산림작물 생산단지 조성사업 실태조사 및 개선방안

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(1)C2012-45 | 2012. 12.. 산림작물 생산단지 조성사업 실태조사 및 개선방안. 민 정 장 문. 경 호 철 지. 택 근 수 민. 부연구위원 부연구위원 연 구 위 원 위촉연구원.

(2) 연구 담당 민경택 정호근 장철수 문지민. 부연구위원 부연구위원 연구위원 위촉연구원. 연구총괄, 제1장, 제2장, 제3장, 제4장, 제6장, 제7장 집필 제5장 집필 제6장 집필 제2장 집필.

(3) 머 리 말. 우리나라는 국토면적의 65%가 산림으로 덮여있는, 풍부한 산림자원을 가진 산림부국 이다. 일제 강점기와 한국전쟁을 겪으면서 우리의 산림은 황폐해지고 크게 훼손되었지 만 산림녹화와 산림보호에 대한 정부의 강력한 의지에 힘입어 우리의 산림은 완전히 회 복될 수 있었다. 산림녹화를 달성한 이후 산림정책의 과제는 산림의 자원화 그리고 산지의 소득자원화 가 되어야 할 것이다. 그러나 산림을 소득자원으로 활용하는 데에는 여전히 부족함이 있 다. 임산물을 생산하는 데에 필요한 기반시설은 여전히 부족한 실정이며 임가의 소득수 준은 농가와 어가에 비하여도 낮은 수준이다. 한편, 국민소득 수준이 높아지고 외국산 먹거리의 수입이 증가하면서 국민들은 먹거 리의 안전성에 대하여 우려하게 되었다. 국내 농산물도 아직 관행농법에 의해 생산되고 있기 때문에 식품안전성에 대한 우려를 불식하지 못하고 있는 실정이다. 식품 안전성에 대한 소비자 요구는 청정자연 환경에서 재배하는 우리 임산물에 대한 수요를 창출하게 되었다. 숲에서 생산하는 산나물, 표고버섯, 산양삼 등은 화학비료를 전혀 사용하지 않고 말 그대로 청정자연에서 생산하는 자연식품이다. 이에 산림청은 산림을 소득자원화하고 청정자연 임산물에 대한 소비자 수요에 부응하 기 위해 산림작물 생산단지 조성사업을 지원해 왔다. 이 사업은 임업인의 산림작물 생산 의 규모증대를 지원하는 사업이다. 이 사업이 추진된 지 4년이 지났기 때문에 사업추진 의 성과를 분석하고 모니터링하는 것은 매우 시의적절하다. 이 연구의 결과가 산림작물 생산단지 조성사업의 문제점을 개선하고 임업인의 생산활동을 돕는 데 기여하기를 기대 한다. 이 연구의 원활한 진행을 위해 지원을 아끼지 않은 산림청 산림경영소득과 관계자, 지 자체의 산림소득업무 담당, 산림작물 생산에 종사하면서 조사에 응해주신 임업인 여러 분들께 깊은 감사를 드린다.. 2012. 12. 한국농촌경제연구원장 이 동 필.

