환경서비스를 고려한 효율적 농지자원 관리 방안

Abstract

농지의 집약적 사용은 여러 가지 환경문제를 일으킬 수 있다. 특히 한국 농지이용과 관련하여 양분과잉, 토양침식, 화학비료 및 농약 사용의 저감 완화, 가축두수 관리의 어려움 등이 국내외적으로 지적되고 있다. 이런 점에서 기존의 우량 농지 보전, 임대차 관리, 농지은행사업 개편과 같이 양적 관리 위주의 농지이용은 환경서비스 제공 측면에서는 한계가 있다고 볼 수 있다.

본 연구는 동인-압력-상태-영향-대응의 인과관계 틀을 활용하여 현재 국내 농지이용에서 환경 압력을 발생하는 부분 및 요인을 분석하고, 이에 대한 상태의 변화와 정책적 대응 방향에 대해서 논의하였다. 환경서비스를 고려한 농지이용 제도는 농지의 양적 관리와 질적 관리 측면에서 분리하여 접근 가능하며, 기존의 양적 보전 규제의 틀을 탈피할 필요가 있다. 또한 최근 논의되는 공익형 직불제와 연계한 교차준수, 농업환경보전프로그램과 같은 농업환경지불 정책과의 상호보완적 활용이 필요하다.

본고에서는 한계지의 휴경지 전환과 전환된 휴경지의 적정관리를 농지의 양적 관리로 제안하였으며, 기존 ‘농지법’의 개정을 통하여 농지의 생산성 개념을 확장할 것을 제안하였다. 그리고 농업보호구역 외에 농업환경보호구역의 신설을 제안하여 우량농지 관리가 아닌 환경적으로 우수한 농지 관리의 필요성을 제시하였다.

Research Background Recently, the agricultural administration has emerged a need for a paradigm shift in the agricultural vision, as shown in the 2018 Agricultural Reform T/F. The Ministry of Agriculture, Food and Rural Affairs also plans to develop agricultural policies that focus on enhancing the public good functions of agriculture and managing the agricultural environment, including the reform of Direct Payment Reform, Safety of Agricultural Production and Environment Management. The purpose of this study was to suggest ways to improve farmland resource management policies to provide desirable 'environmental services' in line with these flows.

Research Methodology 'Environmental Services' to be addressed in this study can be defined as the intersection of the provision of public good functions and ecosystem services among the pluralistic functions (external effects) of agriculture. In order to analyze the causal relationship between environmental services and farmland resource management, DAPSI(W)R(M) (Drivers, Activities, Pressure, State of the environment, Impact on the environment and human well-being, Response by measures) and the concept of bio-economic model and agricultural-environmental indicators reflecting these causal relationships was presented.

Findings In terms of food security, quantitative farmland management has been mainly used. Also, as the food self-sufficiency and the size of arable land have a positive correlation, that quantitative management of farmland is essential.

Domestic environmental pressures related to farmland use have changed as follows: - Pesticide safety management and use reduction management have been carried out, and the use of pesticides has been reduced over the long term. However, pesticide use is still high compared to the OECD average. - The use of chemical fertilizers per area of ​​fertilizers has been decreasing for a long time, but the decrease has recently eased. Total sales of organic fertilizers declined but government support increased. - The heads of domestic beef increased steadily, and cows decreased slightly. Pigs and chickens also increased in the long term with total manure production increased. - Agricultural ammonia emissions account for about 79% of domestic ammonia emissions. In 2015, emissions from the average cattle and pigs increased by 125.03% and 71.55%, respectively, compared to 2001. - As for greenhouse gas (GHG) emissions in agriculture, emissions from intestinal fermentation and livestock manure treatment are on the rise due to increased the number of livestock. On the other hand, a decrease in paddy area is associated with a decrease in methane emissions from agricultural lands. However, the intensity of greenhouse gas emissions, which is calculated by dividing absolute emissions by the regional gross domestic product, may differ by the municipality, so it is necessary to pay attention to the interpretation of the indicators.

The domestic environmental conditions related to farmland use are as follows: - Korea has a very high level of nutrient surplus based on the OECD nutrient balance. - The high useful phosphorus in rice fields and fields suggests the problem of salt accumulation, and the density of field soil is high in physical properties, so management for upland is necessary. - In the case of soil erosion, it is affected by domestic topography with a lot of slopes, and wind eating occurs mainly. Upland soil loss problem is relatively severe.

Appropriate responses to agricultural activities, environmental pressures. and environmental conditions help to make efficient use of farmland resources. However, changes in the farmland system, centered on the Farmland Act, can be summarized by establishing ownership based on the Land to the Tillers Principle, regulating the quantitative conservation of farmland size, securing productive farmland, and designating a promotion area focused on improving agricultural productivity.

Looking at the budget structure of the Ministry of Agriculture, Food, and Rural Affairs in 2019, the qualitative management of farmland use is minimal.

The farmland use system considering environmental services can be accessed in terms of quantitative and qualitative management of farmland. It can establish the direction of the use of decoupled support measures with cross-compliance and agricultural environment payment policies. - Quantitative management of farmland secures the area that can be used as farmland during intensive farming and food security crises through the transition of marginal land to fallow land and proper management of converted fallow land. - In the Farmland Law, the productivity of farmland should be extended to value-related productivity. Improvement and conservation of soil and establishment of agricultural, environmental protection zone were suggested. -Qualitative management of farmland use can be classified into cross-compliance and agricultural environment payment policy based on the reference level. - Since the domestic agricultural policy is mostly produced by coupled support policies, it will be necessary to switch the agricultural policy from coupling to decoupling. Cross-compliance and agricultural environmental payment policies can enhance the supply of environmental services complementary to decoupled policies.

Qualitative causality of DAPSI(W)R(M) needs to be transformed into quantitative causality through models such as bio-economics or agricultural environment indicators. This quantification can be used as a basis for analyzing the factors of farmers' acceptance of countermeasures and for measuring changes in farmers' acceptance, income, and welfare effects for scenarios. However, there are still limitations in the available statistics and indicators in Korea, which is necessary for continuous R & D and interdisciplinary research in the future.

Researchers: Lim Youngah, Choe Jinyong Research Period: 2019. 1. ∼ 2019. 10. E-mail address: limy@krei.r.kr