the dam project to write about in a single short report. So I will write it in several installments. The first issue is that of the Yunchun Dam. 1. What is the Yunchun Dam? Yunchun Dam was built in 1985 on the Hantan River and was broken down in the summer (rainy season) of 1999 due to the heavy rainfall. According to the dam plan, the Hantan River Dam will be built several kilometers upstream from where the Yunchun Dam was. Thus it is important to look back on the Yunchun Dam and its failures to assess the proposed Hantan River dam project. 2. Damage from the breakdown of the Yunchun Dam in 1999. More than 700 households (according to a news report 2,000) were destroyed as well as a human casualty when the Yunchun Dam was broken down on July 31, 1999. The households filed a damage suit against Hyundai Construction Company, but to no avail. The residents said that the flood of their hometown was due to the breakdown of the Yunchun dam. However the construction company stated that as the capacity of the dam was as small as 13 million tons at the time of the breakdown, the dam could not have affected the flood and so it was really the heavy rainfall that was the decisive factor. 3. Why did the Yunchun Dam collapse? The residents insisted that the operator of the Yunchun Dam made a mistake. The floodgate of the dam was not fully opened around July 31, 1999 when the dam was collapsed. However, the Hyundai Construction Company stated once again that it was due to the heavy rainfall. The company stated that they do not have any documents showing whether the floodgate was fully opened or not, as they lost all of the documents pertaining to the breakdown of the dam. Secondly, though Hyundai said the capacity of the dam was 13 million tons, a civil group insisted that the capacity was actually 33 million tons. The civilgroup said the company changed all their documents showing the capacity after the first breakdown of the dam in 1996. With a greater capacity, we can conclude that the flood downstream of the dam was caused by the breakdown of the dam. When requested, the company said all the documents showing the capacity of the dam was lost with the breakdown of the dam. Regardless of whether the floodgate was open or not, herein lies the more important factor: the Hantan River functions as the only drainage system in the region and during a rainfall, the height of the river rises dramatically. A dam simply cannot hold the water from a heavy rainfall regardless of how large the floodgate happens to be. It is natural that the Hantan river would overwhelm any dam blocking it. 4. Worrying About Future Flooding The residents downstream of the Hantan River dam site are once again worrying about the potential damage from a dam overflow of the Hantan River dam if it were to be built. Likewise, the residents upstream on the Hantan River dam are worrying that, as any dam on the Hantan River slows down the flow of the river, the dam will also cause flooding in their home town. What is even more worrisome for the residents is the fact that in the event of a major flood resulting from the dam, they would not be compensated for the damage, as was the case for the victims of the Yunchun dam flood. To prove that the flood was caused by a dam is impossible for ordinary citizens. To make matters worse, nearly allof the Korean professionals in the industry of dam engineering profit fromdam constructors. As a result, it is extremely difficult to find an engineer willing to help the people against the dam construction company. 5. The Site of Yunchun Dam In the picture below, you can see the concrete wall on the left side of the river- this is where the Yunchun Dam was located. It was removed in 2000 at the request of residents. Without these requests, the dam would not have been removed. The river overwhelmed and subsequently overflowed the dam in 1996. Despite this, the government decided to leave the dam as it was. This explains why the dam broke down again in 1999.
Hantan River Dam Report #2. Outline of the Plan This is the second article of the Hantan River Dam plan. Here I will outline the dam plan. 1. The Ministry of Construction and Transportation (MOCT) drew up the first plan to build the Hantan River Dam in 1999 after the river overflow at the Yunchun Dam caused enormous damage to the local towns. 2. Height: 85 meters; Legnth: 705 meters; Capacity: more than 300 million tons of water. Construction Cost: 1.2 trillion Won (1 billion US$), including compensation to residents for the land and buildings to be drowned. 3. To be constructed by Daerim Industry Ltd. (Decided in November 2002). To be owned by the Korean Water Resources Company Ltd., (KOWACO, www.kowaco.or.kr), which is wholly owned by the MOCT. 4. Daerim Industry is said to have spent several billion Won (several million US$) already in designing the dam. 5. Purpose of the dam: The dam was to be built to prevent flooding and to provide water for agricultural purposes according to the original plan. The MOCT altered the proposed purpose of the dam after the Ministry of Environment suggested in August 2003 that the dam should be emptied for 350 days per year to preserve ecosystem. As a result, the dam will be built strictly for the purpose of flood prevention.
The site for Hantan River Dam
The site where Yunchun Dam was
127° east longitude
Im Jin River
The Hantan River Dam report #3. The beauty of Hantan River.
In this third part of the report on Hantan River Dam, I will show the beauty of Hantan River with some pictures I downloaded from www.hantanet.com and www.hantanlove.net, homepages of the residents against the dam project. They began to gather information on the river for use in the movement against the dam project.
The Hantan River is considered to be the Korean "Colorado River" with its steep walls and natural beauty. The scene is unique in Korea as it is the only river that flows through a volcanic region.
Hantan River Dam report #4. Why we oppose the Hantan River Dam project?
Here are the reasons why we oppose the dam project.
1. The dam will increase the damage from floods.
As is explained above (report #1), the residents suffered damage from flood caused from breakdown of the Yunchun Dam. The residents are saying that the Hantan River Dam will result in the same damage.
