재난관리에 있어서 로컬 거버넌스의 유용성에 관한 고찰

A Study on the Utility of Local Governance in the Step of Disaster Recovery : Focused on Case Analyses in Korea and Japan

본 연구는 2002년 태풍 ‘루사’와 2005년 전북지역의 폭설피해 당시 구호활동 현황을 통해 재난구호활동에서 민관협력의 수준을 가늠해 보고, 1995년 한신·아와지 대지진 당시 일본의 지진피해지역에서 자발적으로 만들어진 민간단체의 협력시스템이 행정기관과의 협력관계로 이어져, 행정기관과 민간단체가 대등한 관계에서 협력시스템을 구축한 사례와 비교해 보았다. 그 결과 아직 한국사회는 행정기관과 민간단체가 횡적인 네트워크를 통해 각기 고유한 영역의 활동을 전개하고, 행정기관과의 연대를 통해 정보공유와 공동 활동을 전개해 가는 재난관리 로컬 거버넌스에 대한 인식은 확산되었지만, 재난현장에서의 활동으로 구체화되고 있지 않은 현실임을 알 수 있었다. 지구환경의 변화와 사회환경의 변화로 인해 재난의 다발과 피해규모의 대형화가 예상되는 현실에서, 재난에 대처하기 위해서는 지역의 행정기관과 주민, NGO가 서로 협력해 가지 않으면 안 된다. 이러한 협력은 조직만들기가 아닌 구체적인 활동으로 이루어져야 하며, 활동을 통해 행정기관과 시민단체가 각기 서로의 영역과 특성을 이해하게 되고 자발적이고 대등한 네트워크를 구축함으로써, 재난복구과정에서 새로운 로컬 거버넌스 모델을 만들어갈 수 있을 것이다.

Recently, disasters have been more frequently happening, because of global warming and the changes of social environment. Furthermore, the scale of damage has become bigger. Against the backdrop, it is necessary to perform the relief activity against disasters with the cooperation between administrational organizations and private organizations during the whole process of disaster control. The purpose of this study was to research into the plans for disaster control through private cooperative system. To achieve the purpose, especially, the necessity of establishment of local governance in the step of disaster recover was understood with case analyses of Korea and Japan. A case of Japan implied that there was a precondition, which was local NGO interiorly should set up a horizontal network to build cooperative relation with administrational organizations. NGO, which has performed various activities, has joined in relief activity for disasters so that it has brought the effects to generate abundant requested aids to victims. While performing appropriate activities for each role and value, administrational organizations and NGO has recognized each other who has their own area for activities in even relation. Accordingly, local governance has been materialized through the process. However, in Korea, private organizations has just taken a role of an assistance for the administrational organizations. Its reason could be that administrational organizations has recognized voluntary activities including NGO's activities just as an assistance. The other reason would be that NGO hasn't created their own activities and methods. However, as it has been acknowledged by the case of Gangreung, when all concerned such as local residents, administrational organizations, companies, etc think about their areas to materialize local governance, local community would take a role of safety net to protect the people from disasters.