서울시 교통안전업무 추진체계 정립에 관한 연구 A Study on Establishing Transportation Safety System in Seoul

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(2) 시정연 2002-R-06. 서울시 교통안전업무 추진체계 정립에 관한 연구 A Study on Establishing Transportation Safety System in Seoul. 2002. 서울시정개발연구원 Seoul Development Institute.

(3) 연구진 ꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚ. 연 구 책 임 이 광 훈 • 도시교통연구부 선임연구위원 연. 구. 원. 이 신 해 • 도시교통연구부 연 구 원 유 성 봉 • 도시교통연구부 위촉 연구원. ꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚꠚ. 이 보고서의 내용은 연구진의 견해로서 서울특별시의 정책과는 다를 수도 있습니다..

(4) 요약 및 정책건의 ꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏ. Ⅰ. 연구의 개요 1. 연구 배경 ◦ 교통안전의 중요성 부각 ∙ 생명과 직결된 교통안전 문제는 교통혼잡 문제와 비교해 상대적으로 소홀 하게 다루어져 왔는데, 이를 뒷받침하듯이 최근 OECD에서 발표한 어린이 교통사고 사망자수를 살펴보면 우리나라가 1세-14세 아동 100,000명당 12.6 명으로 최고를 기록함. ∙ 이렇게 교통안전과 관련된 문제를 서울시가 소홀하게 다루어온 배경에는 서울시가 교통안전시설 업무를 경찰에 위임하고 그것이 서울시 교통안전업 무의 전부인 것으로 생각한 것이 기인하고 있음. ◦ 중앙정부 및 민간의 노력 증가 ∙ 중앙정부에서는 2000년 9월에 이미 총리실 직속으로 안전관리개선기획단을 설치․운영하여 적극적으로 대응하고 있고, 민간기업 스스로도 교통사고를 줄이기 위한 대책을 마련하고자 각종 세미나 개최 및 안전교육을 실시하 고 있으며, 시민단체에서도 현 교통안전법을 한층 더 강화하는 방향으로 개 정하여 교통안전에 관한 강력한 정책집행을 요구하고 있음.. 2. 연구 목적 ◦ 민선 3기 시정 교통부문의 주요핵심사업으로 교통안전업무를 부각시켜 정책 결정자의 관심을 유도함. ◦ 서울시 교통안전 업무의 역할정립 및 이에 상응하는 업무영역을 설정함으로 서 서울시 주도형의 교통안전 추진체계를 재정립함.. 3. 연구 범위 ◦ 본 연구에서 다루는 교통안전의 범위는 육상의 교통안전으로 한정함.. - i -.

(5) 교 통. 육 상 교 통 안 전. 안 전. 해 상 교 통 안 전. 항 공 교 통 안 전. 지 역 교 통 안 전 대 책 수 립 종 합 교 통 안 전 대 책 수 립. 중 앙 정 부. 지 방 정 부. Ⅱ. 연구의 주요결과 1. 서울시 주요 교통안전업무 영역 ◦ 교통안전과 관련된 많은 업무중에서 서울시의 주요 교통안전업무를 결정하기 위한 전문가 설문조사결과 다음과 같은 영역이 도출되었음. ∙ 안전한 도로환경조성 ∙ 교통약자의 안전확보 ∙ 사업용차량의 안전확보 < 업무 영역별 우선순위 비중 > 교통안전시설 설치 등 도 로환경 정비 교통법규 위반 단속. 120. 100. 어린이, 장애인, 노약자 교통안전 확보 대중교통 및 사업용 차량 교통안전 관리 교통안전 교육 및 홍보. 80. 60. 교통안전제도 및 조직 정 비 교통안전관련 단체지원. 40. 20. 교통사고 관리. 0. ◦ 또한 위에서 결정된 업무영역에 대해서 “교통안전 시설 설치 등 도로환경 정. - ii -.

