식량안보체계 구축을 위한 해외농업개발과 자원 확보 방안(1/3차연도) - 해외농업개발 전략의 기본방향 수립에 관한 연구 -

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(1)연구자료 D282 | 2009. 10.. 식량안보체계 구축을 위한 해외농업개발과 자원 확보 방안(1/3차연도) - 해외농업개발 전략의 기본방향 수립에 관한 연구 -. 허 김 송 이 김. 경 주 대 정. 장 덕 호 섭 승. 연 연 연 부 연. 구 위 구 위 구 위 연구위 구. 원 원 원 원 원.

(2) 연구 담당 허 장 김 경 덕 이 대 섭 송 주 호 김 정 승. 연구위원 연구위원 부연구위원 연구위원 연구원. 연구총괄, 해외농업개발 방향, 국가사례 분석 진출사례 분석, 국가사례 분석 관련법령 분석, 국가사례 분석 국제규범 분석 자료정리, 국가사례 분석.

(3) i. 머 리 말. 1,400만 톤 가량의 식량을 외국에서 수입하는 우리나라는 국제 농산물 가격 이 등락을 거듭할 때마다 우리 농업인, 농기업체가 해외로 나아가 식량을 개발 하고 국내로 반입하는 방안을 모색하여 왔다. 1960~1970년대는 농업이민이 성 공적인 결과를 얻지 못하였지만, 1990년대 이후에는 중국과 연해주를 비롯하 여 세계 곳곳의 다양한 분야에 진출하였다. 그러나 농산물 국제거래에서 내외국인 간 차별을 금지하는 국제적 규범이나 수출국의 제한조치 등으로 국내의 부족한 식량자원을 해외에서 확보한다는 당 초의 의도는 현실성이 떨어지게 되었다. 아울러 불안정한 국제적 여건변화에 따라 해외농업개발에 대한 정책적 지원의 비중이 달라지기도 했다. 이 연구는 해외농업개발이 세계적 식량 안보체계의 구축에 기여하고, 우리 농업이 국제적으로 진출함으로써 새로운 성장 동력원이 될 수 있도록 중장기 적･전략적으로 추진되어야 할 것을 제안한다. 해외농업개발은 민간주도로 추 진하되 정부가 제도의 정비, 구축을 통하여 이를 적극 지원하는 방식이어야 하며, 이를 위한 세부적인 방안들도 제시되었다. 몽골과 캄보디아, 미얀마, 연 해주의 일반적 현황과 농업여건에 관한 자료들과 함께, 이들 나라에 농업개발 을 위하여 진출할 때 그 방향을 어떻게 수립하여야 할 것인가에 관한 제안도 담고 있다. 해외농업개발에 관련된 많은 전문가, 농기업체, 농업인이 이 연구 결과에서 좋은 정보와 자료를 얻고, 자신의 분야에서 해결방안을 찾아내는 데 도움이 된 다면 연구자들이 큰 보람을 느낄 것이다.. 2009. 11. 한국농촌경제연구원장 오 세 익.

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(5) iii. 요. 약. 이 연구에서는 식량 혹은 식품 안보(food security)의 의미를 정리하여 해외 농업개발의 목적을 분명히 하고, 해외농업 진출의 역사적 진행과정을 파악한 뒤 향후 해외농업개발의 목표와 전략, 추진방향을 제시하였다. 그리고 몽골, 캄 보디아, 미얀마, 연해주에 대한 농업 등 개발가능성에 관한 정보를 제공하였다. 연구는 주로 문헌과 통계자료 분석, 현지 출장을 통하여 수집된 자료의 체계적 정리로 진행되었다. 해외농업개발의 개념적 범위와 관련하여, 해외농업개발은 세계적 차원에서 의 식량자원의 양적 개발과 공급을 포함한 식량 혹은 식품 안보체계 구축의 한 방안으로 개념화하고, 해외에서 개발된 농업자원의 국내반입만을 정책과제로 추진하는 것은 지양되어야 한다. 초기 해외농업 진출은 영농 부적지, 이민자의 영농경험과 의지 미흡 등의 이 유로 실패하였다. 1990년대 들어서 연해주 혹은 중국 등 근거리 중심으로 민간 기업과 민간단체가 농장개발에 진출하였고, 2000년대 들어서 보다 다양한 목 적과 형태로의 진출이 두드러졌고 이에 따라 민간주도, 정부지원의 분업화된 체계가 형성되기 시작했다. 진출현황을 보면, 지역별로는 아시아와 미주가 가 장 많고 진출분야는 도소매유통과 농장 및 생산형이 많다. 해외농업자원개발과 관련한 법적 근거는 ‘해외자원개발사업법’인데 융자금 면제와 같은 투자위험보증사업의 대상에 농업자원은 배제되어 있다. 해외에서 개발된 농산물을 국내에 수입할 때 WTO 등 국제규범에 따라 특혜를 줄 수 없 으며, 유사시 수출국의 수출제한이 우려되는 등 국내반입은 용이하지 않다. 따라서 해외농업개발은 우리 농업의 세계화와 신성장동력의 구축 및 해외농 업자원 확보 등 보다 다양한 목표를 추구하는 것으로 설정하여야 한다. 기본전 략으로는 민관 협력 체제를 구축하고 제도 및 추진체계를 정비하는 것이 필요 하다. 이에 따른 세부 추진전략을 제시하였다..

