보고서 정보
주관연구기관 |
한국농촌경제연구원 Korea Rural Economic Institute |
보고서유형 | 최종보고서 |
발행국가 | 대한민국 |
언어 |
한국어
|
발행년월 | 2009-12 |
주관부처 |
농림축산식품부 Ministry of Agriculture, Food and Rural Affairs(MAFRA) |
등록번호 |
TRKO201600013984 |
DB 구축일자 |
2016-12-17
|
초록
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◦ 이 연구는 주요 품목을 대상으로 친환경농산물 인증 유형별 생산비 및 소득격차의 체계적인 분석을 기초로 친환경농업직불제의 개선방안을 도출하고, 다양한 환경기준 준수 사례를 분석하고, 신규 환경적 상호준수(ECC) 정책 도입방안을 마련하기 위해 수행되었음.
◦ 국립농산물품질관리원에서 추천한 농가를 대상으로 인증연차, 지역별 분포 등을 고려하여 쌀 77농가, 채소류 64농가(감자 21, 상추 20, 토마토 23), 과일류 44농가(사과 21, 포도 23), 임산물 48농가(밤 22, 표고 26) 등 총 233농가를 대상으
◦ 이 연구는 주요 품목을 대상으로 친환경농산물 인증 유형별 생산비 및 소득격차의 체계적인 분석을 기초로 친환경농업직불제의 개선방안을 도출하고, 다양한 환경기준 준수 사례를 분석하고, 신규 환경적 상호준수(ECC) 정책 도입방안을 마련하기 위해 수행되었음.
◦ 국립농산물품질관리원에서 추천한 농가를 대상으로 인증연차, 지역별 분포 등을 고려하여 쌀 77농가, 채소류 64농가(감자 21, 상추 20, 토마토 23), 과일류 44농가(사과 21, 포도 23), 임산물 48농가(밤 22, 표고 26) 등 총 233농가를 대상으로 심층면담에 의한 생산비 조사를 실시함.
◦ 친환경 벼 재배농가의 10a당 생산비는 관행농가의 629천원에 비해 1.4~1.5배 정도이며 무농약 861천원, 유기 967천원으로 조사됨. 한편 10a당 소득은 관행농가의 467천원을 기준으로 무농약 81.8%, 유기 87.2% 수준으로 조사됨. 유기재배의 생산비 차이는 무농약보다 높았으나, 조수익도 컸기 때문에 소득이 더 높았음.
◦ 친환경 벼 재배농가와 관행농가와의 연차별 소득차이를 보면 관행농가의 소득이 10a당 467천원일 경우 친환경재배 1년차 262천원, 2년차 299천원, 3년차 345천원, 4년차 448천으로 해가 갈수록 소득격차가 감소하며, 5년차의 소득은 512천원으로 관행농가보다 9.6% 높았음.
◦ 친환경 채소류 재배농가의 10a당 소득은 감자의 경우 관행농가의 952천원을 기준으로 무농약 92.4%, 유기 91.3%, 상추의 경우 관행농가의 4,036천원을 기준으로 무농약 92.8%, 유기 90.0%, 토마토의 경우 관행농가의 5,628천원을 기준으로 무농약 98.1%, 유기 97.6% 수준으로 조사되어 관행에서 무농약, 유기재배로 갈수록 소득이 낮은 것으로 분석됨.
◦ 친환경 과일류 재배농가의 10a당 소득은 사과의 경우 관행농가의 3,098천원을 기준으로 무농약 96.4%, 유기 95.9%, 포도의 경우 관행농가의 3,350천원을 기준으로 무농약 93.4%, 유기 88.8%로 관행에서 무농약, 유기재배로 갈수록 생산비는 높고, 소득은 낮은 것으로 분석됨.
◦ 친환경 임산물 농가의 소득은 밤의 경우 관행농가의 469천원을 기준으로 무농약 91.3%, 유기 75.3%, 표고버섯의 경우 관행농가의 951천원을 기준으로 무농약 90.0%로 조사되어 관행에서 무농약, 유기재배로 갈수록 소득이 낮아지는 것으로 분석됨.
