농어업인삶의질향상계획심층평가: 도시민 및 귀농인력활용 강화정책/농어촌 취약계층 복지지원정책

Abstract

고령화와 인구 감소, 취약한 소득 기반으로 인한 농어촌의 활력 저하 문제에 대응하고자 2004년 「농어업인 삶의 질 향상 및 농어촌지역 개발촉진에 관한 특별법」이 도입되어 시행되어온 지 9년째로 접어들고 있다. 현재는 2009년도에 수립한 제2차 농어업인 삶의 질 향상 기본계획(2010~2014)에 입각하여 시행계획이 수립되어 여러 부처마다 관련 정책을 추진하고 있다.

농어촌의 삶의 질 향상정책은 십여 개의 중앙 부처가 참여하는 범정부 차원의 과제인 만큼 그 정책 성과와 한계를 체계적으로 파악하여 향후 정책 개선 방안을 도출하는 작업은 중요할 수밖에 없다. 그러나 과거에는 삶의 질 향상계획에 포함된 사업들에 대해 단편적으로 평가 작업이 이루어진 경우가 많았다. 그 까닭에 농어촌 주민의 삶의 질이 실제로 얼마나 향상되었는지 효과적으로 보여주지는 못했다는 지적이 제기되어 왔다.

이런 점에서 2011년도부터 삶의 질 향상계획에 대한 심층평가를 실시하게 된 데 대해 적지 않은 의미를 부여할 수 있다. 심층평가 작업은 관련성이 높은 복수의 사업들로 구성된 정책군을 대상으로 진행한다는 특징을 갖는다. 이전에는 평가가 대체로 개별 사업을 단위로 이루어져서 실질적인 정책 평가로서 기능하지 못하는 한계가 있었는데, 이를 극복할 수 있는 계기가 마련된 것이다. 농어촌 주민의 삶의 질 개선 성과를 보다 포괄적이고 종합적으로 살펴봄으로써 정책의 과학화에도 기여할 수 있으리라 기대된다.

이 보고서는 2011년도의 심층평가 대상 과제인 ‘도시민 및 귀농인력 활용 강화’ 및 ‘농어촌 취약계층 복지 지원’ 정책에 대한 작업 결과를 담고 있다.

The purpose of this research is to evaluate policy groups included in Improvement of Quality of Life for Farmers and Fishermen and Rural Development Scheme. A policy group means a series of programmes or projects concerning a particular objective(There are 22 policy groups about 7 subjects in the scheme). For the year 2011, we evaluated two policy groups; ① Making better use of urbanites and people moving into rural areas, ② Supporting social welfare of the vulnerable in rural areas. The evaluation follows the phases of 'policy formation' ­ 'policy execution' - 'policy outcome'. From the result of evaluation, we suggest improvement of concerning policies. This research largely consists of two parts. Part 1 is the evaluation part of 'Making better use of urbanites and people moving into rural areas', part 2 is the evaluation part of 'Supporting social welfare of the vulnerable in rural areas'. In order to evaluate the concerning policies, we set up the evaluation framework and the major considerations of each evaluation phase are as follows.

·Policy formation: appropriacy of the objective of the policy group, appropriacy of policy means to achieve the objective ·Policy execution: implementation system of the concerning policy group, efficiency of the executive process ·Policy outcome: result, outcome and ripple effect of the policy group

We used research methods such as literature reviews, statistical analyses about concerning programmes/projects and case studies of three municipalities(Geumsan-gun, Gochang-gun and Bongwha-gun) including residents' opinion surveys. In relation to part 1, even though we can find some possibilities of using urbanites and people moving into rural areas in vitalizing rural regions, it is quite a premature stage of the policy. The policy group is lacking sufficient concerning programmes and projects. Present policy support is considerably limited to the people who come to rural areas for agriculture. The implementation system is government-oriented and private sector does not have sufficient roll in the policy. From the result, we suggest that the policy direction be more headed to extending urbanites and new comers's role in their newly settled region from simply attracting them to rural areas. For this, it is required to draw up support measures to help urbanites and new comers in rural areas to settle down in and to make full use of their capacities in developing their rural region. In relation to part 2, as the number of the vulnerable(such as elderly people, multicultural families, etc.) in rural areas is continuously increasing, the social welfare programmes in Improvement of Quality of Life for Farmers and Fishermen and Rural Development Scheme are showing a certain policy outcomes. But delivery system of social welfare in rural areas is still inadequate. Moreover, social service for rural vulnerable groups in policy blind spot such as grandparents and grandchildren families and the disabled is far more deficient. As a result of the research, we suggested that the policy direction move from 'dispensational' perspective to 'productive and participational' perspective and take integrated approach to guarantee that social service is effectively and efficiently delivered to the wide range of rural vulnerable groups.

Researchers: Joo-In Seong, Dae-Shik Park, Ma Sang-Jin and In-Hye Kwon Research Period: 2011.3~2011.12 E-mail Address: jiseong@krei.re.kr