(6) iv 몽골에 대한 외국인 투자 시 내외국인 사이에 차별이 없지만 내수시장이 협 소하고 인력이 부족하다. 저장시설, 농업용수, 운송망 등 인프라도 미개발 상태 이다. 곡류와 채소류의 성장 잠재력이 있는 나라이다. 캄보디아는 사회적, 농업 인프라가 열악하다. 노동력이 풍부하고 외국인 투 자에 대한 차별이 없다는 점에서 유리하다. 그러나 넓은 임차 농지 확보가 어 렵고 관료들의 부패가 심하다. 미얀마는 다양한 기후조건과 지형을 가지고 있어서 맞춤형 농업생산이 가능 하다. 6,000만 명의 자국 인구와 주변의 인구대국을 위한 농산물 내수와 수출 이 모두 가능하다. 그러나 농업 인프라, 우수한 종자가 부족하고 서방의 경제봉 쇄가 지속되고 있다. 공업용 작물 혹은 환금작물을 재배하여 중국 등지로 수출 하는 방안을 고려할 만하다. 연해주의 강점은 가깝고 한국인의 농장 운영 경험이 많다는 점, 토지 자원이 풍부하다는 것이다. 그러나 농업기반 시설이 낙후되었고 농작물 재배기간이 짧 으며 인구가 적다는 점은 문제이다. 한국인 농장과의 합작투자가 초기투자비용 을 경감시킬 수 있을 것이다..

(7) v ABSTRACT. Overseas Agricultural Development for Food Security This study attempts to provide a future direction and strategies for international agricultural development by grasping the historical progress and constructing a reasonable definition of the international development. In addition, this study provides information on the possibilities of the development in Primorsky of Russia, Mongolia, Myanmar, and Cambodia. The conceptual scope of international agricultural development includes physical and economic access to safe, sufficient, and nutritious food as well as establishment of a food security system. However, a policy that only plans to bring in the agricultural resources that are developed overseas is not recommended. In the early days, international agricultural development failed because there was no appropriate information on the target countries. In the 1990s, however, private and public organizations with various purposes started to actively enter into overseas such as Primorsky of Russia, the American continent, and China. Most of them had engaged in the production of agricultural commodities. The legal foundation of international agricultural development has been "The Overseas Resource Development Act." However, agriculture has been excluded in the financial support of the Act. Moreover, the WTO stipulates that no preferential treatment shall be given to agricultural resources. When it comes to an emergency situation in a foreign country, there is also the high possibility of a trade ban on the commodities produced in the country. Therefore, international agricultural development has to aim at various purposes, such as establishment of globalization, new development motivation, and procurement of overseas agricultural resources. Constructing a private and public cooperation system should be the first priority for the development, and detailed objectives are suggested in the study. Mongolia has a tremendous potential for developing the grain and vegetable industries. However, their infrastructure, such as agricultural storage, water supply, and transportation, is underdeveloped. Similar to Mongolia, Cambodia has no secure infrastructure, but it has a strong.

(8) vi labor force and no discrimination to foreign direct investment. However, it is not easy to obtain a sizable land. Myanmar is proud of its diverse climatic and topographic conditions, which would be beneficial to agricultural production. It also shares boundaries with countries with a large population, such as China, India, and Bangladesh, but agricultural infrastructure and quality seeds are lacking. Moreover, the economic sanction by the western world still continues. The merits of Russia's Primorsky are its geographical proximity to Korea and the experience of many Koreans who have invested in the region since the 1990s. Also, it is not difficult to lease a sizable land in the region. However, similar to Mongolia and Cambodia, agricultural facilities in the region have fallen behind, and the agricultural population has been decreasing continuously. Therefore, a type of joint venture should reduce initial investment risks.. Researchers: Heo, Jang; Song, Joo-Ho; Kim, Kyeong-Duk; Lee, Daeseob; and Kim, Jeong-Seung E-mail address: heojang@krei.re.kr.