2. We will lose our hometown.
About 350 households (1,000 persons) will have to leave their hometowns. They are mostly farmers and although they will be compensated for their lost houses and land, they hold that this compensation is still not enough to enjoy their present living standard.
3. The dam will result only in waste of money.
The dam built with 1.2 trillion Won (US$ 1 billion) does not help preventing flood. Especially as the region holds many (about 1,000) volcanic caves, it is doubtful whether the dam would be able to hold a great deal amount of water.
4. The environmental damage
The geological feature of Hantan River is unique in Korea. (The Hantan River runs through a volcanic region.) Especially the pillar-shaped rift is going to be designed as National Natural Resources.
5. Damage to cultural resources.
The land to be flooded by the dam isrichly endowed with valuable remains dating back from the prehistoric age. The artifacts that have yet to be discovered would thus be destroyed by the dam.
6. Damage to regional economy
As is seen in the case of river rafting, tourism industry is precious to the region. And since the Hantan River, with its beautifulscenery, has much potential, destroying it would only hurt the tourism industry.
7. Bombing ground
A bombing ground named "Daraktu bombing ground" that has been used for 50 years by the US army and Korean army is just 2 km upstream of the site for the dam. The bombing ground holds a large amount of chemicals from the bombs. Thisbombing ground would be drowned out by the dam according to the plan. Thus, it would result in severe pollution of the river's water. This issue was omitted in Environmental Impact Assessment for the dam project because it is in the jurisdiction of the Army. Moreover, the dam is a vulnerable target for haphazard bombs (we have seen that misled bombs have fallen into the river, and have remained for at least 50 years).
8. Manipulated plan.
The benefit from the dam was evaluated larger than real by the dam constructor in their plan. Many factors such as expectations for rainfall and population weremanipulated. The residents sued the KOWACO for this manipulation.
9. Alternatives
The damage from flooding canbe alleviated by building a bank beside the river. The reason the KOWACO objects to this alternative is that the bank building is not considered to be a part of their job description.
(Site map showing the bombing ground)
The bombing ground that would be drowned from damming.
The Hantan River Dam to be built.
Hantan River Dam report #5. Movements of the residents.
Here is a summary how the residents have been struggling against the dam project.
1. The region
Three regions related to the dam issue are Pochun(150,000 population), Yunchun(50,000), and Chulwon(50,000). These regions have suffered from nearby military bases as well as the DMZ. For example, industrial developments are restricted in these regions because of military reasons. And they have suffered from the noise of military bombing and accidental explosion of bombs.
2. The beginning of the project and the movement
The government began to consider building a new dam just after the Yunchun Dam was broken down in 1999 summer. And the residents began their movements against the plan soon after the government announced their plan in early 2000. The local governors and the local assembly have been also against the dam project since the beginning of the conflicts. And it was the local assembly that was at the heart of the Committee against the Hantan River Dam project. The Gang Won provincial governor first announced his will against the dam firstly on August 20, 2003 when 10,000 residents gathered thirdly to have the rally.
3. Cooperation with central civic groups
The residents made a network named "National action against dams(www.nodam.or.kr)" with several civilgroups including Korean Federation for Environmental Movement(KFEM). The residents could thus learn strategies from the networking. The civil groups had already won their movement against Dong River Dam project in June 2000. But the role of these central civil groups is not considered to be an important part in the movement.
4. Sit-in strike for several months
The residents have been active the sit-in strike since September 20, 2003. They kept the tents up until present day(March 1, 2004), by taking turns with each village. Everyday,several representatives from each village keep up their tents.
5. Filing a lawsuit against the Ministry
The residential committee against the dam project sued the Ministry of Construction and Transportation (MOCT), Korean Water Resources Company, and the Ministry of Environment for Manipulation of the dam plan, Environmental Impact Assessment, and many other official documents on August 7, 2003 after having their hair shaved in rain in front of Presidential House.
6. Gathering information
An impressivefeature is that the residents began gathering information on the natural and cultural resources of their region with the movement against the dam. They realized that this kind of information make would build a strong case against building a dam intheir region. The information is available in their homepages. www.hantanet.com and www.hantanlove.net
7. Budget for the dam rejected at the National Assembly
As the budgetfor the Hantan River Dam was rejected at the National Assembly in December 2003, the residents interpreted this as the very nullification of the Hantan River Dam project. But they misread this, for the MOCT did not give up the plan but were planning on trying for the next term.
8. The president suggests neutral assessment
The movement made a turning point on December 19, 2003 when the president Roh made a promise at the Dialogue with the Gang Won residents that he would assign the Presidential Committee for Sustainable Development (PCSD) to review the Hantan River Dam project. He suggested that the review of the dam project should be entrusted with the PCSD. If the residents agree with the process to review the dam project that the PCSD would make, thenthe residents and the government should agree with the result of the review, the President suggested. And most of the residents responded that they accepted the president's suggestion. But a local newspaper said in its editorial "Who agreed to accept the presidential suggestion? Does the applause at the Dialogue represent our agree? Shall we accept if the PCSD concluded that the dam should be built? Did we fight only to induce the presidential suggestion? Wasn't it our goal to nullify the dam project totally?"
The government is planning to legislate "A basic law to manage national conflicts" and is willing to make the Hantan River Dam an issue in the first sample of managing conflict. The PCSD will be the authority who manages the conflict under the law.
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