◦ 주요국의 유기농 직불금 단가 산정 방법을 보면, 체코의 경우 연차별 총수익과 추가적인 비용을 고려하고 있고, 독일의 경우 관행농가와 유기농가의 총수익과 요소들의 변화에 기초를 두고 있음. 직불제도를 보면 독일, 스코틀랜드, 오스트리아 등의 국가에서 전환직불금과 유지직불금을 함께 지원하고, 독일의 지방정부, 스코틀랜드, 프랑스는 차등적 전환직불금 제도를 가지고 있었음.
◦ 친환경농업직불제는 직불금 지원단가를 상향조정하고, 지역/지구단위로 친환경농업을 실천하는 경우 인센티브를 부여하는 등 전향적으로 개편할 필요가 있음. 친환경농업 직불제 지원단가는 논농업의 경우 유기재배시 ha당 120~130만원 수준, 무농약재배시 100~110만원 수준으로 상향 조정하고 연차별로 차등지급하는 방향으로 전환하는 것이 바람직함.
◦ 지구단위로 무농약재배 이상의 친환경농법을 실천하는 경우 친환경직불금 지원단가의 약 10% 정도를 추가적으로 지원하는 방안에 대한 검토가 필요함. 친환경농산물의 생산이력관리 등을 위해 수혜농가의 경영실적 등 데이터베이스를 구축하고, 농가의 자재사용 점검 시스템도 구축해야 함.
◦ 영국, 스위스, 미국 등 주요국의 ECC 적용 사례를 검토한 결과 토지 관리에서부터, 습지 보호, 야생조류 및 서식지 지침, 동물복지 등 다양한 분야에서 ECC정책을 도입하고, 서류검사, 불시검사 등 거래비용을 줄이기 위해 노력하며, 위반한 농가에게 엄격한 벌칙을 부여하고 있음.
◦ 농업생태계의 건전한 유지·보존을 위해 다양한 메뉴방식의 ECC 정책 프로그램 도입이 필요함. ECC 프로그램 메뉴는 실천 정도에 따라 지급하는 현행방식(M1), 온라인 영농장부 작성 및 모니터링에 참여하는 대표농가에 대한 지원(M2), 겨울철 피복작물 재배농가 지원(M3), 수질정화 작목 재배농가에 대한 지원(M4) 등을 고려할 수 있음. 메뉴방식의 다양한 ECC 프로그램 도입을 위해서는 사전에 합리적이고 체계적으로 준비되어야 하고, 지원단가도 적절하게 산정되어야 함.
◦ ECC가 성공적으로 시행되기 위해서는 준수상태 조사를 위한 강력한 메커니즘을 구축해야 하고, 조건을 위반한 경우 엄격한 벌칙을 부여해야 함. 거래비용 줄이기 위해 정기적인 현장검사 보다는 서류검사, 불시검사가 효과적이고, 현장검사의 경우도 동시에 여러 항목을 검사하는 것이 바람직함. 또한 모니터링을 통해 조건을 위반하는 경우 엄격한 벌칙을 부여할 필요가 있으며 도입초기에는 3~5%의 경미한 직불금 삭감비율을 적용하고 점차 정착되어 가면서 삭감비율을 조정하는 방안이 바람직함.
◦ 친환경농업직불제는 친환경농업실천농가 확산을 위한 주요한 정책프로그램으로 중요한 위치를 차지하고 있음. 유럽 주요국의 경우 유기농업 실천농가 육성을 위한 인센티브조치로 직불제도가 널리 활용되고 있으며, 지원금 규모가 매년 확대되고 있는 실정임. 또한 농업환경자원관리와 온실가스 완화의 환경친화적인 조치와 농업정책을 연계하여 추진하는 환경적 상호준수프로그램도 널리 확산되고 있는 추세에 있음.