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(5) i. 요 약. 산림의 소득자원화와 청정 임산물에 대한 수요 증가에 대응하여 산림청은 2008년부터 산림작물 생산단지 조성을 지원하여 왔다. 이 사업은 국비 40%, 지방비 20%, 자부담 40%로 구성되며 임업인은 산림작물 생산에 필요한 기반정리와 관수시설, 재배시설 설치 등에 투자할 수 있다. 이 연구의 목적은 그동안 추진되어 온 산림작물 생산단지 조성사업의 현황과 실태를 조사·평가하고 사업 성과를 분석하며 생산단지 활성화를 위한 개선방안을 제시하는 데 있다. 이를 위해 현장조사를 실시하여 사업을 평가하고 사업 성패에 미치는 요인을 분석 하였으며, 지자체 사업담당자와 생산자를 대상으로 설문조사를 실시하였다. 또, 사업의 경제적 성과를 분석하기 위해 B/C 비율 등 재무분석을 행하였다. 이 연구는 2008-2012 년 산림작물 생산단지 조성사업 110개 가운데, 사업이 변경되거나 포기한 11개 사업을 제외한 99개 사업을 대상으로 하였다. 성과분석에서는 2012년도 조성사업을 제외하였 다. 또, 여러 가지 사정으로 현장조사가 어려웠던 사업지도 분석에서 제외하였다. 산림작물 생산단지의 현장을 모니터링한 결과, 사업성과가 매우 높은 ‘매우 우수’ 14 개, 사업성과는 높지 않지만 나타나고 있는 사업 ‘우수’ 10개, 사업성과를 기다려야 하는 ‘보통’ 28개, 사업성과가 부진한 사업 ‘미흡’ 13개로 나타났다. 입지별로 보면 임간형 생 산단지의 성과가 시설형보다 부진하였고, 사업자의 재배경력이 짧거나 경영자 의지가 약한 생산단지의 사업성과가 부진한 것으로 나타났다. 산림작물 생산단지 조성사업은 대체로 지역 경제활성화에 기여하고 있으며 특히 생산 량 증대와 재배기술 혁신에 효과가 있는 것으로 평가된다. 한편, 생산자들은 사업비 운 영의 경직으로 창의적 경영이 어렵다는 점과 추가적인 운영비 및 노동력 확보의 어려움 등을 애로사항으로 토로하였다. 사업에 대한 B/C 분석을 행한 결과 다수의 사업에서 경제적 타당성이 있는 것으로 평 가된다. 그러나 일부 사업들은 사후관리가 부진하여 그 성과가 매우 낮은 경우도 있다. 산림작물 생산단지 사업을 활성화하기 위해 다방면의 제도개선이 필요하다. 품목별 협의체 구성으로 정보를 교환하면서 현장애로사항을 해결해야 한다. 또, 산림에 생산단 지를 조성하는 경우에는 산지이용 규제를 완화하여 산림의 소득자원화를 지원해야 한 다. 또, 획일적인 사업비 운영을 유연하게 하여 사업자들이 창의적 경영을 할 수 있도록 지원해야 한다. 이와 함께 사업자들이 철저한 사업계획을 수립하고 사업비의 부당한 집.

(6) ii. 행이 없도록 산림소득사업에 대한 설계감리제를 도입하는 것이 바람직하다. 또, 앞으로 산림작물 생산단지에 대한 사업자를 선정할 때는 신청자의 재배경력, 운영 비 확보방안, 자부담비 확보 여부, 적정 재배규모, 토지 소유관계, 지자체의 관심과 지원 여부 등을 검토해야 한다..

(7) iii. ABSTRACT. A Review on the Forestry Policy to Support Building a Infrastructure of Large Scale Farm for Forest Products. To keep up with growing demand for clean forestry products the Forest Service of Korea has been supporting to make large scale farms for producing forest products since 2008. Being provided the 60% of the budget by central and local government, farmer can do land arrangement or build necessary facilities such as sprinkler, well, greenhouse, fence and so on. The farms located in flat land as well as forest can grow various forest products including mushroom, wild greens, medicinal plants, ginseng, trees such as jujube and even scenic tree species. Starting 11 farms in 2008, there are 99 farms nationwide in mountain areas. Among them the majority of products are wild greens(32 farms), wild ginseng(18 farms), and mushroom(20). In terms of the location, there are 29 greenhouse or growing facility, 57 forest, and 13 flat land. Typically farms in flat land are more integrated than farms in forest in terms of land arrangement and cultivation. The purpose of the study is to review the program based on field study and make policy suggestion. Based on the financial as well as sustainability analysis to cover current and future, we can conclude that the program shows 36% success ratio such that 23 farms among 64 farms are success. In terms of species, mushroom and bracken, a type of wild greens, show better business result than others. Though the key factors for achieving success of forest products farm business are varied on products and farm types, there are some conditions that can be generally applied to all types of farms. Farmer's willingness is vital and farms should be expert in cultivated products. Farmers having earlier experience in cultivating the product show more tendency of success than farmers don't. Operating cost for farm should be planned carefully with business plan covering the period until full-scale harvest. Most of forest products and especially ginseng takes many years before starting the harvest. Considering this, it is better to mix products that have different growing period. For example, rather than cultivating only wild ginseng that takes at least 7 to 8 years, farmers can grow wild greens and can expect some income that can be used to maintain farm until full-scale ginseng harvest. To find the right spot for growing the product in farm is essential for the success. It is suggest to do trial and error to find the right spot before starting the farm. One way of it is to require the growing test result when submit the farming plan to be selected in governmen program. When selecting the candidate for the government-sponsored business, cultivating.

