주요 밭작물 산업의 활성화 방안

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(1)C2009-19 | 2009. 5.. 주요 밭작물 산업의 활성화 방안. 성 최 김 정 박. 명 지 태 학 지. 환 현 곤 균 은. 연 구 위 원 선임연구위원 연 구 위 원 전문연구원 연. 구. 원.

(2) 연구 담당 성명환 최지현 김태곤 정학균 박지은. 연구위원 선임연구위원 연구위원 전문연구원 연구원. 제1, 2, 3, 6, 7장 제4, 6장 제5장 제3, 4, 6장 자료수집 및 분석.

(3) i. 머 리 말. 농산물시장의 개방이 확대되면서 농산물시장을 둘러싼 국내외 여건이 크게 변하고 있다. 밭작물 또한 시장개방 확대가 불가피하며 이로 인해 국내 밭작물 의 경쟁력은 크게 약화될 전망이다. 따라서 국내외 농산물시장의 여건 변화에 대응하여 밭작물의 경쟁력을 높이는 방안을 모색하는 것도 중요한 과제의 하 나이다. 안전 농산물에 대한 소비자의 관심 증대로 국내 농산물 유통환경이 변하고 있다. 중국 멜라민 분유 사건으로 소비자들은 안전하고 우수한 품질의 농산물 을 선호하는 추세로 변하고 있다. 가격을 더 많이 지불하더라도 안전한 국내산 농산물을 소비하려는 경향이 증가하고 있기 때문에 국내 생산을 늘릴 수 있는 기회로 삼을 수 있다. 이러한 농산물 유통환경의 변화를 감안한 향후 밭작물 산업정책의 방향은 지역논농업 진흥이라는 차원에서 지역논농업육성정책을 수립할 필요가 있다. 벼 대체작목으로서 밭작물의 생산증대를 유도하여 지역농업 진흥, 식량자급률 향상, 논농업경영 안정을 도모하는 방안을 마련함으로써 외국산 밭작물과의 차 별화로 시장개방 확대에 대응할 수 있기 때문이다. 따라서 이 연구는 국내외 밭작물 시장 환경의 변화에 대응하여 밭작물 산업 정책의 방향, 밭작물 산업의 경쟁력 제고 및 활성화 방안을 제시하는 것이다. 이 보고서가 우리나라 밭작물의 경쟁력을 높이고 밭작물 산업 활성화에 기여 하기를 바란다. 이 연구를 위해 협조해 주신 정부, 지방자치단체, 농촌진흥청, 농협, 생산자 등 관계자에게 감사드린다. 2009. 5. 한국농촌경제연구원장 오 세 익.

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(5) iii. 요. 약. ○ 이 연구의 목적은 주요 밭작물 산업의 현황 분석을 통한 향후 밭작물 산업 의 안정적 발전방향, 밭작물 산업의 경쟁력 제고 방안, 밭작물 정책 추진방 향 수립 및 추진사업을 제시하여 밭작물의 자급률 향상 및 안정적 생산․유 통 체계를 구축하는 것이다. 대상품목은 쌀을 제외한 밀, 옥수수, 콩, 서류 등 식량작물로 한정하였다. ○ 주요 밭작물의 국내산과 외국산의 가격경쟁력을 비교한 결과 정부의 보조 없이는 국내산의 외국산에 대한 가격경쟁력이 낮은 것으로 분석되었다. 최 근 수입단가 및 환율의 상승으로 국내 가격과의 차이가 줄어들긴 했으나 국 내 밭작물의 가격경쟁력이 있다고 판단하기는 어렵다. ○ 우리나라는 쌀 재배면적은 2001년을 정점으로 매년 감소하고 있다. 쌀 생산 비 구조상 쌀 가격이 일정 수준 이하로 하락하면 재배면적이 감소할 수밖에 없다. 이렇게 감소된 면적은 타작목으로 전환되거나 휴경면적이 증가될 것 이다. 농가소득의 안정과 농지의 효율적인 이용을 위해서는 우리의 주식인 쌀을 대체할 수 있는 식량작물 재배의 확대가 필요하다. 합리적인 작부체계 의 개발을 통해 농가소득 향상과 농지이용의 효율성을 도모할 필요가 있다. ○ 주요 밭작물 집단재배 단지의 호당 면적규모는 콩 0.9ha, 감자 0.9ha, 고구마 0.7ha, 옥수수 0.6ha로 품목별 전국 평균 재배면적보다 규모화 되었다고 할 수 있으나 여전히 1ha 미만의 영세한 수준이다. 밭작물 경영체들의 72.8%가 현재 보유하고 있는 기계장비에 대해서 밭작물 면적이나 고령화를 고려할 때 부족한 수준이라고 응답하였다..

