주요 국가의 다원적 기능 관련 법·제도 현황 분석 및 국내 활용 방안 연구

Abstract

인구 감소, 고령화, 낮은 농가소득, 농촌 삶의 질 등 농업·농촌 부문이 안고 있는 문제를 해결하고자 다양한 시도가 이루어져 왔다. 경쟁력 강화 위주의 기존 농정 기조를 비판적으로 되돌아보는 한편, 농업·농촌에 대한 사회적 기대에 부응해야 한다는 목소리가 최근 힘을 얻고 있다. 요컨대 지속가능성이 다시 화두가 되고, 농업·농촌의 다원적 기능이 다시 주목받고 있다. 개헌을 추진할 때 농업·농촌의 다원적 기능과 가치를 담아내야 한다는 주장도 이러한 맥락에서 이해할 수 있다. 향후 농업·농촌의 가치와 농정 방향을 실천할 수 있는 토대를 마련한다는 차원에서 농업·농촌의 다원적 기능과 관련된 법과 제도를 정비하여야 한다. 이 연구에서는 주요 국가에서 다원적 기능을 법·제도에 담아낸 과정과 방식을 살펴보고, 한국 법·제도 실태를 ｢대한민국헌법｣(이하 ｢헌법｣)과 ｢농업·농촌 및 식품산업 기본법｣을 중심으로 분석하였다. 분석 결과를 토대로 ｢헌법｣ 제121조와 제123조, 그리고 ｢농업·농촌 및 식품산업 기본법｣을 어떠한 식으로 개정하는 것이 바람직한지에 대한 논의를 전개하였다. 이러한 문제는 전반적인 법·제도 정비 및 개정 과정에서 이루어져야 하므로, 향후 과제를 함께 제시하였다.

This study summarizes the concept of multifunctionality of agriculture and rural areas (hereinafter “multifunctionality”) and relevant discussion, and examines how multifunctionality is defined in the Constitution and/or Basic Law in major countries. We derive the necessity and rationale underpinning that the implications derived from this should be taken into account when amendment is to be made in the Korean Constitution and the Framework Act on Agriculture, Rural Community, and Food Industry (hereinafter referred to as the “Framework Act”).The concept of multifunctionality and the process of reflecting it in foreign countries in law and system can shed light on what is to be considered in the Korean context as follows. First, food security, environmental preservation, and rural vitality enhancement should be included as common components of multifunctionality, but it is necessary to specify the scope and prioritize them in consideration of the Korean context. Second, in terms of the paradigm shift in agricultural policy, multifunctionality can be positioned as one of the central goals of the agricultural regime. Third, we must look back at the limitations of past agricultural policies and find answers to the question of why agriculture is necessary (for the society as a whole). To that end, the multifunctionality can be a clue. Fourth, if the policy orientation and direction should be changed and multifunctionality may play a crucial role, the Korean Government should clarify the definition and category of the multifunctionality and operate the policy in such a direction as to achieve it. If policy ideals and goals are changed, the policy implementation processes must be changed, so we must lay the foundations of law and system.We examine whether multifunctionality conforms to the constitutional values ​​and whether the national obligation arises to have multifunctionality further provided. The related discussion is concentrated on Articles 123 and 121 of the Constitution. Based on the Social (Welfare) State Principle, the meaning of Article 119 and the following economic clause was grasped. Given the structural policy goals set forth in the economic clause, it was judged that the multifunctionality corresponds to the fundamental value of the Social (Welfare) State Principle if it is defined as an ideology, an orientation point, or a responsibility to be observed by a state.We understood and approached it as one of the means by which the value of multifunctionality and the “land-to-tiller” principle prescribed in Article 121 of the Constitution may be realized. Since the multifunctionality conforms to the Constitutional values, it is also appropriate to maintain the “land-to-tiller” principle, which is one of the presuppositions of manifesting pluralistic functions.This study made suggestions regarding the directions and issues to be considered when establishing or revising the multifunctionality-related clauses of agriculture and rural areas in the Constitution and the Framework Act.The Constitution should reflect the value and direction of the multifunctionality as follows. The article defines the obligations of the government, producers, and consumers, while clarifying the relationship between pluralistic values ​​and the Social Welfare State Principle. We will consider ways to implement national obligations and provide sources of funding so that they can manifest multifunctional functions.When revising the Framework Act, it is needed to reflect the values ​​and ideals presented in the Constitution and stipulate them as basic principles of agriculture. Adjusting the multifunctionality to the Korean context and making it legally binding and effective is of huge importance. The tasks are as follows. First, we clearly set the concept and scope of the multifunctionality. Second, it is necessary to organize multifunctional provisions in a separate section within the Framework Act. Third, effectiveness must be ensured to enable the provision of multiple functions. Regulations on responsibilities, establishment of a relevant Framework Plan, and expansion of the system can be included. Along with the above tasks, the overall Korean agricultural law system should be improved.Researchers: Rhew Chanhee, Lee Myeongki, Nam Sookkyeong, Lim Jeongbin, Sim Yeongkyu, and Kim SangtaeResearch period: 2017. 4. ~ 2017. 6.E-mail address: chrhew@krei.re.kr