(8) iv. experience, farm scale, the way to acquire the operation cost, land ownership should be checked carefully.. Researchers: Kyung-Taek Min, Ho-Gun Chong, Cheol-Su Chang, Ji-Min Moon Research period: 2012. 1. - 2012. 12. E-mail address: [email protected].

(9) v. 차. 례. 제1장 서 론 1. 연구의 필요성 ··············································································································· 1 2. 연구목적 ························································································································· 3 3. 주요 연구내용 ··············································································································· 3 4. 연구방법 및 범위 ········································································································· 4 제2장 산림작물 생산 및 소득현황 1. 임가현황 ························································································································· 7 2. 임산물 소득현황 ··········································································································· 9 3. 산림작물 생산현황 ······································································································ 10 제3장 산림작물 생산단지 조성사업 현황 및 실태분석 1. 사업 개요 ····················································································································· 23 2. 사업 현황 및 실태 ······································································································ 25 3. 유통 및 출하 현황 ······································································································ 28 제4장 산림작물 생산단지 조성사업 모니터링 1. 모니터링 개요 ············································································································· 31 2. 모니터링 평가기준 ······································································································ 32 3. 모니터링 결과 ············································································································· 35 4. 사업별 평가 결과 ······································································································ 50 제5장 산림작물 생산단지 조성사업의 성과분석 1. 성과분석의 개요 ········································································································· 60 2. 계량 지표에 의한 성과 분석 ····················································································· 68 3. 사례 분석 ····················································································································· 80.

(10) vi. 제6장 산림작물 생산단지 활성화 방안 1. 생산단지의 경영활성화 및 육성방안 ······································································· 87 2. 공모사업 선정에서 주요 검토사항 ··········································································· 92 제7장 결론 및 요약 ·········································································································· 96 부 록 산림작물 생산단지 조성사업에 대한 의견 조사결과 1. 담당 공무원의 의견 ···································································································· 98 2. 생산자 의견 ················································································································· 99 참고 문헌 ························································································································ 102.

(11) vii. 표 차 례. 제2장 표 2-1. 산림작물 생산의 소득현황 ················································································ 9 표 2-2. 임업소득 동향 ·································································································· 10 표 2-3. 임가와 농·어가의 가구소득 비교 ··································································· 10 표 2-4. 임상별 산림면적 ······························································································ 11 표 2-5. 밤 산업 현황 ···································································································· 15 표 2-6. 표고버섯산업 현황 ··························································································· 14 표 2-7. 떫은감 산업 현황 ····························································································· 15 표 2-8. 대추산업 현황 ·································································································· 16 표 2-9. 잣 산업 현황 ···································································································· 17 표 2-10. 호두 산업 현황 ································································································ 18 표 2-11. 은행 산업 현황 ································································································ 19 표 2-12. 고사리 산업 현황 ····························································································· 20 표 2-13. 약용작물 국내 생산동향 ··············································································· 21 표 2-14. 산림 약용작물의 생산실적 ············································································ 21 표 2-15. 조경수 국내 생산동향 ··················································································· 22 제3장 표 3-1. 산림소득 기반조성사업의 성과 분석 ····························································· 24 표 3-2. 산림작물 생산단지 조성현황 ·········································································· 25 표 3-3. 지역별·품목별 지원현황 ················································································ 26 표 3-4. 품목별·입지별 지원현황 ·················································································· 27 표 3-5. 사업주체별 지원현황 ······················································································· 28 표 3-6. 산림작물의 출하형태 ······················································································· 29 제4장 표 4-1. 정책역량 세부 평가항목 ··············································································· 33.