◦ 미래농업의 성장동력으로 친환경농업이 건실하게 발전하기 위해서는 유기농업 및 무농약 등 친환경농업 실천농가에 대한 친환경농업직불제도는 여건변화를 반영하여 지속적으로 개선․보완되어야 할 것임. 또한 녹색성장의 국가발전 전략에 부응하기 위해서는 적절한 농업환경자원 관리와 온실가스 감축 및 흡수 능력을 확대시키기 위해 농업정책에 환경적 상호준수프로그램을 도입하는 정책통합이 적극적으로 이루어지도록 해야 할 것임.
Abstract
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This research was carried out to draw out improvement plan of direct payment systems for environment-friendly agriculture with the objects of major product items based on systematic analysis of production cost and income differences per types of certifications of environmental friendly agricultural
This research was carried out to draw out improvement plan of direct payment systems for environment-friendly agriculture with the objects of major product items based on systematic analysis of production cost and income differences per types of certifications of environmental friendly agricultural products and to prepare introduction plans of new environmental cross compliance (ECC) programs.
Organization of the report are composed of background and necessity of the research in the introduction of chapter 1 and purpose of research, reviews of preliminary researches and scope of research were suggested. Chapter 2 explains theoretical backgrounds of direct payment system for environment-friendly agriculture and ECC related theories. Chapter 3 diagnoses current status of direct payment system for environment-friendly agriculture and evaluates performance of the policy programs. Chapter 4 analyzes amount of unit price in direct payment system and survey results of production cost of environmental friendly agricultural products. Chapter 5 describes direct payment system for environment-friendly agriculture and operation examples of ECC in major countries. Chapter 6 suggests directions for improving direct payment system of environment-friendly agriculture and introducing environmental cross compliance programs. Finally, chapter 7 delivers summary and conclusion.
For investigation of production cost of environmental friendly agricultural products, with the objects of farmhouses recommended by National Agricultural Products Quality Management Service, production cost investigation was carried out with the objects of total 233 farmhouses such as 77 rice farmhouses, 64 vegetable farmhouses (potato 21, lettuce 20, tomato 23), 44 fruit farmhouses (apple 21, grape 23), 48 forest product farmhouses (chestnut 22, shiitake mushroom 26) and etc in consideration of year of certification, distribution per regions and etc.
Production cost per 10a of environmental friendly rice cultivation agricultural farm was investigated in about 1.4~1.5 times compared to conventional farming of 629,000 won as in no-pesticide 861,000 won and organic 967,000 won. On the other hand, in case of income per 10a, it was investigated in the level of no-pesticide 81.8% and organic 87.2% based on conventional farming of 467,000 won. It was found out that difference of production cost of organic cultivation was higher and income difference was smaller than no-pesticide.
Reviewing differences of incomes per year between environmental friendly rice farming practices and conventional farming, in case income of usual farmhouses was 467,000 won per 10a, the first year of environmental friendly farming practices was 262,000 won, second year was 299,000 won, third year was 345,000 won and fourth year was 448,000 won and income was reduced as number of years was elapsed and income of fifth year was 512,000 won and it showed 45,000 won higher difference which was 9.6% higher than conventional farming.
As income of environmental friendly vegetable cultivation agricultural farm per 10a, in case of potato, it was investigated in no-pesticide 92.4% and organic 91.3% based on conventional farming of 952,000 won, in case of lettuce, it was no-pesticide 92.8% and organic 90.0% based on conventional farming of 4,036,000 won, in case of tomato, it was investigated in the level of no-pesticide 98.1% and organic 97.6% based on conventional farming of 5,628,000 won and it was analyzed that income was reduced as it moved from usual to no-pesticide and organic cultivation.
As per income per 10a of environmental friendly fruit cultivation agricultural farmhouses, in case of apple, it was no-pesticide 96.4% and organic 95.9% based on conventional farming of 3,098,000 won, in case of grape, it was no-pesticide 93.4% and organic 88.8% based on conventional farming of 3,350,000 won and it was analyzed that production cost was higher and income was lower as it moved from usual to no-pesticide and organic cultivation.
