미국 셰일가스 개발 및 수출 규제에 대한 소고 ― 환경 규제 관련 거버넌스를 중심으로 ―
On the Wavering Regulatory Environment of Shale Gas Development and Export in the U.S.
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석탄 등 연료의 환경상 위해에 대한 인식의 제고와 미국발 셰일가스 혁명의 영향으로 천연가스의 에너지원으로서의 지위가 급부상하면서, 우리나라 천연가스 수입량에서 미국산 셰일가스가 차지하는 비중이 급증할 전망이다. 셰일가스 개발의 선도국인 미국의 개발 및 규제 정책은 호주 등 여타 셰일가스 보유국에도 영향을 미쳐 셰일가스의 에너지원으로서의 국제적인 지위는 물론 수급과 가격에도 큰 영향을 미칠 수 있으므로, 미국의 규제 환경 및 이에 관한 논의를 주시할 필요가 있겠다. 실제 미국 내에서는 셰일가스의 개발과정에서 발생하는 메테인 등으로 인한 대기오염 및 기후변화에 대한 악영향, 수압파쇄공법으로 인한 수질 오염 및 지진 발생 위험성 등에 대한 연방, 주정부, 지방정부 차원의 규제를 둘러싸고 특정 규제의 타당성 여부에 대한 분쟁은 물론, 규제 거버넌스에 대한 논의와 여러 단계 정부간 권한 쟁의가 치열하게 진행되고 있다. 셰일가스 매장량이 상당한 것으로 알려진 호주, 프랑스, 영국 등 국가에서도 유사 논의가 계속되고 있다. 또한, 미국의 천연가스 액화수출 관련 허가에 관하여도 수출로 인한 생산량 및 국내 수송량 증가에 따른 환경상 위해를 주된 쟁점으로 하는 소송이 여러 건 계속되고 있다. 이와 같이, 셰일가스에 대한 국제적 기대 못지 않게 생산국 내에서는 개발에 따른 환경상 위해에 대한 우려가 높고, 여기서 발생하는 갈등이 상당히 깊다. 재생에너지의 안정성과 효율성이 보다 보편적으로 확보되는 시기까지는 천연가스가 중요 에너지원으로 기능할 것으로 전망되는 것은 사실이다. 그러나, 천연가스 역시 화석연료의 일종으로 시추부터 이용과정까지 온실가스를 배출하고 있어 석탄보다 친환경적인 연료라 단언할 수 없고, 시추 방법의 특이성으로 인해 시추전이 위치하는 지역에 심대한 환경상 위해까지 발생하고 있어, 지속가능성이 담보된 에너지원이라 하기는 어렵다. 천연가스의 가교적 역할을 염두에 두고, 장기적으로 재생에너지 등 화석연료를 대체할 에너지원의 개발 및 보급과 더불어 에너지 생산 및 소비의 효율성을 제고하기 위한 제도적 노력을 지속적으로 이어 나가야 할 것이다.
Abstract
A growing concern over the environmental impact of coal and nuclear power generation in Korea, coupled with a dramatic increase in the U.S. shale gas production, has made natural gas, especially shale gas, an attractive alternative energy source. This paper closely reviews the U.S. shale gas development law and policy, including hydraulic fracturing regulation, which has exerted a remarkable influence on the current market position of shale gas and its future prospect of becoming a solid alternative energy source. In the U.S., the potential adverse environmental impact of shale gas development, such as air pollution, climate change risk due to methane emission, water contamination, and seismic risk involving fracturing processes, has aroused lots of controversies over efficiency and fairness of the governance of the relevant environmental risks and triggered complicated preemption issues between federal, state, and local governments. Courts are hearing various cases over conflicts of authority between different layers of governments, and the legality of the U.S. government’s permits of shale gas export that may increase greenhouse gas emissions. Other countries with large shale gas reserves, such as Australia, France and the U.K., are also plunging into similar debates. Those disputes and controversies unveil a myriad of environmental concerns and political conflicts that were hidden behind rosy prospects for shale gas around the globe. While natural gas is undeniably a valuable transitional resource from carbon to renewable energy, it might, in fact, be no more nature-friendly or sustainable than coal. This suggests that systematic efforts to develop and promote renewable energy sources and to enhance the efficiency of energy production and consumption should go on its way, uninterrupted by the transitional use of natural gas as a “bridge fuel.”
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