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A Paradigm Shift and Policies for River Management in KOREA

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Copyright 2013 Korea Research Institute for Human Settlements

All rights reserved. Printed in the Republic of Korea. No part of this publication may be reproduced in any manner without written permission from KRIHS except in the case of brief quotations embodied in critical articles and reviews. For more information, please address inquiries to: Korea Research Institute for Human Settlements, 1591-6, 254 Simin-daero, Dongan-gu, Anyang-si, Gyeonggi-do, 431-712, Korea.

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Includes bibliographical references ISBN 978-89-8182-993-3 ISBN 978-89-8182-991-9(SET)

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Chapter 1. Introduction _ 1 _______________

1. Background and Necessity for This Research 2

2. Research Purpose and Major Contents 3

3. Previous Research and Related Theories 5

Chapter 2. Concept of Current River Management and Major Contents _ 11 _______________ 1. Definition and Functions of a River 12

2. Purpose and Content of River Management 15

Chapter 3. Process and Prospect for a Paradigm Shift in River Management _ 19 _______________ 1. The Paradigm Shift Process in River Management 20

2. Prediction for a Future River Management Paradigm 24

Chapter 4. Policy Direction for River Management in Consideration of a Paradigm Shift _ 29 _______________ 1. Vision of River Management and Management Concepts 30

2. Direction of Future River Management Policies 30

3. Suggestions for River Management Policies of the Future 47

4. Legal and Institutional Improvement Plans 51

Chapter 5. Conclusion _ 55 _______________

REFERENCES _ 58 _______________

Table 16. Replies to the Most Wish Activity in Rivers in the Future 39 Table 17. Replies to the Preferred Present Activities and Future Wish Activities 39 Table 18. Replies to the River Utilization Activities Connected with Nearby Regions 40 Table 19. Replies to the Necessity for Creating a Cluster or District 40

Table 20. Replies to the Necessity for Regional Governance 41

Table 21. Replies to the Future River Function 41

Table 22. Replies to the Present and Future River Function 42

Table 23. Replies to the Idealistic Future River Model 42

Table 24. Opinions on Future River Functions and Ideal Models 42 Table 25. Policy Directions of Current and Future River Management 46

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Figure 1. Flowchart of the Research 4

Figure 2. A Paradigm Shift Diagram 8

Figure 3. Paradigm Shift in Water Sectors 21

Figure 4. The Process to Deduce Paradigm Shift in River Management of Korea 22

Figure 5. Paradigm Shift Clock 26

Figure 6. Structure and Embodiment Process of a River Shift Paradigm 32

Figure 7. Structural Diagram on Creation of River Culture 48

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KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 KRIHS SPECIAL REPORT 2013 Authors

Park Taesun

Research Fellow, Doctor of Hydraulics, Hydrology and Environment Engineering, Hanyang University, Korea.

Major research field includes rivers, dams and water management. He has conducted research including water resources development and management policy, close-to-natural river restoration, river management and maintenance, industrial waterworks, inland navigation, provisional water-supply system, economic analysis in flood control, and postmortem evaluation of dam construction. He is currently an acting member of the Government Commission of the Ministry of Land, Infrastructure and Transport.

Recent research works include are The Activation Plan Considering Win-Win Cooperation for Local Hydropower Projects with the Communities and Hydropower Company (2013), The Policy for National River Management and Maintenance (2011), The Reasonable Adjustment Methods of Dam - Rights to the Sumjin Multipurpose Dam Reconstruction (2009), Postmortem Evaluation of the Miryang Multipurpose Dam Construction (2006), Analysis of Flood Damage Characteristics and Development of Flood Damage Index (2005), Analysis of River Environment Characteristics for the Close-to-Natural River Project (2004), and The River Grade Adjustment for Effective River Management (2002).

Lee Moonwoun

Associate Research Fellow. Ph.D. candidate (All but dissertated) in Urban Engineering, University of Seoul.

Major research field includes coastal zone use and management and development strategy for regional resources. Recent research works include The Activation Plan Considering Win-Win Cooperation for Local Hydropower Projects with the Communities and Hydropower Company (2013), The Value Review and Policy Issues of Dokdo (2010), The Reasonable Adjustment Methods of Dam - Rights to the Sumjin Multipurpose Dam Reconstruction (2009), A Review of Historical Literature on Ulleungdo and Dokdo (2009), Climate Change and Sustainable Land Management Strategies in Korea (2008), A Study on the Disaster-Prevention Urban Planning for the Creation of Safe City (2008), and A Study on the Basic Plan for the Nakdong-River Project (2008).

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Introduction

Chapter

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1. Background and Necessity for This Research

Paradigm refers to a recognition system as a conceptual boundary which defines opinions and thoughts of either people of a certain era, theoretical framework, or a system on things. Since policies of a nation are provided for people, they are closely related to the changes in such a paradigm, and it is desirable for a river management policy that is a part of national land management policies to be done in a macroscopic framework of a paradigm.

