해양수송의 친환경·저탄소 전환에 따른 신형 해양오염사고 대비·대응 정책 연구

Abstract

Ⅰ. 서론 ？ 본 연구는 해양수송의 친환경·저탄소 전환 등 해양환경 변화에 따른 신형 해양오염사고 관리 방안을 선제 제시 ㅇ ① 해양환경 현안 및 여건 변화 분석, ② 해양오염사고 발생 현황 분석 및 신형 해양오염사고 영향 조사, ③ 기존 해양오염사고 관리 정책의 한계 분석, ④ 신형 오염사고 선진 관리 체계 고찰을 통해 ⑤ 친환경 연료 유출을 중심으로 한 신형 해양오염사고 대비ㆍ대응 체계를 마련 Ⅱ. 해양수송 현안 및 여건 분석 ？ 국제사회는 기후위기 극복을 위해 해양수송 부문의 환경규제 및 환경목표를 강화 ㅇ 국제해사기구는 모든 해역·선박 연료유의 황 함유량을 3.5%에서 0.5% 이하로 낮추고, 2050년까지 선박 탄소집약도를 70%, 선박 온실가스 배출량을 50% 감축시키는 등 선박 대기오염물질 및 온실가스 배출 규제를 강화 ？ 해양수송의 저탄소 전환으로 친환경선박 개발·보급 및 친환경 연료 사용 압력이 가중 ㅇ 미국, 영국, 독일, 중국은 친환경선박을 개발·보급하고, 선박 연료를 중유에서 해양가스유, 저유황유, 액화천연가스 등으로 전환 ㅇ 우리나라도「2050 탄소중립 추진전략」,「환경친화적 선박의 개발 및 보급 촉진에 관한 법률」, 「제1차 친환경선박 개발·보급 기본계획(2021-2030)」등의 추진을 통해 2030년까지 친환경선박을 15% 전환하고, 저·무탄소 연료 공급도 확대할 전망 ？ 기술 발전으로 저유황유·액화천연가스·전기·수소·암모니아·연료전지 등 다양한 친환경 연료 사용이 예상되는 바 유류 외 신규 물질 유출로 인한 해양오염사고 대비·대응 필요 Ⅲ. 해양오염사고 발생 현황 분석 ？ 유류 유출 해양오염사고 예방·방제 정책 개선으로 유류 유출 해양오염사고 발생은 감소하였으나, 위험·유해물질 운송, 친환경선박 개발, 대체연료 개발 등으로 신형 해양오염사고 발생위험이 증가하면서 실질 사고 발생 ㅇ 2020년 유류 유출 해양오염사고는 234건으로, 건조 유조선 이중선체 의무화 및 강제 퇴출 등으로 2001년 대비 47% 감소 ㅇ 입·출항 선박 중 위험·유해물질 선박은 2020년 35%, 위험·유해물질 화물 해상 물동량은 2020년 2억 9,600만 톤으로, 2011년 대비 각각 5%, 17% 증가 ㅇ 신형 해양오염사고는 지난 20년간(2001~2020년) 총 59건으로, 매년 발생 정도는 미미하나 지속 발생 ？ 친환경 연료는 탄화수소 기반 연료의 대체연료로, 유출사고 발생 시 종류, 용량, 독성에 따라 환경·생태, 사회·경제, 건강·안전에 치명적 영향을 미침 ㅇ 친환경 연료는 액화천연가스, 압축천연가스, 액화석유가스, 바이오가스, 바이오디젤, 수소, 암모니아, 메탄올, 배터리 등임 ㅇ 친환경 연료는 유류와 달리 비가시·확산·잔류·인화·폭발·독성 등의 특성이 있어, 생물체의 준치사·사망, 생태계 교란, 상업·관광자원의 가치 하락, 심장·호흡기·중추신경계 손상을 유발 ？ 친환경 연료 유출사고 등 신형 해양오염사고는 화재, 폭발, 유해물질 유출, 인명·재산 피해 등을 동반한 대형 복합재난으로 이어질 수 있어 각별한 대비·대응이 필요 Ⅳ. 해양오염사고 관리 정책 분석 ？ 해양오염사고 예방, 제도 정비, 장비 확충, 관리 과학화 등 해양 기인 오염 대응능력 확충을 통한 국가 유류 및 위험·유해물질 유출사고 대응 체계를 구축 ㅇ ？재난 및 안전관리 기본법？, ？해양환경관리법？, ？해양환경 보전 및 활용에 관한 법률？ 등을 제정ㆍ시행하여 해양오염의 예방·개선·대응·복원 추진 ㅇ ？？제4차 해양환경 종합계획(2011-2020)？？에 따라 유류 및 위험·유해물질 오염 관리 제도를 정비하고 장비를 확충 ㅇ 유류 확산 예측시스템, 지능형 해양오염사고 의사결정지원시스템을 구축하여 유류 오염사고 방제 의사결정을 지원 중이며, 위험·유해물질사고 관리 기술이 개발될 예정 ㅇ 2021년 해양경찰청 해양오염 관리 예산은 150억 원으로 2012년 이래 48% 증가 ？ ？？？？제5차 해양환경 종합계획(2021-2030)？？, ？？제1차 친환경선박 개발·보급 기본계획(2021-2030)？？ 등에 따라 친환경 선박·연료로의 전환을 추진하려 하나 정부, 유류 오염사고 중심의 방제체제가 구축되면서 친환경 연료 등 신규 오염원 유출사고 관리는 미비 ㅇ 신형 해양오염사고 관리를 위한 ① 입법 체계 검토, ② 해양환경종합계획 보완, ③ 복합재난, 신규 물질, 기후변화 등 관리 물질 및 관리 업무의 확장, ④ 현장 지휘 주관, 환경구난 등 해양경찰청 역할 확대, ⑤ 신규 물질 혹은 대기오염에 대한 장비 및 기술 개발, ⑥ 정보·장비·인력 협력 체계 구축, ⑦ 상설 과학자문조직 마련 필요 Ⅴ. 신형 오염사고 관리 체계 고찰 ？ 주요 선진국은 신형 해양오염사고 관리를 위해 건강·환경·복지에 위험·유해한 물질을 대상으로 민간업체와 협력하여 방제, 구난, 소방, 교육·훈련, 홍보 관리 체계를 마련 ㅇ 미국, 일본, 유럽은 ① 긴급구난, 해상 소방 등의 근거를 마련하여 ② 선박 해양시설을 포함한 항공기까지 사고 관리 대상을 확대. ③ 구난 및 해상 소방 규정, 방제 자재 비치 혹은 방제선 배치 기준을 마련하여 준수 의무를 부과하며, ④ 국제 전문가 그룹을 운영하여 대비. 국가·지역은 물론 ⑤ 구역방제계획 및 ⑥ 대응 매뉴얼까지 마련. ⑦ 사고 특수성에 따라 대책본부를 설치하고, ⑧ 특별대응팀 혹은 기술지원단을 구성하여 대응. ⑨ 위험도 평가를 통해 과학적 대응을 지원. ⑩ 민간방제업체와의 협력을 통해 ⑪ 통합대응관리 체계를 구비 ？ 우리나라는 신형 육상오염사고 관리를 위해 건강·환경에 큰 피해를 입힐 우려가 큰 화학물질 혹은 위험물을 대상으로 조사, 감독, 안전, 유출·누출 관리 체계를 마련 ㅇ 환경부는 육상화학사고 발생 우려 및 사고 발생 시 피해규모가 큰 ① 화학물질 및 ② 특별관리지역을 지정·관리. ③ 자체 소방대 설치 의무를 부과하며, ④ 물질별 개인보호장구 등 사고대비물질 취급자 관리 기준을 마련. 관계기관 전문가로 구성된 ⑤ 화학재난합동방재센터를 설립하고, ⑥ 유출·누출 물질의 확산·위험성 평가를 위한 화학사고대응정보시스템 및 ⑦ 사고 상황 공유 앱을 구축. ⑧ 제독 활동과 함께 ⑨ 주민 보호 및 인명 구조·통제 조치 수행. ⑩ 사고영향조사를 시행하여 ⑪ 복구 시 활용 가능한 정보 제공 ？ 해양·육상오염사고 선진 관리 체계를 고려한 신형 해양오염사고 관리 체계 구축 필요 ㅇ ① 친환경 연료를 중심으로 한 신규 오염원의 유출사고 방제 이외 ② 구난, 소방까지 포함한 사고 관리 체계 구축 필요. 신형 해양오염사고 관리를 위한 정책·정보·기술·장비·예산·인력 부문의 ③ 기반 구축 및 ④ 역량 강화, ⑤ 정부 간, 정부-민간 간 사고 관리 협력 체계 필요 Ⅵ. 신형 해양오염사고 대비·대응 정책 마련 ？ 신형 해양오염사고 관리 정책은 ‘유류사고 현장 방제’에서 ‘해양재난 대비·대응’으로 패러다임 전환 필요 ？ 