(6) iv ○ 국내산 원료를 사용하는 가공업체가 외국산과 경쟁력을 갖추기 위해서 원료 공급․유통 측면에서 저렴한 원료생산, 가공적성 및 식감 개선을 위한 품종 개발, 안정적인 물량 생산 등이 필요한 것으로 조사되었다. 가공업계의 국산 밭작물 가공사업의 애로사항은 고가의 원료, 불안정한 물량공급, 기계 및 시 설 부족 등을 지적하였다. ○ 밭작물은 자급률이 매년 감소하고 있으며 소득이 낮아 재배면적 또한 감소 추세를 보이고 있다. 이러한 상황 하에서 밭작물에 대한 수익성 변화에 따른 품목별 재배면적과 생산량에 대한 정책효과 분석결과는 밭작물의 재배면적 과 생산량을 증가시키기 위해서는 어느 정도 수익성이 뒷받침되어야 한다는 것으로 나타났다. ○ 우리나라 곡물자급률은 27% 수준에 불과하며 세계적인 식량부족 시대를 대 비하여 곡물의 안정적 확보 방안을 마련할 필요가 있다. 최근 국제곡물 가격 의 급등을 위시한 일련의 농산물 공급 불안정 현상을 극복하기 위하여 논에 서 생산되는 벼와 논재배 작물의 공급 확대를 통한 식량자급률을 제고할 필 요가 있다. 논에서 밭작물 생산을 확대하기 위한 노력이 필요하다. ○ 밭작물 산업정책의 방향을 쌀산업 정책과 연계하여 지역논농업 진흥이라는 측면에서 “지역논농업육성정책”이 필요하다. 이를 통하여 쌀 대체작목으로 서 특산물(밭작물)의 생산증대를 유도하여 지역농업 진흥, 식량자급률 향상, 논농업경영 안정을 도모할 수 있다. ○ 밭작물 산업의 경쟁력 제고를 위해서 생산측면에서 규모화, 기계화, 조직화, 시설현대화 등을 통해 비용을 절감할 필요가 있다. 또, 유통․저장 측면에서 규모화, 조직화, 시설현대화, 수급조절 등을 통해 유통비용을 절감하고 가격 을 안정화시킬 필요가 있다. 밭작물 경쟁력 제고 방안으로 밭작물 산지조직 화 사업, 전업농 육성 방안, 밭작물 유통종합처리장 육성 사업, 농기계은행.

(7) v 사업, 농지범용화사업 등이 요구된다. ○ 밭작물의 소비 확대를 위한 방안으로 국산 밀 홍보사업과 국산콩 제품개발 사업이 요구된다. 소비자들의 국산 밀에 대한 인식제고와 소비확대를 위해 다양한 홍보사업을 추진함으로써 국산 밀의 수요를 확대하고 국산콩을 이용 한 새로운 가공제품을 개발함으로써 국산콩의 수요를 확대하기 위한 것이 다. 균일한 품질의 콩을 공급하기 위해서 콩 유통종합처리장을 설치하고 종 합처리장에서 계약재배를 통한 물량을 확보할 수 있도록 정책을 수립할 필 요가 있다. ○ 밭작물 산업의 활성화를 위하여 밭작물의 브랜드－경영체 육성이 필요하다. 브랜드－경영체 육성사업으로 생산, 유통 비용을 줄이고, 고품질ㆍ안전 농 산물을 생산함으로써 생산자의 소득을 증대시킬 수 있다. 밭작물 브랜드－ 경영체 사업 성공을 위한 정부, 지자체, 농업기술센터, 지역조합, 농가ㆍ작 목반을 포함하는 경영체, 대량수요업체, 가공업체 등 각 지역의 참여 주체의 역할분담이 필요하다..