Since the river policies to the present have been promoted by mainly focusing on river improvement for reducing damages from floods within the conventional paradigm of development and growth, there has been relatively insufficient consideration for river management. However, as the existing paradigm of development and growth tends to evolve to a new paradigm of humans’ pursuit of happiness and harmony with the nature that is based on multitudinous thinking of humans and pluralistic values, river management also requires changing policies to accommodate such a trend. In addition, as the natural, social, and strategic circumstances related to rivers are changing, it is necessary to move the focus of river policies from river construction to river management. In terms of the natural aspect, the scale of fluctuation and frequency of rainfall has changed due to climate change, thus river management to prepare against extreme flood and drought conditions is increasingly important. In terms of social aspect, increase in impermeable layers on the ground caused by constant urbanization results in changing runoff characteristics. This enhances recognition on the environment and

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people are increasingly showing more concerns on river conservation. In terms of governmental policies, national-level public concerns and demands are increasing on diverse forms of river usage through programs such as National Four Rivers Renewal Project, etc.

Considering such changes in the paradigm and various circumstances, it is the time to shift the paradigm on national river management policies and set a policy direction to specify the shift. For this purpose, it is necessary to build a new river management paradigm in a future paradigm shift, establish a vision for river management that can accommodate the paradigm, and set a specific policy direction. Nonetheless, the vision for river management at a national level in consideration of a future river management paradigm and policy direction has not yet been provided.

2. Research Purpose and Major Contents

This study aimed to build a future paradigm for river management, and present a vision for river management and policy direction by investigating the process of the paradigm shift according to the trend of the times. For this purpose, this study investigated the paradigm shifts according to the trend of the times and analyzed major issues in water sectors in order to present a new paradigm for river management. That is to say, this study built a new paradigm for river management through the process of analyzing changes in the global trend of the times paradigm shift in water sectors changes in the domestic circumstances of the times and river policies prediction on the changes in circumstances related to rivers analysis on river management paradigm and policies.

In addition, in order to make policies for a river management paradigm under various changes in circumstances, this study presented a vision for river management that the government will pursue. For this purpose, this study rebuilt the concept of river management and set a desirable river model of the future. It also reviewed existing river management policies in order to set a future policy direction according to the paradigm shift, setting the analysis viewpoint on the policy direction for a new paradigm. It presented policy plans to implement the planned policies and legal/institutional improvement plans.

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Figure 1. Flowchart of the Research

Introduction

Background and necessity for this research

Research purpose and major contents

Investigation on previous research and review of related theories

Research scope and methods

Concept of current river management and major contents

Purpose and content of river management

Process and prospect for a paradigm shift in river management

The paradigm shift process in river management

Prediction for a Future River Management Paradigm

Global trend changes of the times Prediction for a paradigm shift according to the trend of the times

The paradigm shift in water sectors Prediction on a changes in circumstances related to river sectors

The paradigm shift in river management of Korea

Prediction on the future paradigm shift in river management

River management policies in consideration of paradigm shift Policy Direction of Future River Management

Investigation on similar cases Creation of

river culture

Enhancement of river function Vitalization

of river use

Vitalization of regional economy

Vitalization of Regional Governance

Legal and institutional improvement plans Setting the policy

direction for future river management

Setting an ideal river model

Review of existing policies and policy directions of the future

Conclusion

for policies

Academic /policy contribution of this research

Restrictions of the research and future tasks

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The main contents of this study are as follows: First, it summarized the concepts and major contents of current river management. For this purpose, it investigated definitions, functions, and components of a river and defined rivers as a subject for management. It also summarized the concepts of river management focusing on purposes, necessities, management scope, and major contents of river management.

Second, it investigated the shift process of the river management paradigm and predicted the changes of the future. For this purpose, it summarized the global trend of the times to the present day, the paradigm in water sectors, and the changes of the future.

Additionally, it predicted a future river management paradigm and the changes in circumstances of a new river management program to react against the changes. Third, it presented the policy direction for river management according to a new river management paradigm. For this purpose, it set the vision for new river management and a desirable river model and presented a policy direction in consideration of the paradigm shift.

3. Previous Research and Related Theories

1) Investigation on Previous Research

Major previous research related to this study are as follows: “A Study of National River Management Plan (2011)” which was conducted by the Ministry of Land, Transport and Maritime Affairs suggested effective plans to reinforce the basis for river management and management work in consideration of the changes in circumstances.

The study dealt with an organizational system for river management, a facility management plan, and a funding plan according to the changes in circumstances. In this sense, even though the research perspective was the same with this study, it had a different research purpose from this study aiming to set a policy direction for river management that considers a new paradigm shift.

“A Study of Paradigm for Water Resource Management (2009)” suggested plans to resolve discrepancies between the institutional systems and water management policies including a basic act for water management, governance over watershed management, and introducing a competition for tap water and the sewage system. However, the study

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suggested water use and watershed management focusing on regulations on water resources and therefore it had different research perspective from this study focusing on river management.