(9) vii. 차. 례. 제1장 서 론 1. 연구의 필요성과 목적 ·························································································· 1 2. 선행연구 검토 ······································································································· 5 3. 연구방법 ················································································································ 9 4. 주요 연구내용 ······································································································· 9. 제2장 해외농업개발의 의미와 추진과정 1. 해외농업개발의 의미 ·························································································· 12 2. 진출 현황 및 추세 분석 ····················································································· 18 3. 해외농업개발 지원제도 ······················································································ 31. 제3장 해외농업자원 개발 수입 관련 국제규범 1. 특혜 부여 가능성 ······························································································· 37 2. 보조금 지급 가능성 ···························································································· 45 3. 정부조달 가능성 ································································································· 47 4. 수출규제 관련 국제규정 ····················································································· 48. 제4장 해외농업개발의 방향 1. 목표 ····················································································································· 51 2. 기본전략 ·············································································································· 52 3. 세부 추진방향 ····································································································· 53. 제5장 국가별 분석 1. 몽골 ····················································································································· 62.

(10) viii 2. 캄보디아 ·············································································································· 77 3. 미얀마 ················································································································· 93 4. 연해주 ················································································································ 113. 제6장 요약 및 결론 ····························································································· 125. 부록: 1. 몽골 외국인투자 정책과 절차, 투자법 ·················································· 131 2. 캄보디아의 투자 관련 법령과 제도 ······················································· 148 3. 미얀마 투자 관련 법령과 제도 ······························································ 157 4. 연해주 농업 운영 관련 법과 제도, 무역 및 투자 시 애로 사항 ········· 163 5. 몽골 통계 ································································································ 176 6. 캄보디아 통계 ························································································· 180 7. 미얀마 통계 ····························································································· 194 참고 문헌 ·················································································································· 203.

(11) ix. 표 차 례. 제1장 표 1-1. 1차년도 주요 연구내용 ········································································ 10. 제2장 표 2-1. 영국 식량안보 지표 ·············································································· 17 표 2-2. 해외농업 진출방식(농장형) ·································································· 19 표 2-3. 해외농업 진출방식(유통형) ·································································· 19 표 2-4. 한국과 일본의 초기 해외농업개발의 특징 비교 ······························· 23 표 2-5. 1990년대 해외농업개발 진출 주요 사례 ············································ 25 표 2-6. 지역별 진출 형태 ·················································································· 28 표 2-7. 연도별 진출 지역 ·················································································· 29 표 2-8. 연도별 진출 형태 ·················································································· 30 표 2-9. 지역별 진출 형태별 평균 투자액 ······················································· 31 표 2-10. 해외농업개발 지원 법령의 변화 ························································· 35. 제3장 표 3-1. 주요 품목별 양허관세 적용물량 배정방식 및 추천대행기관 ·········· 41 표 3-2. 주요 국가 곡물 수출 규제 사례(2008. 2) ··········································· 48. 제4장 표 4-1. 공공-민간 부문 간 역할 정립 ······························································ 53 표 4-2. 해외농업개발 관련 조직 ······································································· 55.