(8) vi ABSTRACT. Strategies for Revitalizing the Major Upland Crops Industry. The purpose of this study is to establish the stable production and distribution system and increase the self-sufficiency ratio by suggesting the future development direction of the upland crops industry, the method to enhance the competitiveness and bring forward the promotion projects of the upland products through the analysis on the current status of the major upland crops industry. The rice cultivation of Korea has decreased every year since 2001. The rice fields are changed to be used for other purpose or are out of cultivation. The grain self-sufficiency rate of Korea is just a 27%. Therefore, it is required to prepare the program to secure food grains stably in preparation for the worldwide scarcity of food grains. Especially, it is highly demanded to improve the self-sufficiency rate of food grains by increasing the production of upland products in the rice fields in order to tackle the problems of the unstable agricultural product supply affected by recent sharp rise of the international grain prices. In other words, we have to make efforts to cultivate the wheat, corn, bean, potato and sweet potato. For this, an appropriate policy guaranteeing the profitability of the upland products for efficient use of the agricultural land is needed. In this study, the regional agriculture promotion policy in the rice paddy is suggested in the aspect of regional rice-paddy farming promotion by linking the industrial policy for the upland crop products with the policies for the rice industry. By means of inducing the production increase of the upland products through the promotion policy, it is purposed to seek the strategies to stabilize the farm income producing upland crop products in the rice paddy, promote the regional agriculture and increase the food self-sufficiency rate. As the strategies of increasing competitiveness of the upland crop products, several programs are suggested such as the organization project of production system in the major producing areas of the upland crop products, the promotion project of the specialized farmers, the farm machine bank project, and the generalization project of agricultural land use. It aims at reducing the farming costs through the expansion of farming areas,.

(9) vii mechanization, systematization and modernization of the facilities in the aspects of production, marketing and processing of upland crop products. As strategies to increase the consumption of the upland crop products, the public information project of domestic wheat(Woorimil) and domestic bean product development project are suggested. The purpose of this is to increase the demand for the Woorimil by improving the customers' understanding and implementing various public information activities, and to increase the demand for the domestic beans through developing various new processing products using the domestic beans. In order to activate the upland crop industry, the brand management promotion program is suggested. By fostering the brand product, it is possible to reduce the distribution costs and increase the productivity. The major roles of participators are also suggested such as the government, local self-government, agricultural technology center, agricultural cooperative association, management organizations, and processing companies, etc. Researchers: Sung Myung-Hwan, Choi Ji-Hyeon, Kim Tae-Gon, Jeong Hak-Kyun, and Bak Ji-Eun Research period: November 2008 - May 2009 E-mail address: mhsung@krei.re.kr.

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(11) ix. 차. 례. 제1장 서론 1. 연구 필요성 ··································································································· 1 2. 연구 목적과 방법 ························································································· 2 3. 선행 연구 검토 ····························································································· 4 제2장 밭작물 산업의 여건 변화 1. 밭작물 관련 정책 현황 ················································································ 6 2. 밭작물 관련 국내외 여건 변화 ··································································· 8 3. 밭작물 수급 동향 ······················································································· 12 제3장 밭작물 재배·경영 실태 분석 1. 밭작물 경지 이용 변화 ·············································································· 19 2. 밭작물의 수익성 분석 ················································································ 30 3. 밭작물 경영 실태 ······················································································· 44 제4장 밭작물 유통·소비·가공 실태 분석 1. 밭작물 유통 실태 ······················································································· 58 2. 밭작물 및 가공품 소비 실태 ···································································· 68 3. 밭작물의 가공 실태 조사 분석 ································································· 90 제5장 일본의 밭작물정책 실태와 시사점 1. 일본 밭작물정책 실태 ················································································ 96 2. 지역에서의 대응사례: 미야자키현 JA미야코노죠 ································· 104 3. 산지에서의 주요 경영사례 ······································································ 114.