“Sustainable Water Management Policies Vision and Task (2004)” set a new paradigm for integrated water management and suggested evaluation on water management policies and its vision, major policy tasks, and the plan to build an institutional foundation. However, as the study dealt with overall water management such as demands for water, tap water, water quality, and public rivers, its perspective was different from this study focusing on river management.

As mentioned above, previous research suggested a policy direction for overall water resources and it is necessary to conduct research to provide specific policy direction for river management. There has been research that established the concept of river management and suggested the management foundation or improvement plan for management jobs, but they were insufficient to suggest a policy direction considering the paradigm shift.

Therefore, this study corrected and complemented the related parts of previous research and suggested a policy direction according to a new river management paradigm.

2) Review of Related Theories

(1) Definition and Concept of a Paradigm

After Thomas Kuhn used the term ‘paradigm’ in “The Structure of Scientific Revolution” in 1962, the word has been recognized as a shared belief and value in a certain area for a given period. Kuhn said that the paradigm is “a collection of theoretical standards and methods representing the method to organize knowledge” or

“the perspective to view the world”. That is, a paradigm can be defined as “a collective frame or set that combines scientific recognition, theories, traditions, thoughts, ideas, and values”. More specifically, it means a pattern or model that represents typical social phenomena or prototype. A paradigm in one sector consists of a set of values, theories, methodologies, tools, and techniques and therefore it is formed by the consensus of members in the sector.

The concept of a paradigm was first used in natural science but presently it is used in all sciences and in daily life. The original concept was called the current or trend of the times. In a more narrow sense, it means the shift of thoughts and/or changes in pattern

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reacting to changes in circumstances. In addition, a paradigm can be regarded as a general approach, model or dominant theoretical system that explains social phenomena of one era. Therefore, a paradigm can be described as an undoubtful belief of the times that is acknowledged widely and shared by scholars and the professional community.

When a theory is established, the theory faces a change in most cases. At this time, a motivation is given for a new change. Even if it has a perfect theoretical system, normal science¹⁾cannot avoid qualitative change in a new paradigm that is different from other opinions. Such changes are originated from social demands and value changes, regardless of its intention and it thus becomes a motivation for scientific development.

Handa in 1986 conducted a research focusing on social circumstances that result in changes in institutions or the education system²⁾. Due to compound characteristics and values that consist of a specific phenomenon, an individual recognition system, a complex structure and the correlation among phenomena, such social circumstances are hard to interpret or to reach a consensus. Therefore, he insisted that a social paradigm is

“a set of experiences, beliefs and values that affect individual recognition on reality and the reaction accordingly”. A dominant paradigm is led by an expert group that forms a paradigm, the influential leaders that lead a paradigm, and the media press and/or publishing companies that publicize the thinking system. The factors that lead a paradigm are educators who propagate the expansion of a paradigm, various meetings that actively discuss a paradigm, the press media, the groups that strongly believe a paradigm, and the organizations that research a paradigm. According to them, a paradigm means a pattern or model that represents typical social phenomena or prototypes.

This study aimed to investigate and predict the paradigm shift according to the changes in macroscopic trend of the times and suggested a policy vision of the future and a policy direction in a special sector called river management policy.

(2) Factors and Process of a Paradigm Shift

As psychological factors according to the individual recognition system strongly work for a paradigm, paradigm shift occurs according to people and times. Thomas Kuhn

1) According to Kuhn, when a paradigm is generated, scientists keep research and exploration activities to solve various problems caused by the paradigm. He called it normal science.

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thought that a paradigm constantly changes as it has characteristics of the times. Kuhn said that when a certain amount of performance is accumulated under the circumstances of normal science, the existing paradigm is gradually denied and a competitive new paradigm will be shown. Then, the paradigm that dominated one era completely disappears by the scientific revolution and a competitive paradigm would replace the position as a new paradigm.

Kuhn insisted that a paradigm cannot be sustained forever and the scientific community undergoes the five stages of progress as follows³⁾ : First, it is the “pre- paradigm period”, in which the community does not reach to a consensus on the key paradigm. Second, the “paradigm development period”, in which the paradigm is sufficiently matured to attract the attention of supporters in the community. Third, the

“paradigm clarification period”, in which the parameters of investigation and problem- solving are determined by the paradigm. Fourth, the “post paradigm expansion period”, in which anomaly occurs and the anomaly is reflected to the position of the paradigm.

Lastly, it is the “crisis period” in which a new paradigm is replaced by the existing paradigm when the existing paradigm cannot accommodate anything further. That is to say, paradigm has undergone the process of a paradigm shift past paradigm, present paradigm, crisis paradigm, and a new paradigm.

Pre-paradigm period

New paradigm Paradigm development period

Crisis period

Post paradigm expansion period Figure 2. A Paradigm Shift Diagram

3) Lee Soojang, March 2006, Changes in Planned Theory from the Paradigm in the National Territorial Research vol. 48

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Claudia (2006) explained the requirements for a paradigm shift are as follows:

She insisted that a paradigm can be summarized as the embodiment of issues that fulfill the questions such as “What is to be observed and scrutinized?”, “What kind of questions are supposed to be asked and probed for answers in relation to this subject?”,

“How these questions are to be structured?”, and “How the results of scientific investigations should be interpreted?”.

