국가 푸드플랜 수립 방안 연구

Abstract

경제사회적 여건 및 과학기술 등이 급속하게 변화하면서 푸드시스템이 복잡해졌으며, 생산자, 소비자는 물론 다양한 이해관계자들이 결부되면서 농식품 관련 이슈·관심이 다양해지고 상호연관성과 파급 영향도 커지게 되었다. 그러나 기존의 농식품 정책은 생산·공급을 중심으로 추진되면서 농식품 관련 이슈·문제에 대한 효과적 대응에 한계가 있었다. 또한 최근 성장 중심주의 정책의 한계를 자각하면서 분배·복지적 관점을 반영하고, 경제·사회·환경의 조화를 통해 개인, 푸드시스템 또는 국가 전반의 지속가능성을 확보하고자 하는 정책적 노력이 농식품 부문에도 이어지고 있다.

전 세계적으로 푸드시스템 전반에 걸친 다양한 농식품 관련한 이슈·문제를 부문별·관련 주체별 정책 연계·협력을 통해 체계적으로 대응하고, 분배·복지적 관점의 정책적 실현과 지속가능성 확보를 위해 통합적 관점의 국가 단위 농식품 정책계획인 국가 푸드플랜을 수립·추진하고자 하는 움직임이 시도되고 있다. 우리나라의 경우 2017년 새 정부 수립과 함께 농식품 관련한 국가 차원의 종합 전략이 필요하다는 인식을 바탕으로, 농림축산식품부를 중심으로 한 ‘국가 단위 푸드플랜 수립’이 국정과제로 제시되었다.

그러나 그간 주로 내용적 관점에서 국가 푸드플랜 수립 방향을 도출하는 연구가 주를 이루었다. 이 연구는 농식품 부문 정책 대응계획인 국가 푸드플랜이 수립 과정에서 고려해야 할 방안들을 구조, 체계, 절차적 관점에서 제시하고, 수립 이후 실효성을 확보하기 위해 요구되는 과제를 도출하는 것을 목적으로 추진되었다.

Background & Purpose of Research In order to address various agrifood related problems arising in the entire food system, policy initiatives to seek policy liaison and cooperation among related parties and stakeholders, expand the public intervention of the government from the viewpoint of distribution and welfares, and ensure the sustainability of individuals and food systems in general and that of the state through economic, social and environmental balance and harmony, have been implemented through the establishment and promotion of national food plans around the world. Based on the recognition of the need for a comprehensive national food strategy along with the establishment of a new government, the Korean government has discussed including the establishment of “a national food plan” in national tasks, with the Ministry of Agriculture, Food and Rural Affairs at its center. Until recently, however, the discussion on the national food plan has been focused mainly on its contents. There has not been any specific discussion on how to establish a national food plan, which will serve as a strategic framework in the current policy environment where a number of central administrative agencies are segmentally implementing policies on agrifood. In addition, no proper laws, organizations, or related procedures have been prepared to ensure systematic establishment and continuous implementation of a national food plan. This study examines the current state and related concepts of national food plans of Korea and of foreign countries, the existing policies on agrifood policies, and the current condition of the government’s implementation of policy plans for the agrifood sector, so as to propose national food plans in terms of plan structure, procedure and system which need to be taken into consideration when establishing a national food plan for the agrifood sector. Also, the purpose of this research is to identify tasks required to be carried out in order to secure the effectiveness of the national food plans once they are established.

Research Methods A survey on the current status of domestic food plans and the status of implementation of government policies on the agrifood sector and related policy plans was conducted through data collection and review, survey through visitation to related institutions and agencies, and interviews with policymakers. Experts were commissioned to write articles on reviewing the laws and regulations related to agrifood products and draw implications for preparation of legal foundations for establishing and implementing national food plans. Related literature and data were collected and reviewed for the survey on actual condition of national food plans of major foreign countries, and experts were commissioned to write articles for more specific understanding of their national food plans. A questionnaire survey was conducted on 600 consumers and 150 producers in the agricultural/livestock industry in order to ensure the systematic establishment and effectiveness of national food plans. Another questionnaire survey was conducted on 84 experts and in-depth interviews with local government policymakers were also conducted.

Research Results and Implications A 10-year cycle is appropriate for the national food plan, for which supplementary plans should reflect the results of assessment and evaluation in the 5th year after the master plan is established. Implementation plans need to be established for each year. In order to establish the national food plan, it is necessary to take into consideration systematic and procedural maintenance and step-by-step expansion of the contents and scope of the plan. In that the national food plan needs to encompass various policy areas throughout the entire steps of the food system, it is necessary to establish the relationship among plans considering the compatibility of policies, and present the mid- and long-term direction and principles for the policies related to other governmental plans and the local governments’ food plans. It is necessary to prepare a legal ground to establish the national food plan. In the process of establishing the plan, procedural participation of the stakeholders in each stage should be ensured and their opinions should be collected and reflected. It is necessary to introduce a multi-level discussion structure, to normalize channels and procedures for participating in publicizing the issues related to the national food plan. In order to ensure the effectiveness of the national food plan, it is necessary to establish governance that enables liaison and cooperation among ministries and agencies. Furthermore, a support organization needs to be established. Also, securing the effectiveness of the national food plan requires to regularly check and evaluate the process and performance of related policies. In order to promote the effective implementation of the national food plan and enhance its overall performance, the vision and goals of the plan need to be implemented stably and continuously in the regions where the government policies are actually implemented, through liaison with them. To this end, the basic vision and goals of the national food plan should be reflected in the local food plans depending on the regional conditions, and the supports from legal, procedural, or planning aspects should be provided as well as other incentives for participation like budget support. Acknowledgement and understanding of the food plan by stakeholders such as government policymakers, private organizations, and the general public should precede continuous and active implementation of the national food plan.

Researchers: Hwang Yunjae, Kim Kyungphil, Choi Jaehyun Research period: 2018. 1. ~ 2018. 10. E-mail address: yjhwang@krei.re.kr