(12) x 4. 일본의 밭작물정책에서 본 시사점 ······················································· 130 제6장 밭작물 산업 활성화 방안 1. 밭작물 산업정책의 방향 ·········································································· 133 2. 밭작물 산업의 경쟁력 강화 방안 ··························································· 138 3. 밭작물 및 가공품 소비확대 방안 ··························································· 150 4. 밭작물의 브랜드-경영체 육성사업 방안 ················································ 156 제7장 요약 및 결론. 참고 문헌 ··········································································································· 178.

(13) xi. 표 차 례. 제2장 표 2- 1. 양곡 수매실적 및 수매비율 ··························································· 7 표 2- 2. 품목별 국내외 가격 비교 ····························································· 11 표 2- 3. 수입단가․환율 변화에 따른 유통가격 변화 ····························· 12 표 2- 4. 밀 수급 현황 ·················································································· 13 표 2- 5. 보리 수급 현황 ·············································································· 14 표 2- 6. 콩 수급 현황 ·················································································· 15 표 2- 7. 옥수수 수급 현황 ·········································································· 16 표 2- 8. 감자 수급 현황 ·············································································· 17 표 2- 9. 고구마 수급 현황 ·········································································· 18 제3장 표 3- 1. 농지의 논․밭별 이용 현황 ························································· 20 표 3- 2. 논 및 밭면적 전환 추이 ······························································· 21 표 3- 3. 맥류의 논․밭별 이용 현황 ························································· 23 표 3- 4. 맥류 재배면적 추이 ······································································· 23 표 3- 5. 잡곡류의 논․밭별 이용 현황 ······················································ 24 표 3- 6. 잡곡류 재배면적 추이 ··································································· 25 표 3- 7. 두류의 논․밭별 이용 현황 ························································· 26 표 3- 8. 두류 재배면적 추이 ······································································· 26 표 3- 9. 서류의 논․밭별 이용 현황 ························································· 27 표 3-10. 서류 재배면적 추이 ······································································· 28 표 3-11. 조미채소류의 논․밭별 이용 현황 ·············································· 28 표 3-12. 시설작물의 논․밭별 이용 현황 ·················································· 29.

(14) xii 표 3-13. 품목별 소득 추이 ·········································································· 30 표 3-14. 연대별 작부체계 발전단계 ··························································· 32 표 3-15. 논벼 대체작목 작부체계별 수익성 ·············································· 37 표 3-16. 논의 밭전환 적지구분 현황 ························································· 39 표 3-17. 전국 답토양의 답전윤환 적부조사 ·············································· 39 표 3-18. 답전윤환대상지의 저해인자와 기준 ············································ 40 표 3-19. 논콩 재배 경제성 분석결과 ························································· 41 표 3-20. 사료작물 재배의 경제성 분석결과 ·············································· 43 표 3-21. 콩 주산지 변화 추이 ····································································· 45 표 3-22. 옥수수 주산지 변화 추이 ····························································· 45 표 3-23. 감자 주산지 변화 추이 ································································· 46 표 3-24. 고구마 주산지 변화 추이 ····························································· 47 표 3-25. 밭작물 집단재배단지 현황 ··························································· 48 표 3-26. 농산물 브랜드 현황 ······································································· 49 표 3-27. 식량작물 및 농산가공 브랜드 현황 ············································ 50 표 3-28. 조사대상 경영체 ············································································ 50 표 3-29. 경영체의 브랜드화 노력(중복응답허용) ······································ 51 표 3-30. 향후 종자개발 방향 ······································································· 52 표 3-31. 기계장비 보유의 적정성 ······························································· 52 표 3-32. 재배기술 습득 경로 ······································································· 53 표 3-33. 자동화처리시설의 필요성(복수응답허용) ···································· 54 표 3-34. 밭작물 저장방법 ············································································ 54 표 3-35. 선정된 브랜드-경영체 현황, 2009 ··············································· 55 제4장 표 4- 1. 콩의 유통비용 ················································································ 60 표 4- 2. 고랭지 감자의 유통비용 ······························································· 62 표 4- 3. 봄 감자의 유통비용 ······································································· 64.

