농업구조정책의 평가와 방향정립에 관한 연구 : 쌀 농업을 중심으로

Abstract

농업구조정책이란 농업경영구조를 개선함으로써 농업생산성을 높이려는 정책을 말한다. 우리의 농업경영구조는 영세분산 농지에서 소규모로 농업을 경영하는 이른바 ‘영세소농구조’로 집약된다. 농업구조정책의 목표는 도·농간 소득균형을 이룰 수 있는 농업경영구조를 실현하는 것이다. 유럽과 일본에서는 1960년대 초부터 농업구조정책을 실시하였다. 우리나라 또한 1962년에 처음 도입하였으며 1992년부터 투융자계획의 뒷받침을 받아 본격적으로 시행하였다. 현행 농업구조정책은 고령·영세농을 퇴출하고 그들의 농지를 대농층에 집적하여 영농규모를 확대하도록 하는 농지유동화 정책이 중심이다. 이를 위해 농어촌소득원 개발, 영농규모화 사업, 농업생산기반 정비, 농업기계화와 시설 현대화, 기술 혁신, 농업인력 및 경영체 육성 등의 정책이 시행되었다. 앞으로도 농업구조정책이 필요한지, 어떤 방향의 정책수단을 선택해야 할 것인지 재검토할 시점이다. 이 연구는 다음과 같이 구성된다. 제1장 서론, 제2장 농업구조 및 농업구조정책의 개념과 범위, 제3장 농업구조정책의 경과와 실적, 제4장 농업구조정책의 성과 평가, 제5장 외국의 농업구조정책 동향, 제6장 농업구조정책의 전환 방향과 정책체계, 제7장 요약 및 결론이다.

This study seeks to find a new direction of agricultural structure policies focused on rice farming structure. Specific focuses of this study are as the followings. First, a necessity of directional transition of the current agricultural structure policies is reviewed. Second, a feasibility of the new direction of the agricultural structure policies is considered. Last, a new direction and institutional instruments of the agricultural structure policies are provided. I reviewed a necessity of directional transition of the current agricultural structure policies through three perspectives. First, the current agricultural structure policies encourage each farmer to increase acreages leading to high productivities of inputs(labor and land), a growth of large-size farms(more than 3 ha), and a spread of mechanization-usage in farming. However, it did not accomplish fundamental policy goals. An increase of farming scale of individual farmers does not necessarily conclude an increase of overall farming scale. Issues with respect to an insecurity of farming successor and an inefficient application of inputs such as labors, machines, and land are another problems. An effort to increase income accrued in non-agriculture and by-work is more efficient than an increase of agricultural income through an expansion of farming size. Second, a development of foreign agricultural structure policies shows a transition from farming-size increase of family farmers to juridical organization of farmers. It also shows a political transition from agricultural productivity increase to multi-functionalities of agriculture regarding to regions, resources, environments, and food safeties. Third, based on a change of the current domestic and foreign agricultural situation, there are several issues to be clarified. The issues include (1) re-organization of agricultural production infrastructure to achieve food security, (2) an income security of crop and livestock feed farming, (3) an organization of region-unit farming business to aim an enhancement of both price and quality competitiveness, (4) an usage-extension of eco-friendly agriculture and new recycled energy supporting a prevention of natural disaster, (5) a support for an entry to agriculture and an agricultural corporation business facing with both an reduction of young labor and an increase of aged labor in rural areas, and (6) a complication and a multiplication of agribusiness to achieve a security of rice farmers income. Next, I performed a case-study of organization-businesses of rural communities of Korea, Japan, and China in order to find feasibilities of a new direction of agricultural structure policies. Organization-businesses of rural communities at regional level cannot replace family farms, but they complement family farms. Furthermore, they are effective with respect to a group work, a group-wise usage of agricultural machines and facilities, a group-wise marketing, and an extension of a farming scale. Last, I proposed a new direction of the agricultural structure policies as the followings: (1) a transition into an institutionalization and organization of farm households from policies focused on an increase of an individual farm-size, (2) an increase of organization-businesses of rural communities at regional level, (3) a conversion from an enlargement of agricultural income by a large farm-size into a focus on non-agricultural income increase by an accomplishment of a complex and multiple agricultural business.

Researchers: Seok-Doo Park, Jeong-Ho Kim, Chang-Ho Kim Research Period: 2011.1~2011.10 E-mail Address: sdpark@krei.re.kr