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2025 Vol.26, Issue 8
A Framework for Improving Outdoor Earthquake Shelter Operations Considering Local Characteristics: The Case of Seoul

지역 특성을 고려한 지진 옥외대피장소 운영 방안: 서울시 사례를 중심으로

Suwon Son1
,
Jaekwang Ahn2
,
Woohyun Baek3
,
Jinkwon Yoo4
,
Kyungho Yoon5
,
Youngsuk Lee6*
손 수원1
,
안 재광2
,
백 우현3
,
유 진권4
,
윤 경호5
,
이 영석6*
1Assistant Professor, Department of Architectural and Civil Engineering, Kyungil University
2Assistant Professor, Department of Fire and Emergency Management, Kangwon National University
3General Manager, Connectix Co., Ltd.
4Research Fellow, The Seoul Institute
5Officer, Disaster&Safety Policy Division, Seoul Metropolitan Government
6Researcher, The Seoul Institute
*Corresponding Author
1 August 2025. pp. 5-12
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Abstract

In metropolitan areas, the scale of damage caused by large earthquakes is closely linked to the availability and functionality of on-site evacuation infrastructure. However, the effectiveness of earthquake response is determined not by individuals but by government-led systems defined by laws and institutional guidelines. Following the Gyeongju earthquake on September 12, 2016, South Korea established a nationwide system for outdoor evacuation sites, administered by the Ministry of the Interior and Safety. While most local governments appear to meet the minimum quantitative standards, their actual operational effectiveness remains questionable. Urban districts experience significant variations in population density throughout the day due to mixed-use zones of residential and commercial functions. As such, current evacuation site designations may not align with real-time evacuation demand. Moreover, the designated locations often lack comprehensive evaluations of secondary or compound hazards such as falling debris, ground instability, or liquefaction risk. This study analyzes the effectiveness of Seoul’s current outdoor evacuation site system by incorporating factors such as daily population movement, availability of large-scale open spaces, surrounding land use, and geotechnical hazards. The findings identify institutional limitations in current spatial planning and emphasize the need for location-specific management criteria. Based on this analysis, the study proposes policy recommendations aimed at establishing more resilient, context-sensitive evacuation systems for earthquake-prone urban environments.

Keywords
Earthquake shelter
Outdoor evacuation site
Daytime population
Geotechnical hazards
Disaster-resilient infrastructure
Urban disaster planning

도심지에서 대규모 지진이 발생할 경우 피해 수준은 현장의 대응 인프라 확보 수준에 따라 크게 달라질 수 있다. 그러나 지진에 대한 대응력은 개인이 아닌 정부나 국가 단위에서 관리되며, 관련 법령과 지침에 따라 구조적으로 규정된다. 2016년 9월 12일 발생한 경주 지진 이후, 지진방재 종합대책의 일환으로 수립된 지진 옥외대피소 체계는 행정안전부가 총괄하며, 대부분의 지자체는 정량적 기준을 충족한 것으로 보인다. 그러나 도심 지역은 상업지와 주거지의 용도 혼재로 인해 인구 밀도가 시간대에 따라 크게 변동되며, 이에 따라 옥외대피소 운영의 실효성을 재검토할 필요가 있다. 또한, 현재 지정된 대피 장소들이 실제로 지진에 따른 2차적 또는 복합적 피해(예: 낙하물, 지반 붕괴, 액상화 등)에 안전한지에 대한 종합적인 점검 역시 미흡한 실정이다. 이에 본 연구는 서울시를 사례로 하여 인구 이동, 대규모 공원 유무, 주변 환경, 지반 위험성 등을 종합적으로 고려한 새로운 대피소 지정 및 운영의 필요성을 분석하였다. 연구 결과는 지진 대피 인프라의 공간적·지반공학적 복원력을 향상시키기 위한 제도적 보완점과, 도심지 특성을 반영한 효율적 대피계획 수립의 필요성을 도출하였다. 이를 바탕으로 향후 보다 실효성 있고 상황 적응적인 대피 체계 마련을 위한 정책적 제언을 제시하였다.

키워드
지진 대피공간
옥외 대피소
생활인구
지반환경
공간분석
도시 재난 계획
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Information
  • Publisher :Korean Geo-Environmental Society
  • Publisher(Ko) :한국지반환경공학회
  • Journal Title :Journal of the Korean Geo-Environmental Society
  • Journal Title(Ko) :한국지반환경공학회 논문집
  • Volume : 26
  • No :8
  • Pages :5-12
  • Received Date : 2025-05-14
  • Revised Date : 2025-05-26
  • Accepted Date : 2025-07-01
  • DOI :https://doi.org/10.14481/jkges.2025.26.8.5
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