(15) xiii 표 4- 4. 가을 감자의 유통비용 ··································································· 66 표 4- 5. 고구마의 유통비용 ········································································· 68 표 4- 6. 밀 용도별 소비현황 ······································································· 69 표 4- 7. 콩 용도별 소비 현황 ····································································· 70 표 4- 8. 식량용 콩 소비용도 ······································································· 71 표 4- 9. 콩 구입시 고려사항 ······································································· 71 표 4-10. 생산지, 브랜드 인지여부 ······························································ 72 표 4-11. 콩 장래소비의향(연령별) ······························································ 72 표 4-12. 콩 장래소비의향(소득별) ······························································ 73 표 4-13. 감자 구입시 고려사항 ··································································· 74 표 4-14. 식사대용 감자 취식 빈도 ····························································· 75 표 4-15. 생산지, 브랜드 인지여부 ······························································ 75 표 4-16. 고구마 구입시 고려사항 ······························································· 76 표 4-17. 식사대용 고구마 취식 빈도 ························································· 76 표 4-18. 생산지, 브랜드 인지여부 ······························································ 77 표 4-19. 옥수수 용도별 소비 현황 ····························································· 78 표 4-20. 밀가루 용도별 소비현황 ······························································· 80 표 4-21. 수입밀의 연령별 인지도 ······························································· 81 표 4-22. 수입밀의 소득별 인지도 ······························································· 82 표 4-23. 국산 밀 가공제품의 구입경험 ······················································ 82 표 4-24. 국산 밀로 만든 가공제품에 대한 평가 ······································· 83 표 4-25. 밀가공제품 원산지별 지불의향 ···················································· 84 표 4-26. 국산 밀 가공제품 소비확대 필요조건 ········································ 85 표 4-27. 콩 가공제품 1일 연평균 섭취량 ·················································· 86 표 4-28. 두부류 연도별 출하액 ··································································· 86 표 4-29. 두부 구입시 선택기준 ··································································· 87 표 4-30. GM 대두유와 Non-GM 대두유 적정가격차이 ························· 88 표 4-31. 연령별 두부제품 장래 소비의향 ·················································· 88.

(16) xiv 표 4-32. 소득별 두부제품 장래 소비의향 ·················································· 89 표 4-33. 국내산 콩으로 만든 두부제품에 대한 평가 ······························· 90 표 4-34. 조사대상 가공업체 ········································································· 91 표 4-35. 국산원료 구매시 고려사항 ··························································· 91 표 4-36. 국산 밭작물 원료에 대한 평가(전품목) ······································ 92 표 4-37. 국산 밭작물 원료에 대한 평가(품목별) ······································ 93 표 4-38. 가공사업 활성화를 위해 원료 생산․유통측면 필요사항 ········ 93 표 4-39. 가공사업 활성화를 위해 가공제품 생산․판매측면 필요사항 ···· 94 표 4-40. 국산원료 가공사업의 애로사항 ···················································· 95 제6장 표 6- 1. 중장기 쌀 재배면적 및 생산량 전망 ········································ 134 표 6- 2. 밭작물 재배면적 정책실험 결과 ················································ 135 표 6- 3. 밭작물 생산량 정책실험 결과 ···················································· 135 표 6- 4. 콩유통종합처리장 설치 지역(안) ··············································· 143 표 6- 5. 주요 밭작물용 농기계 ································································· 147 표 6- 6. 국산 밀 홍보사업 방안 요약 ······················································ 152 표 6- 7. 전통장류 제품 이미지 ································································· 153 표 6- 8. 영농조합법인의 경영사례 ··························································· 159 표 6- 9. 사업 주체별 역할과 기능 ··························································· 164.