She insisted the following are the factors of a paradigm shift: First, participating management and cooperative decision making; Second, an increasing necessity for integration of current issues and detailed sectors; Third, the ineffectiveness of management which is the cause of the problems; Fourth, the necessity for open and more flexible management plans; Fifth, the necessity for management on human activities by flexible means; Sixth, the importance of environmental issues in management goals;

seventh, information disclosure and sharing; and eighth, a repetitive learning process.

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Concept of Current River Management 02

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1. Definition and Functions of a River

In a dictionary, a river is defined as “a stream of water running along its water course from the ground surface of land”. More specifically, it collectively refers to large rivers, small streams, and brooks.

Parts of rainfalls⁴⁾fallen on the ground evaporate from the surface of the ground or water. Some of the evaporation goes back to the air through plants and the rest becomes underground water. The remaining part flows to a lower place along a slope by gravity.

At that time, this generates a natural course of water. When water runs along its natural course, the water flowing course is called a river. The center of the river is called a channel, and the distance from the drainage divide to the estuary is the length of the river.

The surface of running river water is referred to as the river bed. A watershed is the area of land where rain and/or snow becomes running river water and goes into the same place. In addition, main current refers to the longest current from the drainage divide to the estuary and the current that flows to the main current is the branch current. On the contrary, any current that flows away from the main current is called a distributary.

As stated above, the water course and water current that is naturally formed by rainfalls are collectively called a river. In order to manage rivers, it is required to legally define the scope of management, the management sections, the objects for management, and the river management authority. Accordingly, the River Act defines rivers directly.

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4) Anything that has the form of water after melting including snow, rain, hail, etc.

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The concepts of a river defined in the current River Act are as follows:

First, the term ‘river’ means any water way which is formed by rainwater that has fallen on the water surface and flown together. Second, a river in this sense should be designated as a national river or a local river as they are closely related to public interests.

According to the levels of public interests, they are classified into national rivers or local rivers. National rivers are the rivers which are important for the preservation of the national territory and the national economy and the names and sections of the river are designated by the Ministry of Land, Transport, and Maritime Affairs (MLTMA). As for the criteria of designation, any of the following can be designated as national rivers: a river, a total basin area of which is not smaller than 200 km², and a downstream of a multi-purpose dam, and the river on the upper stream affected in drainage by a dam reservoir. In case of a river of which a total basin area is not smaller than 50 km²and smaller than 200 km², more specific standards⁵⁾are applied. Local rivers mean rivers closely related to the public interests of the relevant local area and the names and sections of which are designated by the Mayor /Provincial governor. Third, a river contains a river area and river facilities. A river area means any riverside foreland or area that has similar functions of a riverside foreland, which is required for flood conveyance in case of a designed flood discharge. River facilities are the facilities established in order to preserve the functions of a river, improve its usefulness, and reduce any damage caused by flooding. Fourth, river water is defined as the object for management as in the Article 4 of River Act that defines a river and river water separately and the Clause 3 of Article 33 that stipulates the obligation to take into consideration of effect of river water in case of occupancy and the use of permission of rivers.

In summarizing, the definition of a river specified in the River Act is “an area within the riverside foreland and river facilities, which are closely related to public interests”. A river can be divided by a vertical “section” and a horizontal “river area”

according to the abovementioned requirements. River water flowing in the river is

5) Clause 3, Article 7 of River Act stipulates the criteria as follows. A. A river flowing through a city with the population of not less than 200 thousand people or the number of people located within its flood area is not less than 10 thousands. B. A river equipped with a reservoir with a capacity of not less than five million cubic meters, including a multi-purpose dam, levees, etc., and whose water is used nationally. C. A river following through or in a water supply source protection area, a national park, a UNESCO biosphere reserve area, a cultural property protection area, or an ecosystem or wetland protection area. D. Other rivers located in flood-prone area which are prescribed by Presidential Decree.

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designated as an object for management. It is also shown that the definitions of a river have changed according to the needs of the times and the necessity for management.

A river consists of a “riverine space” that is classified into both section and area,

“river facilities” for preservation of river functions and enhancement of effect, and “river water” which is running in the river. Combining such factors, habitats for living things and surrounding landscape are formed. The riverine space can be classified into a water way into which water runs, a riverfront that is partly affected by the water, and a flood plane that is not affected by water. Running river water may be categorized according to water quantity and water quality. The surrounding landscape is an important factor that provides amenity⁶⁾to river users.