(6) 비 업무”는 65%, “어린이․장애인․노약자 교통안전 확보”는 51%, “대중교통 및 사업용차량의 교통안전 관리”는 50%가 교통안전 증진을 위해서 서울시가 주도적인 역할을 해야한다고 응답하였음.. 2. 서울시 주요 교통안전업무 추진체계 정립방향 ◦ 본 연구에서 도출된 서울시 주요 교통안전업무 추진체계를 정립하기 위해서 는 다음과 같은 원칙이 지켜져야 함. ∙ 구체적인 목표 개선 ∙ 역할구분, 책임소재 명확 ∙ 집행․평가․예산의 feedback과정 반드시 포함 ∙ 법․제도에 근거. 3. 서울시 종합 교통안전업무 추진체계 ◦ 서울시 주요 교통안전업무별로 업무추진체계를 단기안과 장기안으로 제시하 고, 이들을 종합적으로 정리하여 다음과 같은 서울시 종합 교통안전업무 추진 체계안를 제시함. <단기안> : 시장 직속의 위원회 중심의 업무추진체계 시장 경찰위임업무의 추진계획, 지침 교통안전대책위원회. 경찰 결과 보고. 기능 : 서울시 교통안전기본계획의 목표설정, 심의. (가 칭 )교 통 안 전 추 진 실 기능 : 교통안전기본계획 수립 및 실행. - iii -.

(7) ∙ 교통안전대책위원회 - 기능 : 교통안전기본계획의 핵심목표 설정을 비롯한 교통안전기본계획의 방향을 제시하고, 수립된 계획을 심의함. - 구성 : 현 구성체계를 유지함. ∙ (가칭)교통안전추진실 - 기능 : 교통안전대책위원회의 결정에 따라 교통안전기본계획을 수립하 고, 실행함. - 구성 ․(가칭)교통안전기획팀, (가칭)도로안전팀, (가칭)사업용차량안전팀, (가칭)교통약자안전팀의 4개 하부조직으로 구성 ․(가칭)교통안전추진실장은 3급 공무원, 각 팀장은 4급 또는 5급 공 무원과 민간전문가로 구성함. 기능 : 교통안전기본계획 수립 및 실행 실 장 : 3급 공 무 원. (가 칭 )교 통 안 전 추 진 실. (가 칭 ) 교통 안전 기획팀. (가 칭 ) 도로 안전팀. (가 칭 ) 사업용 차량 안전팀. (가 칭 ) 교통 약자 안전팀. 팀 장 : 4 ,5 급 공 무 원 또 는 민 간 전 문 가 로 구 성. <장기안> : 실무 추진부서 중심의 업무추진체계 시 장. 교 통 관 리 실. 교 통 안 전 과. 하 부 조 직. - iv -. • • • •.

(8) Ⅲ. 정책 건의 1. 법․제도 정비 ◦ 교통안전대책위원회의 기능을 확대하는 방향으로 “서울특별시 교통안전대책 위원회 설치조례”를 개정함 ◦ 교통안전법 등 교통안전과 관련된 법․제도를 개정할 수 있도록 중앙정부와 협의함.. 2. 교통안전관련 예산확보 ◦ “자동차교통관리개선특별회계법”에 의해 확보된 중앙정부의 예산을 서울시의 교통안전확보에 투자할 수 있게 방법을 강구함.. 3. 경찰과의 업무조정 ◦ 현재 경찰이 담당하고 있는 교통안전시설관련 업무에 대하여 서울시가 지속 적으로 모니터링하고, 장기적으로는 경찰은 단속업무만 담당하도록 업무를 조 정함.. - v -.

(9) - vi -.

