맞춤형 대북 농업협력사업 추진방안 연구 : 효과성과 지속성 증진을 위한 대안

Abstract

지난 5년간 남북관계는 경색 국면이 지속되었다. 그로 인해 남북한 간의 사회·문화·경제 부문의 거의 모든 교류와 협력은 중단되었다. 그 기간 동안 북한 주민은 식량 부족과 경제난 심화에 고난을 겪었다. 대북 교역과 경협사업을 추진하던 남한의 기업들도 어려움을 호소했다. 국내의 대북지원 단체와 기관들도 날로 악화되는 북한의 인도적 상황을 염려하며 남북관계 개선을 촉구했다. 그런 여망에 힘입어 최근 들어 여러 방면에서 남북관계가 변화할 조짐을 보이고 있다.

그러한 변화 상황에 대비해 남북 농업교류협력을 새롭게 준비할 필요가 있다. 남북한 간의 농업교류협력은 1990년대 말부터 본격적으로 시작돼 2007년까지 활발히 추진되었다. 특히 민간지원단체와 지방자치단체가 주도적으로 추진한 대북 농업교류협력사업은 북한의 해당 지역 주민에 대한 인도적 지원, 농업생산 증대, 농자재 및 생산기술 지원 등 많은 부분에서 성과를 거두었다.

그러나 개선해야 할 과제도 여전히 존재한다. 농업협력사업 자체의 효과성과 그 효과의 지속가능성 측면에서의 과제이다. 이제부터는 대북 농업개발협력사업의 효과와 지속성을 높이기 위해 ‘맞춤형 농업협력사업’을 발굴하여 효과적으로 추진할 필요가 있다. 북한의 상황에 적합한 적정협력, 북한의 농업협력 수요에 맞춘 협력분야의 선택, 북한의 경제개발 전략에 조응하는 선도적 농업협력사업의 추진이 필요한 것이다.

Background of Research The inter-Korean agricultural cooperation executed in the 2000s is made up of three types of cooperation as follows: humanitarian aid by the government and civil society, development assistance by local government and civil society, and economic cooperation by enterprises. A number of accomplishments were made through the cooperation. First, the North Koreans' humanitarian situation has partially improved through food assistance. Second, agricultural productivity has increased through agricultural inputs such as fertilizer and technological assistance. Third, the South and the North learned lessons that strategic agricultural cooperation is required to improve the effectiveness of cooperation. However, several reflective points can be made to improve the effectiveness of inter-Korean agricultural cooperation.

Method of Research We failed to set clear goals and targets for the cooperation. As a result, we could not develop methods to strategically aid when executing the programs. We did not reflect the changes in the situation coming from the special relationship between the two Koreas and the circumstances surrounding the Korean peninsula to our programs. We did not prepare alternatives for unforeseen situations. We did not sufficiently consider internal conflict among our people. We have to overcome the past failure when we start new programs. The goal of this study is to find and offer customized agricultural cooperation programs to North Korea.

Research Results and Implications Implementation of the effectiveness agenda regarding inter-Korean agricultural cooperation follows, first, focusing on aid effectiveness and sustainability of outcome across all areas of the aid program and, second, using the customized cooperation approach to increase aid effectiveness of agricultural cooperation. We have identified three types of cafeteria cooperation programs suitable for North Korea. The first is the most frequent type of cooperation which reflects current economic situation and resource endowment of North Korea. The second type is an ownership induced cooperation which supports North Korea's agricultural polices and needs. The third type is a leading cooperation which induces opening doors and economic reform in North Korea. This study suggests 8 programs, such as rural development behind special zones, and 17 projects such as the expansion of potato production for agricultural cooperation with North Korea. This study suggests four effectiveness principles for the customized agricultural cooperation. The most important is to set clear goals and to approach with a strategy. Second, a sustainable outcome is a key component of effective aid. Third, strengthening the capacity is the core idea for both parties participating in the cooperation. Fourth, good governance is strongly emphasized to achieve effective cooperation. Fifth, expanding partnerships among the government, aid providers and enterprises. Researchers: Young-Hoon Kim, Min-Ji Nam and Tae-Jin Kwon Research Period: 2012. 1～2012. 11 E-mail address: kyhoon@krei.re.kr