The functions of a river consist of inherent functions and connected functions. The inherent functions of a river are the functions of water utilization, flood control, river

1961 1971 1999 2007

Public understanding

Implicit expression Implicit expression Explicit expression -Preservation of

national land /National economy

Explicit expression -Preservation of

national land /National economy

Names and sections

Each decree Presidential Decree Presidential Decree, Mayor/Provincial governor

Minister of MLTM, Mayor/Provincial governor

River area

Object for management Object for management -Defined requirements

for designation

Included in the river -Reinforced

requirements for designation

Included in the river -Specified requirements

for designation

River facilities

Object for management -Dealt as auxiliary

facilities

Object for management -Dealt as auxiliary

facilities -Consent from a river

management authority is required.

Included in the river -Dealt as auxiliary

facilities -Consent from a river

management authority is required.

Included in the river -Dealt as river facilities -Classified according to installation purpose

River water

Object for preservation -Concept of running

river water

Preservation/permission/

coordination - Concept of running

river water

coordination/management -Introduced the concept

of flowing water quantity

coordination/management -Added the concept of

running river water Table 1. Changes in Definition of Rivers in the River Act

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environment (habitat, water quality, etc.), and water-friendly functions while the connected functions of a river mean the river functions as a cultural, historical, and urban space.

In terms of an object for use and management, the inherent functions can be classified into three factors of water utilization,flood control, and river environment. The water utilization function is the activity to develop and use various functions of a river and its resources effectively. It is the value that running river water gives to us. The flood control function is the maintenance and management activities of a river to protect human lives and properties from water damage. The river environment function refers to the functions of natural preservation, habitat for living things, water purification, and water- friendly spaces. These functions are inseparable from each other and some functions are more emphasized than others according to the necessity of the times.

2. Purpose and Content of River Management

1) Purpose of River Management

Reviewing the purpose of river management in regards to the legislation objectives of the River Act, the purpose of river management is “to manage rivers appropriately and contribute to the promotion of public welfare by providing for matters on the designation, management, use, conservation, etc. of rivers for the promotion of benefits from river use, the environmental friendly maintenance and conservation of rivers”.

However, the purposes of river management have changed according to the demands and necessity of the times. Therefore, it is required to develop and strengthen new functions of rivers such as connected development with nearby areas and vitalization of regional economy on top of the current concepts of river management including water utilization, flood control, and river environment function.

6) The dictionary meaning of the word is the quality of being pleasant or attractive; agreeableness and social courtesies but in terms of urban and residential environment, it has a comprehensive meaning that comprises environment, state, and activities. This means a new comprehensive concept of environment.

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2) Major Content of River Management

In this study, river policy tasks are defined as establishment of plans for designation, use, conservation and management of rivers, execution of construction, and

Large categories

Middle categories

Small

categories Detailed categories

Direct tasks

Establishment of management

plans

Establishment of plans

Establishment and execution of basic plans for river management

Surveys Inspection on floodgates, basin areas, and flood damages.

Facilities management

Management of

river facilities Management of river facilities

Management of river functions

Flood control Flood forecast, flood control, channel dredging works,

Water utilization Water management in ordinary times and in drought

River environment

Water quality management, securing and operation of water for maintenance use, and landscape/ water- friendly function/ river environment management, etc.

Indirect tasks

Restriction of activities

Inhibited activities

Crackdown of inhibited works on river/river-planned land, and flood control area

Supportive work

Technical work

-Standardization and informatization of materials on water gates

-Research/development/support for river management technology

Administrative work

-Personnel management : Appointment and operation of river management staff

-Governmental authorization and permissions:

Checking and taking actions on permission for use of river water, permission for occupation, etc.

-Administrative disposition: Restoration to original state, penalties, measures for illegal actions, implementation of administrative actions, etc.

-General administrative works

Operation work Operation of various committees, dispute resolution, international cooperation, etc.

Table 2. Structure and Major Contents of River Management Tasks

Sources: Ministry of Land, Transport, and Maritime Affairs, November 2011.

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management. In the River Act, the river policy tasks are classified into three stages:

survey on and establishment of plans (Chapter 3), execution of river construction (Chapter 4) and river management (Chapter 5~Chapter 9). Although the river management tasks are not defined in the River Act, it can be defined as the direct/indirect works to enhance river functions and use of rivers.

River management affairs = Direct tasks (Establishment of river management plans + river facilities management + river function management) + Indirect tasks (Restriction of activities + supportive work).

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Process and Prospect for a Paradigm Shift 03

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1. The Paradigm Shift Process in River Management

1) Global Trend Changes of the Times

The world trend change up to the present can be classified into pre-modernism, modernism, and post modernism. Sometimes industrial modernism can be associated to modernism and reflexive modernity can be associated to post modernism.

2) The Paradigm Shift in Water Sectors

Classifying the themes of international conferences, forums, and charters in water sectors and the research of great scholars, the paradigm in water sectors has been changed as follows:

As to the “water governance”, many projects have been conducted in Europe recently including the HarmoniCOP (Harmonising Collaborative Planning) project, the NeWater (New Approaches to Adaptive Water Management under Uncertainty) project, and the SWITCH (Sustainable Water Management Improves Tomorrow’s Cities’ Health) project.