(10) 목. 차. ꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏ. 제 Ⅰ 장 서 론 ·······································································································3 제 1 절 연구의 목적 ·····························································································3 제 2 절 연구의 범위 ·····························································································4 제 3 절 연구의 주요내용 및 방법 ········································································5 제 Ⅱ 장 서울시 교통안전업무 활성화의 필요성 ················································9 제 1 절 열악한 서울시의 교통안전환경 ·······························································9 1. 서울시 교통사고 건수, 사망자, 부상자 현황 ·················································9 2. 도시고속도로 교통사고 현황 ·········································································10 3. 열악한 야간 도로주행 환경 ··········································································12 4. 후진국형 교통사고 유형 ··············································································12 5. 영업용 차량관련 교통사고 현황 ···································································13 제 2 절 교통안전 정책추진의 시기성 ································································14 1. 국가차원의 관심고조와 추진 성과 ································································14 2. 교통안전법의 개정 ·························································································16 3. 자동차교통관리개선특별회계법 시행 ····························································17 제 3 절 교통정책 패러다임의 변화 ····································································18 1. 서울시 및 외국의 교통정책 패러다임 변화 ·················································18 2. 민선 3기의 주요 교통정책 ············································································21 제 4 절 교통안전과 서울시의 교통체계 특성 ····················································21 1. 타 도시에 비해 높은 도로교통 ·····································································21 2. 지하철, 도로의 정비수준 ···············································································22 제 5 절 교통사고로 인한 사회비용 ····································································23 1. 교통사고로 인한 교통정체 ············································································23 2. 교통사고에 따른 대기오염 문제 ···································································24 3. 교통사고로 인한 사회․경제적 손실 ····························································24 제 6 절 교통안전에 대한 시민 평가 ··································································25.

(11) 제 Ⅲ 장 서울시 교통안전업무 추진현황 ···························································31 제 1 절 서울시 교통안전업무 추진현황 ·····························································31 제 2 절 서울시 관계기관별 교통안전업무 추진현황 ·········································32 1. 중앙정부의 교통안전업무 추진현황 ······························································32 2. 중앙정부 산하기관의 교통안전업무 추진현황 ·············································35 제 3 절 서울시 교통안전업무 추진체계의 문제점 ··············································36 1. 담당부서의 인력 및 예산 부족 ·····································································36 2. 유명무실한 교통안전대책위원회 ···································································37 3. 서울시와 중앙정부의 업무관계 ·····································································39 제 Ⅳ 장 서울시 주요 교통안전업무 영역결정 ··················································45 제 1 절 교통안전업무 영역 검토 ········································································45 1. 교통안전기본계획 ···························································································45 2. 서울시 교통안전세부시행계획 ·······································································49 3. 외국의 주요 교통안전업무 ············································································51 제 2 절 서울시 주요 교통안전업무 영역 결정 ··················································53 1. 서울시 주요 교통안전업무 영역 결정 방법 ·················································53 2. 서울시 교통안전 업무 영역별 우선순위 설문 결과 ·····································55 3. 서울시 세부 교통안전 업무 영역 ·································································57 제 3 절 서울시 주요 교통안전업무 영역별 관계설정 ·······································59 제 Ⅴ 장 서울시 주요 교통안전업무 추진체계 정립방향 설정 및 대안 개발 ······· 65 제 1 절 서울시 주요 교통안전업무 추진체계 정립방향 설정 ···························66 1. 구체적 목표 개선을 위한 교통안전 업무추진체계 ······································67 2. 역할과 책임이 명확한 교통안전 업무추진체계 ············································68 3. 집행․평가․예산배정의 feedback과정을 포함하는 교통안전 업무추진체계 ···· 71 4. 법․제도가 뒷받침되는 교통안전 업무추진체계 ··········································71 제 2 절 서울시 주요 교통안전업무 추진체계 대안개발 ····································72 1. 안전한 도로환경조성을 위한 업무추진체계 ·················································72.