(12) viii. 표 4-2. 현장품질 평가 세부항목 ··············································································· 34 표 4-3. 사업별 평가 ······································································································ 52 표 4-4. 입지별 평가 ······································································································ 53 표 4-5. 재배경력 유무 ·································································································· 54 표 4-6. 생산단지 평가와 재배경력 ·············································································· 55 표 4-4. 재배규모별 평가 ······························································································ 56 표 4-7. 생산단지 평가와 경영자 의지 ········································································ 57 제5장 표 5-1. 2008년도 지원 생산단지 생산액 ·································································· 62 표 5-2. 2008년도 지원 생산단지 재무 성과분석 ······················································ 63 표 5-3. 2008년도 지원 생산단지 사업지속 가능성 ··················································· 64 표 5-4. 2009년도 지원 생산단지 생산액 ···································································· 65 표 5-5. 2009년도 지원 생산단지 재무 성과분석 ······················································ 66 표 5-6. 2009년도 지원 생산단지 사업지속 가능성 ··················································· 67 표 5-7. 2010년도 지원 생산단지 생산액 ···································································· 68 표 5-8. 2010년도 지원 생산단지 재무 성과분석 ····················································· 69 표 5-9. 2010년도 지원 생산단지 사업지속 가능성 ··················································· 70 표 5-10. 2011년도 지원 생산단지 생산액 ···································································· 71 표 5-11. 2011년도 지원 생산단지 재무성과 분석 ······················································ 72 표 5-12. 2011년도 지원 생산단지 사업지속 가능성 ··················································· 73 표 5-13. 재배형태별 성과 분석 ····················································································· 74 표 5-14. 재배품목별 성과분석 ······················································································· 75 표 5-15. 모노레일 효과 ·································································································· 77 표 5-16. 관수시설 효과 ·································································································· 78 표 5-17. 대추 비가림 시설 설치 효과 ·········································································· 79 표 5-18. 표고버섯 재배 하우스 설치 효과 ·································································· 79 표 5-19. 하늘숲작목반 생산 현황 ················································································· 82.

(13) ix. 그 림 차 례. 제1장 그림 1-1. 연구개발 추진도 ····························································································· 5 제2장 그림 2-1. 경영업종별 임가 구성비율 ·········································································· 8 그림 2-2. 임가 경영주의 연령별 구성비율 ································································ 8 그림 2-3. 단기 임산물 생산액 추이 ·········································································· 12 제4장 그림 4-1. 지자체의 산림작물 생산단지 지원 활동 ················································· 36 그림 4-2. 산림작물 생산단지 조성사업의 지역 발전 기여도 ·································· 46 그림 4-3. 산림작물 생산단지 조성사업의 지역 발전 기여도 ·································· 47 그림 4-4. 산림작물 생산단지 조성사업 사업비의 적정성 ········································ 47 그림 4-5. 지역의 사업 진행 능력 ··············································································· 48 그림 4-6. 산림작물 생산단지 조성사업의 문제점 ····················································· 49 그림 4-7. 산림작물 생산단지 조성사업의 지속 여부 ··············································· 49 그림 4-8. 산림작물 생산단지 조성사업의 사업 발전 기여도 ·································· 58 그림 4-9. 산림작물 생산단지 조성사업의 사업 발전 기여도 ·································· 58 그림 4-10. 산림작물 생산단지 조성사업 추진상의 애로사항 ···································· 59.