In the HarmoniCOP project, stakeholders in diverse fields such as NGOs, local governments, policy makers, and water-related industries participate in the water management for river basin areas. The NeWater project has the purpose to design clear and open social learning based on the interests of stakeholders, mutual cooperation, and

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Current issues Perspectives of SWITCH

Improper concept of the 19^thcentury:

Conventionalurbanwatercirculationsystem Urban water paradigm shift for the 21^stcentury.

Urban water quantity: flooding and drought Heavy rainfall management Inequality and discrepancy according to urbanization Effective water supply and use

Reduction of wastewater and expansion of hygiene facilities against the ecological and public health

damages

Effective use of water in consideration of hygiene and wastewater treatment.

Development and operation of natural systems and the treatment process for effective urban water

management.

Integration of urban water environment and planning process

Securing governance and a timeliness establishment of systems.

Governance in consideration of water value and changes in systems.

Table 3. Urban Water Management Factors in the Perspective of SWITCH

Sources: SWITCH and the Paradigm Shift: First joint project ever between a UN organization and the European Commission, October 14, 2008.

1970s 1980s 1990s 2000s

Recognition of water and environment

Water utilization/ water quality - Recognized water problems

as pan-global issues.

Setting international visions and goals for water

management

Water utilization/

environment (water quality ) - Sustainable development - Development and environmental preservation

* 1990 : Safe water and hygiene

*1992 : Water and sustainable development, environment and development

*1996 : Supply for clean water

* 1998 : Water and sustainable development Taking actions against

water problems by country

Water utilization/ water quality - Supply for clean water - Water supply and improvement of hygiene

Implementation of goals and international

cooperation

W

control/ environment (water quality ) - Reacting to climate change - Integrated

water management

* 2000 : Sustainable water resources management

* 2003 : Integrated water resources management

* 2006 : Strengthening practical capacity

* 2009 : Water and disasters

* 2012 : Actions for climate change

Figure 3. Paradigm Shift in Water Sectors

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trust. The SWITCH project works to improve water management policies in 8 urban areas in Europe, Asia, Africa, and Latin America and it acknowledges interest in the circulation system and the institutional diversity of stakeholders.

In March of 2012, the 6^thWorld Water Forum was held with the theme of “The Time for Solving Water Problems” in Marseille, France. During the Forum, many key issues were discussed including providing improved hygiene and public health using water, prevention of water disasters, contribution to economic development by using water, preservation of ecological systems, measures against climate change, etc.

Furthermore, sustainability of funding, consistency in water policies, and water governance were presented as important factors for water management. The 7^th World Water Forum will be held in Daegu, Gyeongsangbuk-do in Korea in 2015.

Setting basic hypothesis on investigation

Deducing policy direction by promotion periods Investigation on paradigm shift in Korean river policies

by year

on a river management paradigm

Deducing a paradigm shift in Korean river policies

Setting the period to promote river policies that have equivalent meaning

Deducing a paradigm shift (plan) in Korean river

policies

Deducing suggestions on policies

- By management basis : Investigation, planning, information collection, regulations, organizations

- By management purposes : Development, arrangement, creation, use, environment

- By major issues : Natural, social, policy aspects

- Criteria to classify periods : Management basis, management purpose, major issues

- Deduction methods : Setting periods to comprise agendas and deducing representative ideologies of agendas.

Colleting and organizing

related materials

literatures of a paradigm, etc.

Comparison with similar research

Figure 4. The Process to Deduce Paradigm Shift in River Management of Korea

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23 3) The Paradigm Shift in River Management of Korea

There are a lot of methods to review the paradigm shift, but this study applied a bottom-up approach by empirical methods based on river-related policies that have been conducted so far, major issues, and changes in laws and institutions. In addition, this study employed the following subjective judgment criteria to judge paradigm shift in consideration of the definitions of a paradigm.

4) Policy Implications

The policy implications from the investigation on the paradigm shift in Korean river management are as follows:

First is the relation change between nature and human beings. River policies have changed from the status quo stage that complies with nature (going through the disaster restoration and the repair stage that adjusts to nature, the active development stage that reacts to nature, and the water quality preservation stage to preserve nature) to nature- type river maintenance and the river restoration stage to restore nature. Second is the expansion of the purposes for river management and diversification. The purposes for river management have been expanded and diversified through the diversification of

Judgment factors Criteria for judgment Representative cases Changes in

scientific recognition and

theories

-Development of river-related theories, research-related technology and methodologies, etc.

-Making scientific system and collecting information for nature-type river arrangement methodologies, river restoration methodologies, and river management

Changes in conventions, concepts, thoughts and sense of values

-Policy agendas

-Social phenomena and demands, etc.

-River development for economic development and growth

-Objections for dam construction, efforts for water quality preservation, water dispute, etc.

Possibilities to judge visible

changes

-Sustainable related businesses -Planning, investigation, legislation

and amendment of regulations, etc.