(12) 2. 교통약자의 안전확보를 위한 업무추진체계 ·················································81 3. 사업용차량의 안전확보를 위한 업무추진체계 ·············································87 제 3 절 서울시 교통안전업무 종합 추진체계 유형제시 ····································91 1. 단기(안) : 시장 직속의 위원회 중심의 업무추진체계 ·································92 2. 장기(안) : 실무 추진부서 중심의 업무추진체계 ··········································95 제 Ⅵ 장 서울시 교통안전업무 활성화를 위한 선결과제 ·································99 제 1 절 법․제도 정비 ························································································99 1. 교통안전법 개정 ····························································································99 2. 어린이보호구역의 지정 및 관리에 관한 규칙 개정 ···································102 3. 서울특별시 교통안전대책위원회 설치조례 개정 ········································103 제 2 절 교통안전관련 예산 확보 ······································································104 제 3 절 자치경찰제 시행 및 경찰의 업무 조정 ··············································104 제 Ⅶ 장 결론 및 정책건의 ················································································109 제 1 절 결론 ····································································································109 제 2 절 정책건의 ·······························································································111 ■ 참고문헌 ■ 부록.

(13) 표 목 차 ꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏ. <표 Ⅱ-1> 서울시 교통사고 발생추이 ······································································9 <표 Ⅱ-2> 서울시 교통사고의 심각도 ····································································10 <표 Ⅱ-3> 주요 국가별 도시고속도로 사고율 비교(1995) ····································11 <표 Ⅱ-4> 서울시와 동경도의 도시고속도로 사고율 비교 ···································11 <표 Ⅱ-5> 서울시와 동경도의 ‘차 對 사람’ 교통사고 발생건수 및 치사율 비교 12 <표 Ⅱ-6> 서울시의 사업용 차량 교통사고 분석 ··················································14 <표 Ⅱ-7> 교통안전법 개정의 추진경위 ································································16 <표 Ⅱ-8> 자동차교통관리개선특별회계법의 내용 ················································17 <표 Ⅱ-9> 자동차교통관리개선특별회계법 상의 세입 증감추이. ·····················18. <표 Ⅱ-10> 서울시의 교통정책 패러다임 변화 ·····················································19 <표 Ⅱ-11> 영국 Transport 2010-The 10 Year Plan의 실행전략 ·······················20 <표 Ⅱ-12> 외국 대도시와 서울시의 교통 Infrastructure 비교 ··························· 22 <표 Ⅱ-13> 올림픽대로에서의 유고발생 현황 (1997년 3월 한달간) ····················23 <표 Ⅱ-14> Non-Peak 시와 Peak 시의 배기가스 배출량 산정 ···························24 <표 Ⅱ-15> 2000년 교통사고의 사회적 비용 ·························································25 <표 Ⅲ-1> 서울시 교통안전관련 조직의 업무분장 및 담당인원 현황 ················· 32 <표 Ⅲ-2> 교통관리실 예산의 비중 (단위 : 백만원) ············································37 <표 Ⅳ-1> 제5차 교통안전기본계획 상의 교통안전 주요 추진업무 및 담당기관 46 <표 Ⅳ-2> 2002년 서울시 교통안전세부시행계획 상의 주요 교통안전 업무 ·······49 <표 Ⅳ-3> 일본의 제7차 교통안전기본계획 ···························································51 <표 Ⅳ-4> 미국 TEA-21 상의 주요 교통안전 업무 및 세부항목 ························52 <표 Ⅳ-5> 설문조사를 위한 각 업무영역별 세부업무분야 설정 ·························· 53 <표 Ⅳ-6> 8개 업무영역 중 서울시가 주도해야 할 업무영역 파악을 위한 설문조 사 내용 ··································································································60 <표 Ⅴ-1> 교통관리실의 관련조직 및 업무분장 ····················································73 <표 Ⅴ-2> 건설국의 관련조직 및 업무분장 ···························································73 <표 Ⅴ-3> 건설안전관리본부의 관련조직 및 업무분장 ·········································74.