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(15) 1. 제. 1. 장. 서 론. 1. 연구의 필요성. ○ 단기소득 임산물의 생산이 부업수준에서 전업수준의 대규모 생산체계로 전환되고 있 으며, 전국적으로 산지(産地)가 확대되고 있는 추세임. - 이는 단기임산물 시장의 대내외 요인에서 기인한다고 볼 수 있음. 대내적인 요인 으로는 수요부문의 변화를 들 수 있는데, 국민 소득수준이 향상되면서 웰빙 문화 의 확산과 함께 소비자들의 건강에 대한 관심이 높아지고 있어 과거 열량 위주의 소비구조에서 건강을 고려한 질적 소비구조로 변화되고 있음. - 또한 먹거리에 대한 안전성이 사회문제가 되면서 청정 자연산 먹거리인 임산물에 대한 소비자 선호도가 높아지고 있음. - 이에 대한 방증으로 2011년 임산물 총생산액은 5조 7,267억원으로 2010년 5조 5,373억원 대비 3.4% 증가하였음. ○ 특히 수실류, 버섯, 산나물, 약용식물 등의 생산액은 꾸준한 증가를 보이고 있는데 2011년 생산액이 약 1조 8,824억원에 이르며 이는 전체 임산물 생산액의 34%를 차지 하고 있음. - 이들 품목의 생산액은 전년도(2010년)와 비교하여 수실류(잣, 떫은감, 호두, 산딸 기 등) 11.2%, 약용식물(산수유, 백출, 독활, 산양삼 등) 11.1%, 산나물(고사리, 도.

(16) 2. 라지, 취나물) 10.1%, 버섯(송이, 건표고, 목이 등) 8.1% 증가하였음. - 이들 단기임산물은 청정자연 환경에서 재배되는 작물이기 때문에 소비자 니즈에 부합하며 성장세를 보이고 있기 때문에 앞으로 임업의 새로운 성장동력이 될 것으 로 전망됨. ○ 한편, WTO/FTA 등 시장개방이 더욱 확대되고 있는데, 특히 협상이 진행되고 있는 중국과의 FTA는 우리나라 임산물 생산에 적지 않은 영향을 미칠 것으로 예상됨. - 중국은 우리나라와 지리적으로 가까우면서 우리나라에서 소비하는 임산물의 대부 분을 생산·수출하고 있으며 우리나라의 중국산 임산물 수입은 매년 증가추세에 있음. - 이에 대한 대비책으로 정부(산림청)는 임업인의 소득 증진과 산림산업의 경쟁력 강화를 위하여 밤과 호두 등 민감 품목의 중점 지원, 산주의 적극적 경영 참여를 돕기 위한 전문 컨설팅 제도 운영, 임산물 생산․유통시설의 확충을 위해 대단위 산림복합단지 조성, 산림작물 생산단지 조성, 임산물종합유통센터 지원 등의 사업 을 진행하고 있음. ○ 산림작물 생산단지는 산림에 대규모 단기임산물 생산단지를 조성하여 산림의 소득자 원화 뿐만 아니라 산림의 공익적 기능 유지를 도모하여 자원순환형 산림산업의 육성 을 목적으로 하는 사업임. - 즉, 산림작물 생산단지는 임산물 재배면적을 단지화, 규모화, 현대화하여 생산성을 높임으로써 친환경 임산물에 대한 소비자 수요를 충족하고 임업의 성장동력을 확 보해 나가기 위한 사업의 하나임. - 산림작물 생산단지는 2008년 11개소(산림작물 생산단지 9개소, 산지약용식물생산 단지 2개소)를 시작으로 2009년 25개소, 2010년 25개소, 2011년 30개소의 사업이 추진되었으며 2012년에도 19개소가 추진되고 있음. ○ 산림작물 생산단지 조성사업이 시행된 지 4년이 경과하고 있으나 아직까지 사업 시 행에 대한 현장의 실태파악이 미흡하며, 국고지원효과 등 정책 사업에 대한 객관적인 진단․평가가 이루어지지 않았음. - 따라서 사업의 목표 달성여부를 평가하고 사업추진 실태를 모니터링하여 정책의 품질을 개선해야 할 필요가 있음. 이를 통해 사업추진의 문제점을 도출하고 이에 대한 규제완화 및 제도 개선을 통한 사업의 효율성 증진을 도모할 수 있음. - 다만, 산림작물은 일반 농작물에 비하면 조건불리 지역에서 재배되고 있으므로 보.