-River improvement business(es), nature-type river arrangement methodologies, etc.

-Investigation on river basin area, long-term comprehensive plan for water resources, dam development plan, legislation and amendment of the River Act and the Dam Act, etc.

Table 4. Criteria to Judge a Paradigm Shift

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flood control, water utilization, river environment, water-friendly functions, water utilization functions (channels, etc.), and the restoration of river environment, respectively. Third is the scale that has been changed from large to small. It is assumed that decrease in proper development sites and the trend of the times pursuing the harmony between development and environment have great influence on the change in scale. Fourth is the diversification of participants. In the initial stage, the central government led the development but the leading role of the government was changed to the cooperation with private organizations, that is to say, in the form of water governance.

Fifth is the trend of cutting-edge techniques and globalization of river management. The techniques for river management have developed to be cutting-edge including actions for climate change and water disputes, the necessity for prediction and reactions based on scientific data, etc. Sixth is a paradigm change according to policies, social and technical circumstances of the times. The policies that do not comply with the change will have difficulties in being implemented.

2. Prediction for a Future River Management Paradigm

1) Prediction for a Paradigm Shift according to the Trend of the Times

It is regarded that reflexive modernity that was shown since the 1980s will dominate the trend due to the criticism and reflection on post modernism, and development of electronics, telecommunications, and information technology. Therefore, the

“multitudinous thinking” of human beings and the “pluralistic values” of environment will be more emphasized.

2) Prediction on a Paradigm Shift in Water Sectors

Under the influence of such a paradigm shift in water sectors, it is predicted that people try to understand the whole ecological system in an integrated way in consideration of

“human beings, technologies and environment”, which will be continuously expanded.

In order to achieve this, the trend to pursue the “expansion of sustainable integrated

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water management and water governance” where “governance, human beings, and ecology” are harmonized will also be sustained.

3) Prediction on the Future River Management Paradigm

Reviewing overall changes in conditions related to the future river, it is predicted that a paradigm shift in water sectors will also occur in river management according to the trend of the times. That is, multitudinous thinking of human beings and pluralistic values of environmental factors will be emphasized and water governance will be expanded to implement integrated river management.

Section Current Future

World trend of the times

Post modernism

-Human-centered humanism -Ecology and environment-centered

Reflexive modernism

-Emphasis on multitudinous thinking and pluralistic values

-Pursuing happiness and coexistence with environment

A paradigm in water sectors

Sustainable water management in water sectors

-Pursuing sustainable development and conservation

Expansion of integrated water management and water governance -Pursuing harmony among governance,

human beings, and ecology.

A river management paradigm

Restoration of river environment and multi-purpose utilization of rivers

Creation of new river values and river management

-Expansion of governance -River environment Conservation and restoration of

river environment

Rediscovery of the values of rivers and surrounding environments -River utilization Water-friendly, rest, and ecological

function-centered

Diversification to health, residence, arts, and culture

-Management methods

One-way and top-down management led by the government

Two-way and bottom-top management with regional governance -Management

technologies

Development and introduction of cutting-edge technology and techniques

Universalization and

commercialization of cutting-edge technology and techniques Table 5. Prediction on Paradigm Shift in River Management

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Spatial Conceptional Related factors

Global

level World view

Cooperation, information, support, exchange, coordination, conference

National level

Sectional paradigm

Experts, educators, researchers, believers, conference, media press

Regional level

Social recognition

Education, institution, environment

Personal level

Personal values

Phenomena, recognition, thoughts, values, experience, belief

1960s 1970s 1980s

Personal values

Social awareness

World perspectives SWITCH

Governance

Integration

Sustainability

Environment

Development Conformity with

nature

River management paradigm

1990s 2000s

2010s

Figure 5. Paradigm Shift Clock

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Section1948~19511952~19601961~19771978~19881989~19981999~20062007~presentFuture World

World trendModernismPost modernism Reflexive modernity, de-constructivismReflexive modernism Basic thought-Functionalism, machinery-centered thought -Production and growth-centered

-Humanism, human-centered thought -Ecology, environment-centered-Multitudinous thinking, pluralistic value, pursuit of happiness, and coexistence with environment Paradigm in water sectors

Development of water resourcesFocusing on environmentSustainable integrated managementHarmony with nature

Expansion of integrated management and governance -Conflict between environment and development -Mass supply/water quality management

-Integrated water management, expansion of governance -Effective and regional water management -Sustainable water management -Small-sized distributed management

-Harmony among governance, humans, and ecological system Agenda in water sectors

~19721972~19791980~19891990~19992000~presentFuture Absence of recognition on how serious water problem is worldwide Recognition on water and environmental issues

Dealing with water problems by nation Setting global goals and visions for water managementImplementation of international cooperation and goals

Table 6.Comparison of World Trend of the Times with Korean River Policies

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Section1948~19511952~19601961~19771978~19881989~19981999~20062007~presentFuture Korea

River policy paradigm 1948~19511952~19601961~19951996~presentFuture Passive administration of river affairs