해양재난 대비·대응을 위한 신형 해양오염사고 관리 정책으로 6대 추진전략 및 16대 추진과제를 제시 ㅇ [전략 1] 해양오염사고 방제에서 해양오염사고 방지로의 주류화: 신형 해양오염사고 인식 제고, 신형 해양오염사고 관리 정책 기반 마련, 신형 해양오염사고 관리 재정 편성 확대 ㅇ [전략 2] 신형 해양오염사고 예찰·예보 시행: 신형 해양오염사고 상시 모니터링 시행, 신형 해양오염사고 위험 예보제 시행 ㅇ [전략 3] 신형 해양오염사고 대비 체제 구축: 신형 해양오염사고 조사·실험·정보 구축, 신형 해양오염사고 평가·예측 기술 개발, 신형 해양오염사고 유형별 전략 수립 ㅇ [전략 4] 신형 해양오염사고 현장 대응 강화: 신형 해양오염사고 방제세력 확충, 신형 해양오염사고 대응 기술·장비 확보·운영, 신형 해양오염사고 대응 시스템·앱 개발, 신형 해양오염사고 현장 대응 가이드라인 마련 ㅇ [전략 5] 신형 해양오염사고 사후관리 시행: 신형 해양오염사고 사후영향평가 시행 ㅇ [전략 6] 신형 해양오염사고 협력적 거버넌스 구축: 해양경찰청의 신형 해양오염사고 관리 역할 강화, 신형 해양오염사고에 대한 육상·해양·공중의 신속 대응, 신형 해양오염사고 내 민간 역할 강화 ？ 여전히 높은 비중을 차지하고 있는 유류 유출 해양오염사고와 함께 신형 해양오염사고에 대한 관리 정책의 수립·이행을 통해 안심사회 구현에 기여할 수 있기를 기대

Ⅰ. Introduction ？ This study proactively suggested a new management plan for marine accidents in response to the changes in the marine environment, focusing on the eco-friendly and low-carbon transition of marine transportation. ㅇ We conducted ① an analysis of issues and conditions in the marine transportation, ② an analysis of marine pollution accidents and investigation of the impact of new marine pollution accidents, ③ an analysis of limitations of the existing marine pollution accident management policies, and ④ a review of advanced management systems for new marine pollution accidents, based on which we aimed to develop ⑤ a response system for the prevention of new marine pollution accidents, focusing on eco-friendly fuel leakage. Ⅱ. Analysis of Issues and Conditions for Marine Transportation ？ The international society has strengthened environmental regulations and environmental objectives in the marine transportation to overcome the climate crisis. ㅇ The International Maritime Organization has strengthened the regulations of air pollutant and greenhouse gas emissions by reducing sulfur content of fuel oil in all seas from 3.5% to 0.5%, shipping’s carbon intensity by 70%, and shipping’s greenhouse gas emissions by 50% until 2050. ？ The pressure to develop and supply eco-friendly ships and fuels is increasing due to the low-carbon conversion in marine transportation. ㅇ The U.S., UK, Germany, and China are developing and distributing eco-friendly ships, and changing ship fuel from heavy oil to gas oil, low sulfur oil, and liquefied natural gas. ㅇ South Korea is also expected to convert 15% of ships to eco-friendly ships until 2030, and to expand the supply of low-carbon or carbon-free fuels, based on the implementation of the 2050 Carbon Neutral Strategy, the Act on the Promotion of Development and Distribution of Environment- Friendly Ships, and the First Basic Plan for the Development and Distribution of Eco-Friendly Ships (2021-2030). ？ The use of various eco-friendly fuels including low-sulfur oil, liquefied natural gas, electricity, hydrogen, ammonia, and fuel cells is expected due to technological advancement. Therefore, it is necessary to prepare and respond to marine pollution accidents that may be caused by the leakage of new substances excluding oil. Ⅲ. Analysis of the Occurrence of Marine Pollution Accidents ？ The occurrence of marine oil spill pollution has decreased, due to improvements in the policies for the prevention and control of oil spill pollution. However, new types of marine pollution accidents have occurred as the risk of these accidents increased due to the transport of hazardous and noxious substances, the development of eco-friendly ships, the development of alternative fuels, and so on. ㅇ In 2020, the number of oil spill events that occurred was 234, a number that has decreased by 47% from that of 2001, due to the mandatory double hull and forced removal of built tankers. ㅇ In 2020, among incoming and outgoing ships, the percentage of ships carrying hazardous and noxious substances was 35% and the volume of hazardous and noxious substances carried by ships was 296 million tons, increasing by 5% and 17% respectively, compared to 2011. ㅇ 59 new marine pollution accidents have occurred over the past 20 years (2001-2020). The number itself is insignificant but that these accidents are continuously occurring every year is a concern. ？ Eco-friendly fuels are alternative fuels based on hydrocarbon. When these fuels are spilled into the sea, they have a fatal impact on the marine environment/ecology, society/economics, and health/safety, depending on their type, capacity, and toxicity. ㅇ Eco-friendly fuels include liquefied natural gas, compressed natural gas, liquefied petroleum gas, biogas, bio-diesel, hydrogen, ammonia, methanol, and batteries. ㅇ Unlike oil, they have characteristics such as invisibility, diffusion, persistence, flammability, explosion, and toxicity which cause fatal injuries and deaths of organisms, disruption of the ecosystem, decline in the value of commercial and tourism resources, and damage to the heart, respiratory system, and central nervous system of humans. ？ New types of marine pollution accident such as eco-friendly fuel spills can lead to a large-scale complex disaster accompanied by fire, explosion, and the leakage of hazardous and noxious substances, causing damage to life and property. Ⅳ. Analysis of the Existing Policies for the Management of Marine Pollution Accidents ？ South Korea established a national response system for oil and hazardous and noxious substances spills by enhancing the capacity to prepare accidents, improving systems, expanding the equipment, and promoting the science-based management of marine pollution. ㅇ South Korea promoted the preparedness, improvement, response, and restoration of marine pollution by the enactment and enforcement of the Framework Act on the Management of Disasters and Safety, the Marine Environment Management Act, and the Act on Conservation and Utilization of the Marine Environment. ㅇ South Korea improved the system and expanded the equipment for the management of marine pollution caused by oil and hazardous and noxious substance spills in accordance with the Fourth Comprehensive Marine Environment Conservation Plan (2011-2020). ㅇ South Korea established an oil spread prediction system and an intelligent marine pollution accident decision-making support system. Also, the technology for managing hazardous and noxious substances is expected to be developed. ㅇ The budget for marine pollution management of the Korea Coast Guard in 2021 is 15 billion KRW, which is a 48% increase compared to 2012. ？ South Korea intends to promote the conversion to eco-friendly ships and fuels according to the Fifth Comprehensive Marine Environment Conservation Plan (2021-2030) and the First Basic Plan for the Development and Distribution of Eco-Friendly Ships (2021-2030). However, the management system for leaks of new pollutants such as eco-friendly fuels is insufficient, as it was established centered on the government and oil pollution accidents. ㅇ Therefore, it is necessary to ① review the legislative system for new marine pollution accident management, ② supplement the marine environment comprehensive plan, ③ expand management materials and management tasks including complex disasters, new substances, and climate change, ④ expand the role of the Korea Coast Guard including on-site command and management as well as environmental rescue, ⑤ develop equipment and technologies for new substances or air pollution, ⑥ establish a cooperation system for sharing of information, equipment, and human resources, and ⑦ establish a permanent scientific advisory organization. Ⅴ. Consideration of the Management System for New Types of Marine Pollution Accidents ？ In order to manage new types of marine pollution accidents, major advanced countries established systems for the disaster control, rescue, firefighting, education, training, and public relations management regarding the substances which are dangerous and harmful to health, environment, and welfare, through cooperation with private companies. ㅇ The U.S., Japan, and Europe ① established the basis for emergency rescue and firefighting at sea, and ② expanded the scope of accident management to include aircraft as well as ships and offshore facilities. ③ Regulations and standards for rescuing, firefighting, equipping disaster prevention resources, and arranging response vessels are established, imposing duty to comply. They are ④ preparing new marine pollution accidents by operating an international expert group. They established not only national and regional plans but also ⑤ plan for districts, and ⑥ developed a response manual for the management of new marine pollution accidents. ⑦ Countermeasure headquarters are established according to the characteristics of an accident, and ⑧ a special response team or technical support team is formed to respond to new marine pollution accidents. They ⑨ support science-based responses based on the risk assessment of new marine pollution accidents. ⑩ Through cooperation with private companies, they ⑪ established an integrated response management system. ？ In order to manage new types of land pollution accidents, South Korea established a system for the investigation, supervision, safety management, and leakage management of chemical substances or dangerous substances that are likely to cause great damage to health and the environment. ㅇ The Ministry of Environment ① designates and manages chemical substances and ② special management areas where a possibility of chemical spill accidents is higher and the damage is greater in the event of an accident. It ③ imposes an obligation to install a fire brigade, and ④ develops the standards for managing people in charge of substances requiring preparation for accidents such as personal protective equipment for each substance. It ⑤ established a joint chemical disaster prevention center consisting of experts from related organizations, ⑥ built a response information system of chemical spill accidents to evaluate the spread and risk of spilled and leaked substances, and ⑦ built a mobile application for sharing accident situation. ⑧ Along with activities to control toxic substances, it ⑨ implements measures to protect, rescue, and control residents. It ⑩ investigates the impacts of accidents, and ⑪ provides the local governments with useful information for recovery. ？ It is necessary to establish a new management system for marine pollution accidents in consideration of the advanced management system for marine and land pollution accidents. ㅇ ① With the control of new pollutant spills focusing on eco-friendly fuels, ② it is necessary to establish an accident management system including rescue and firefighting. Also, it is necessary to ③ establish a foundation and ④ build capacity for the sectors of policy, information, technology, equipment, budget, and human resources, and ⑤ promote the cooperation between local governments and the government/private agencies. Ⅵ. Policy Suggestions for Preparing and Responding to New Types of Marine Pollution Accidents ？ A paradigm shift in the policy is necessary for the management of marine pollution accidents from the ‘on-site control of oil spill accidents’ to the ‘preparation and response to marine disasters.’ ？ We suggest six strategies and 16 tasks for the management of new marine pollution accidents to prepare and respond to marine disasters. ㅇ [Strategy 1] Mainstreaming the prevention of marine pollution accidents breaking away from the ‘control’: raising the awareness of new marine pollution accidents; laying the groundwork for new marine pollution accident management policies; and increasing budget for new marine pollution accident management ㅇ [Strategy 2] Implementation of the monitoring and forecasting of new marine pollution accidents: continuous monitoring of new marine pollution accidents; implementation of risk forecasting system on new marine pollution accidents ㅇ [Strategy 3] Establishment of a new marine pollution accident prevention system: investigation, experimentation, and construction of information on new marine pollution accidents; development of the evaluation and prediction technology for new marine pollution accidents; establishment of strategies for each type of new marine pollution accident ㅇ [Strategy 4] Reinforcement of on-site response to new marine pollution accidents: expansion of control forces of new marine pollution accidents; securing and operating technology and equipment for responding to new marine pollution accidents; development of a decision-making support system and mobile applications for responding to new marine pollution accidents; preparation of guidelines for the on-site response to new marine pollution accident ㅇ [Strategy 5] Implementation of the post management of new marine pollution accidents: implementation of the post-impact assessment of new marine pollution accidents ㅇ [Strategy 6] Establishment of cooperative governance for new marine pollution accidents: strengthening the role of the Korea Coast Guard in managing new marine pollution accidents; promotion of the prompt response to new marine pollution accidents in land-sea-air; strengthening the role of the private sector in the management of new marine pollution accidents ？ It is expected that this study will contribute to the realization of a safe society by establishing and implementing a management policy for new types of marine pollution accidents along with oil spill marine pollution accidents which still account for a high proportion of maritime pollution.