(17) 3. 다 현실성 있는 지표를 통해 산림작물 생산단지 조성사업의 운영성과를 객관적으 로 평가해야 함.. 2. 연구목적. ○ 첫째, 2008년부터 산림소득 공모사업으로 지원하고 있는 ‘산림작물 생산단지 조성사 업’에 대한 국고지원 효과 등 보조사업 전반의 현황과 실태를 조사·평가하는 것임. ○ 둘째, 재정사업에 대한 성과계획의 적절성, 집행의 효율성, 성과목표 달성도 등 조성 사업의 성과를 종합적으로 분석하여 사업의 품질 향상을 위한 관리 방안을 도출하는 것임. ○ 셋째, 사업의 실태조사와 관리방안 도출을 통해 지원 임가에 대한 실질적이고 체계적 인 지원시스템을 구축하고, 문제점에 대한 개선방안을 마련하여 산림소득 보조사업의 효율성 제고 방안을 제안하는 것임.. 3. 주요 연구내용. ○ 산림작물 생산단지 조성사업의 현황 및 실태 조사·분석 - 산림작물 생산단지 조성사업 현황조사 - 산림작물 생산단지 임산물 생산구조의 실태 분석 - 산림작물 생산단지 임산물 유통 및 출하 실태 분석 ○ 산림작물 생산단지 조성사업의 모니터링 - 산림작물 생산단지 조성사업의 추진역량 - 산림작물 생산단지 조성사업의 현장품질.

(18) 4. - 산림작물 생산단지 조성사업의 문제점 ○ 산림작물 생산단지 조성사업의 성과 분석 - 산림작물 생산단지 조성사업의 지원효과 - 산림작물 생산단지 경영성과 분석 - 산림작물 생산단지 지원 및 운영상의 문제점 ○ 산림작물 생산단지 조성사업의 활성화 방안 - 임산물 가공 및 식품산업 연계 방안 - 산림작물 생산단지 경영활성화 및 육성방안 - 관련 법령 및 제도 개선방안. 4. 연구방법 및 범위. 4.1. 조사방법 ○ 산림작물 생산단지 조성사업의 실태조사는 사전조사와 현장조사 2단계에 걸쳐 수행 함. 사전조사에서는 산림작물 생산과 소비 현황 및 작물의 재배 특성 등에 대해 사전 조사하여 경영성과 분석에 품목별 재배 특성을 반영할 수 있도록 함. ○ 현장 조사에서는 2가지 부분에 초점을 맞춰서 조사를 진행함. - 산림작물 생산단지의 임산물 생산 및 유통․출하 실태에 대한 조사 - 각 사업체의 경영성과 분석을 위한 기초자료 수집을 병행함..

(19) 5. 그림 1-1. 연구개발 추진도. ○ 현장평가는 지자체의 산림소득 담당자와 사업자를 대상으로 함. - 지자체에서는 사업 추진과정에서 지자체의 역할과 지도 등에 대해서 조사함. - 사업자에게는 사업 운영의 성과와 애로사항 등에 대하여 청취 조사함. ○ 현장 면담조사를 통해 산림작물 생산단지 조성사업의 문제점을 도출하고 이에 대한 개선방안을 마련하여 사업이 활성화될 수 있는 방안을 제시함. - 관련 전문가 중심의 자문회의, 토론회 활용. 4.2. 분석방법 ○ 사업지원을 담당하는 지자체 공무원과 사업을 수행하는 사업자를 면담하고 설문조사 를 통하여 의견을 조사함. ○ 사업의 지원효과와 경영성과 도출을 위해 다음과 같은 지표를 분석함. 단, 임산물이 라는 특성을 감안한 경영성과 분석을 통해 현실적인 사업의 운영현황을 파악할 수 있 도록 함. - 생산액 분석: 사업체의 성과지표에서 사업성과를 직접적으로 나타내주는 지표이 므로 이를 파악하는 것이 중요함. 또 각 사업체가 소득 증대를 위해 주요 대상품목.