Passive repair and maintenance of rivers

Active river development Active river developmentCreation of river values and expansion of river governance Characteristics by period

1948~19511952~19601961~19771978~19881989~19981999~20062007~presentFuture Beginning stage of river policy Restoration from Korean War and flood damages Full-scale river development Conflicts between river development and environment conservation Conservation of water quality and mediation of water conflicts Maintaining natural type rivers and providing basis for informatization Restoration of river environment and multipurpose use of rivers

Creation and vitalization of river culture Streamlined administration of river policies for river use

Restoration and repair from Korean war and flood damages River development to support economic development River development to support economic development River development and resolving water conflictsActive river improvement for nature conservation Active river improvement for river restoration

Creative river management in consideration of regional characteristics Permission and authorization related to river-related works

Restoration of destructed rivers and tap water/ wastewater pipelines, securing electricity Repair and maintenance of rivers and construction of large scale dams Developing main stream of Top 4 Rivers of Korea, maintaining water quality Developing middle-sized dams and improving natural type rivers Management connected with dams, informatization for river management Multi-purpose river management in consideration of river restoration Characteristic river management through the utilization connected with surrounding regions

Table 6.Comparison of World Trend of the Times with Korean River Policies

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KRIHS

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Policy Direction for River Management in 04

Consideration of a Paradigm Shift

Chapter

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1. Vision of River Management and Management Concepts

1) Vision of River Management

Vision of future river management should be set to comprise the meaning of a paradigm shift by changing the perspective to see the values and significance of the nature and the thinking system. This study sets the vision as a “harmonious coexistence of human beings with nature pursuing multitudinous thinking of humans and pluralistic values of an environment.”

2) Establishment of a New River Management Concept

In order to realize the vision of river management, this study classified the concepts of river management from a few perspectives and suggested the direction for the establishment of a new concept on river management and its necessity.

2. Direction of Future River Management Policies

1) Setting Policy Direction for Future River Management

The world trend of the times will be distinctively dominant by reflexive modernism and it is predicted that a more multitudinous thinking of human beings and pluralistic

Policy Direction for River Management in Consideration of a Paradigm Shift

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values of the environment will be emphasized. The multitudinous thinking of humans is the ultimate human pursuit of happiness which can be classified into physical and mental aspects. The happiness in the mental aspect can be obtained by feeling a mental satisfaction and the happiness in the physical aspect can be obtained by behavioral satisfaction through the process of use.

In addition, emphasis of pluralistic values of the environment is that the surrounding environment is ultimately newly recognized and it can be classified into environmental conservation and environmental use. The new understanding on the surrounding environment from the perspective of environmental conservation is to preserve/manage natural environment through conservation. The new understanding on surrounding environment from the viewpoint of environmental use is to enhance the vitality of the regional economy through the process of connection. In addition, the

Section Existing concepts Future concepts

Purpose of river management

To maintain existing river functions -To maintain water utilization, flood

control, and river environmental functions Ultimate purposes

-To enhance public interests

New river functions will be added.

-Landscape/ecological/cultural functions will be added.

-Ultimate purpose: Concepts of harmony with nature and coexistence will be added

Scope of river management

Riverside foreland section -River area, river facilities, and river

water

Will be extended to nearby areas -Harmonious collaboration with nearby

areas

The subject who conducts river

management

Top-down management led by government

-Advantageous in terms of conformity and securing sense of responsibility -Disadvantageous in terms of diversity

by section and region

Utilization of regional water governance concept will be added.

-Diversity and regional characteristics will be considered.

-Clear motivation and voluntary participation are required.

River management method

One-way management led by river management authority

-Management according to unified standards and regulations -Insufficient consideration on river

users and collecting their opinions

Two-way management in consideration of river users

-Quick communication and collecting opinions

-Consideration on the socially weak class -Pursuit for diversity, creativity, safety,

and convenience Table 7. Comparison of River Management Concepts

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process of creation-use-conservation-connection can be done naturally when there is a voluntary participation of the regions.

In consideration of the structure of logic process, the policy direction for future river management according to the paradigm shift can be set in the following five ways:

Paradigm structure

Embodiment of a paradigm

Respecting multitudinous thinking of humans

New understanding on the value of

humans

Mental aspect

Creation Enhancing mental

satisfaction

Creation and vitalization of various

river cultures

Rediscovery of environmental values

Environmental conservation

Conservation Conservation and management of nature

Conservation of river environment and

strengthening various functions Enhancing the

quality of life

Physical aspect

Composition of regional governance and vitalization of operation Use

Participation Enhancing behavioral

satisfaction

Vitalization of sound utilization of river

Emphasis on the correlation of ecological system

Environmental use

Connection Enhancing vitality of

regional economy

Provision of cluster use and vitalization of

regional economy Emphasis on pluralistic values

of environment

Coexistence of humans with nature Humans’ pursuit

of happiness

New understanding on surrounding

environment Figure 6. Structure and Embodiment Process of a River Shift Paradigm