(14) <표 Ⅴ-4> 시설관리공단의 관련조직 및 업무분장 ················································74 <표 Ⅴ-5> 자치구의 업무분장 ················································································74 <표 Ⅴ-6> 보행환경 개선을 위한 추진업무 및 예산현황 ·····································82 <표 Ⅴ-7> “어린이보호구역의 지정 및 관리에 관한 규칙”의 일부 ····················· 83 <표 Ⅴ-8> 사업용 차량 안전확보를 위한 추진업무 및 예산 현황 ·······················87 <표 Ⅵ-1> 우리나라와 일본의 교통안전 관련법의 비교 ·····································100 <표 Ⅵ-2> “서울특별시 교통안전대책위원회 설치조례”상의 위원회 기능 ········· 103.

(15) 그 림 목 차 ꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏꠏ. <그림 Ⅰ-1> 연구의 범위 ·························································································4 <그림 Ⅰ-2> 연구 흐름도 ·························································································6 <그림 Ⅱ-1> 사망자수 추이 ······················································································9 <그림 Ⅱ-2> 서울시 교통사고의 심각도 ································································10 <그림 Ⅱ-3> 서울시와 동경도의 야간사고 발생비율 비교 ···································12 <그림 Ⅱ-4> 전체 사고 중 ‘차 對 사람’ 교통사고 구성비 ····································13 <그림 Ⅱ-5> ‘차 對 사람’ 교통사고의 사망자 수 및 치사율 비교 ·······················13 <그림 Ⅱ-6> 서울시와 동경도의 영업용 차량 교통사고 발생비율 비교 ··············13 <그림 Ⅱ-7> 서울시의 사업용 차량 교통사고 중 차량 유형별 사망자 현황 ·······14 <그림 Ⅱ-8> 정부차원의 교통안전에 대한 노력과 교통사고 발생현황 ················15 <그림 Ⅱ-9> 서구 국가들의 교통안전과 관련한 법률 ···········································19 <그림 Ⅱ-10> 민선3기의 주요 교통정책 ································································21 <그림 Ⅱ-11> 서울시와 동경도의 교통수단 분담율 비교 ·····································22 <그림 Ⅱ-12> 교통사고 발생으로 파생되는 2차적 문제(대기오염) ······················24 <그림 Ⅱ-13> 가장 불안한 사고유형 ······································································26 <그림 Ⅱ-14> 교통사고의 가능성 ···········································································26 <그림 Ⅱ-15> 가족의 교통사고의 경험 ··································································26 <그림 Ⅱ-16> 교통안전의 책임기관 ·······································································27 <그림 Ⅲ-1> 서울시의 교통안전과 관련한 조직 및 업무분장 ······························31 <그림 Ⅲ-2> 건설교통부의 교통안전관련 조직 및 업무분장 ································33 <그림 Ⅲ-3> 안전관리개선기획단의 교통안전관련 조직 및 업무분장 ················· 34 <그림 Ⅲ-4> 경찰청의 교통안전관련 조직 및 업무분장 ·······································34 <그림 Ⅲ-5> 도로교통안전관리공단 업무현황 ·······················································35 <그림 Ⅲ-6> 교통안전공단 업무현황 ······································································36 <그림 Ⅲ-7> 서울시 교통안전대책위원회 및 교통안전대책실무위원회의 업무 ··· 38 <그림 Ⅲ-8> 우리나라와 일본의 교통안전관련 계획수립 과정 비교 ··················· 39 <그림 Ⅲ-9> 중앙정부와 자치단체간의 교통안전업무 체계 (미국) ······················40 <그림 Ⅲ-10> 중앙정부와 자치단체간의 교통안전업무 체계 (일본) ····················40 <그림 Ⅲ-11> 중앙정부와 자치단체간의 교통안전업무 체계 (우리나라) ·············41 <그림 Ⅳ-1> 교통안전업무 중 서울시가 우선적으로 추진해야 할 업무 우선순위 ···· 55.