As per income of environmental friendly forest product farmhouses, in case of chestnut, it was investigated in no-pesticide 91.3% and organic 75.3% based on conventional farming of 469,000 won and in case of shiitake mushroom, it was investigated in no-pesticide 90.0% based on conventional farming of 951,000 won and it was analyzed that income was reduced as it moved from conventional to no-pesticide and organic cultivation.
Looking at calculation method of direct payment of organic farms of main countries, in case of Czech Republic, total income per year and additional costs were considered and in case of Germany, it was based on changes of total incomes and elements because of differences of incomes and costs between usual farmhouses and organic farmhouses. Looking at direct payment system of organic farming, in countries such as Germany, Scotland, Austria and etc, conversion direct payment and maintenance direct payment were supported together and in local governments of Germany, Scotland, France, differential conversion direct payment system was operated.
It is necessary to improve environmental agricultural direct payment system positively by adjusting higher support unit price of direct payment and by providing incentives in case of practicing environmental friendly agriculture per region/district unit. It is desirable to adjust support unit price of environmental friendly agricultural direct payment system higher to the level of 1,200,00~1,300,000 won per ha in case of rice agriculture of no-pesticide cultivation and 1,000,000~1,100,000 won per ha in case of organic cultivation and to convert in a direction to pay differently according to number of years.
In case of practicing environmental friendly farming methods above no-pesticide cultivation per district unit, it is necessary to review plans to support more additionally about 10% of support unit price of environmental friendly direct payment. For managing production history records of environmental friendly agricultural products, database such as management results of farmhouses receiving benefits and etc must be established and inspection system of uses of supplies of farmhouses must be established too.
As the result of reviewing application examples of ECC of main countries such as England, Swiss, USA and etc, ECC policy was introduced from land management to other various fields such as protection of wetland, guidelines of wild birds and habitats, welfare of animals and etc and they tried to reduce transaction costs such as document inspection, random inspection and etc and strict penalties were levied on farmhouses which violated these.
Introduction of ECC policy programs of various menu methods is necessary for sound maintenance and preservation of agricultural ecology. ECC program menu can consider the current method (M1) which pays according to level of practices, support for representative farmhouses (M2) participating in preparation of online agricultural log and monitoring, supports for cultivation agricultural farmhouses of winter time soil erosion prevention farm products (M3) and support for water quality purification farm products cultivation agricultural farmhouses (M4). For introducing various ECC programs of menu methods, it must be prepared in advance in rational and systematic manner and support unit price must be also calculated properly.
For successful implementation of ECC, powerful mechanism must be established for investigating status of observation and strict penalties must be levied in case of violation of conditions. Document inspection and random inspection are more effective than regular site inspection for reducing transaction costs and in case of site inspection, it is desirable to inspect several items simultaneously. In addition, it is necessary to levy strict penalties in case of violation through monitoring and in early stage of the introduction, a plan is desirable to apply very light direct payment reduction ratio of 3~5% and to adjust reduction ratio as it is gradually settled down.
Direct payment system of environmental friendly agriculture takes an important position as a main policy program for expanding practicing farmhouses of environmental friendly agriculture. In case of main European countries, as an incentive measure for nurturing organic agriculture practicing farmhouses, direct payment system is utilized broadly and it is the reality that size of support money is expanding every year. In addition, it is a trend that environmental reciprocal observation programs, which are implemented in connection with environmental friendly measures of agricultural environmental resources management and alleviation of greenhouse gas and agricultural policy, are expanding broadly.
Direct payment system for environment-friendly agriculture with organic and no-pesticide farming practices shall be continuously improved and supplemented by reflecting changes of conditions in order for environmental friendly agriculture to be developed soundly as a growth engine of the future agriculture. In addition, in order to comply to national development strategy of green growth, policy integration, in which environmental reciprocal observation program is introduced to agricultural policy for expanding appropriate agricultural environmental resources management and greenhouse gas reduction and absorption capability, must be established positively.
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