(12) x. 제5장 표 5-1. 몽골 일반현황 ······················································································· 64 표 5-2. 몽골 토양의 특성 ·················································································· 65 표 5-3. GDP 구성 비율(경상가격 기준) ··························································· 66 표 5-4. 경제활동인구 중 농림업 종사인구 ······················································ 66 표 5-5. 농경지 면적 ··························································································· 67 표 5-6. 농업부문 생산액(경상가격) ·································································· 67 표 5-7. 곡물 생산량 및 생산성 ········································································ 68 표 5-8. 주요 작물별 자급률 ·············································································· 69 표 5-9. 작물별 파종시기 및 생육기간 ····························································· 69 표 5-10. 몽골의 SWOT ························································································ 72 표 5-11. 몽골 농업개발의 진출방향(요약) ························································· 76 표 5-12. 캄보디아 일반현황 ················································································ 78 표 5-13. 캄보디아의 최근 주요 거시경제지표(2004～2008년) ························· 80 표 5-14. 작물별 생산량(2007, 2008년) ······························································· 82 표 5-15. 옥수수 건조시설 현황 ·········································································· 84 표 5-16. 쌀 생산량 및 수급(2007년) ·································································· 85 표 5-17. 캄보디아 농업개발의 진출방향(요약) ················································· 92 표 5-18. 국가 개황 ······························································································· 94 표 5-19. 주요 지점별 강우량, 온도, 습도 ························································· 95 표 5-20. 미얀마 주요 경제지표 ·········································································· 96 표 5-21. 미얀마 설비별 발전용량 ······································································· 97 표 5-22. 미얀마 농업의 변천 ·············································································· 98 표 5-23. 토지 이용현황 ······················································································ 100 표 5-24. 농지 활용도의 변화 ············································································ 101 표 5-25. 주별 토지종류별 재배면적(2004～2005년) ········································ 102 표 5-26. 주요작물 재배면적과 비중 ································································· 103.

(13) xi 표 5-27. 주요 작물 생산량 ················································································ 104 표 5-28. 주요 작물별 수출량 ············································································ 105 표 5-29. 대 미얀마 외국인 투자현황 ······························································· 111 표 5-30. 미얀마 농업개발의 진출방향(요약) ··················································· 112 표 5-31. 제안된 유망작물 ·················································································· 113 표 5-32. 러시아 개황 ························································································· 114 표 5-33. 관개시설과 경작 여부에 따른 연해주 농경지 현황(2005년) ·········· 116 표 5-34. 연도별 농작물 파종 면적 ··································································· 117 표 5-35. 농산물 생산 추이 ················································································ 118 표 5-36. 아로 주식회사 연해주 농장 현황 ······················································ 120 표 5-37. 아로 프리모리에 농기계 보유 현황 ·················································· 120 표 5-38. 2008년도 아로 프리모리에의 생산 및 판매 실적 ··························· 120 표 5-39. 2008년 아로 프리모리에의 생산 원가 ·············································· 121 표 5-40. 연해주 농장개발 진출 SWOT 분석표 ··············································· 122. 부록 부표 1-1. 외국인투자 유치 우선분야 ····························································· 132 부표 1-2. 외국인투자 관련 기관 ··································································· 134 부표 4-1. 연방 국세청 및 주요지방 세무당국 인터넷 사이트 ···················· 166 부표 4-2. 설립 회사별 정관에 명시되어야 할 내용 ····································· 166 부표 4-3. 수입허가 대상 품목 ········································································ 173 부표 5-1. 성별 거주 인구 수(2007년 말 기준) ············································· 176 부표 5-2. 도시-농촌별 거주 인구 수(2007년 말 기준) ································· 176 부표 5-3. 2007년 평균 성별 거주 인구 수 ···················································· 176 부표 5-4. 지역별 도시-농촌 인구 비율 ·························································· 177 부표 5-5. 2007년 가격 기준 경제활동 부문별 GDP ····································· 178 부표 5-6. 경제활동 부문별 GDP 변화율 ························································ 179 부표 6-1. 벼 경작면적, 수확면적, 단수, 생산량 ··········································· 180.

(14) xii 부표 6-2. 주요작물 경작 면적 ········································································ 182 부표 6-3. 주요작물의 수확 면적(1987～2007년) ············································ 184 부표 6-4. 주요작물 생산량(1987～2007년) ····················································· 186 부표 6-5. 옥수수 주별 경작 면적(1985～2007년) ·········································· 188 부표 6-6. 옥수수 주별 생산량(1985～2007년) ··············································· 190 부표 6-7. 2000년 가격 기준 경제활동별 GDP(1993～2007년) ····················· 192 부표 7-1. 주별 인구 ························································································· 194 부표 7-2. 주요 작물 파종 면적 ······································································· 195 부표 7-3. 주요 작물 수확면적 ······································································· 196 부표 7-4. 쌀, 옥수수 생산량 ··········································································· 197 부표 7-5. 관개면적 ··························································································· 198 부표 7-6. 주요 상품 수출 ················································································ 198 부표 7-7. 가축 사육 현황 ················································································ 199 부표 7-8. 육류, 우유 및 달걀 생산량 ···························································· 199 부표 7-9. 목재 생산(티크 및 하드우드) ························································· 200 부표 7-10. 수확 방법별 어류 및 새우류 수확량 ············································ 200 부표 7-11. 농산물 수입액 ·················································································· 201.