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홈 / 시사 / 칼럼
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새마을운동재조명 58: 70년대 새마을운동 경험의 중요성 |
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새마을운동의 정책적 시사점
최근 한국의 새마을운동에 대한 개도국의 관심이 뜨겁다. 한국경제의 압축 성장을 이해하고 개발경험을 활용하기 위해서는 필히 새마을운동의 추진내용을 알아볼 필요가 있다고 하겠다.
한국의 새마을운동은 1970년 박정희대통령에 의해 제안되었다. 지금까지도 이 운동은 계속되고 있지만, 1970년대 새마을운동은 범국가적 차원에서 전개된 가장 성공적인 운동 기간이었다.
당시 한국농촌은 매년 4월∼5월이면 어김없이 ‘보릿고개’가 찾아올 만큼 어려운 형편에 놓여 있었다. 이때에 새마을운동은 ‘잘 살아 보세’라는 기치 아래 짧은 기간 내에 절대적인 빈곤문제를 해결하고 ‘농촌근대화’라는 가시적 성과를 거두었기 때문이다.
또한 새마을운동은 국민 참여라는 측면에서 유례가 없는 성공적인 국민운동이라 할 수 있다. 사실상 1970년대 한국사회는 새마을운동이 분위기를 좌우했다. 농촌 마을의 환경개선에서 시작된 농촌 근대화운동은 도시로 파급되었으며, 마침내 공장과 직장, 학교와 군부대까지 변화와 개선의 신바람을 불러일으키면서 새로운 국가건설을 위한 국민운동으로 확산되었던 것이다.
한국은 경제개발 5개년계획과 새마을운동의 추진으로 ‘한강의 기적’이라는 경이적인 경제발전의 토대를 마련하였다. 전자가 거시적, 하향적인 정부의 경제정책이라면 후자는 미시적, 상향적인 국민운동이라 말할 수 있다. 이 두 가지 개발정책은 70년대 한국경제의 고도성장을 이끈 비행기의 양 날개에 비유될 수 있다.
새마을운동은 농촌부흥을 위한 국가정책으로 시작되었으나 한국사회의 변혁을 통해 국가를 근대화 시키려는 범국민적인 사회운동으로 발전되었다. 새마을운동은 경제개발과 정신계발의 병행운동으로서 한국근대화의 원동력이 되었던 것이다.
새마을운동은 ‘잘 살아보세’라는 구호가 함축하고 있듯이 ‘가난으로부터의 탈출’을 소망하던 국민적 요구와 ‘조국근대화’를 추진하던 국가의 의지가 결합된 ‘잘 살기 위한 운동’이었다.
70년대의 새마을운동이 농촌경제에 미친 주요 효과를 살펴보면 다음과 같다. 첫째, 도농간 소득격차 문제를 해결했다. 새마을운동이 시작된 지 불과 4년 만에 농가소득은 도시가구소득을 앞지르기 시작했다. 이러한 현상은 1985년까지 지속되었다. 이는 각종 농정시책이 병행된 결과이지만 농민들의 역량을 결집시킨 새마을운동의 역할이 그 기반이 되었다고 할 수 있다.
둘째, 새마을운동은 농촌의 유휴 노동력을 활용한 고용증대 효과도 가져왔다. 1972년～1980년 사이에 새마을사업에 투입된 인력은 누계 18억 5,800만 명에 달한다. 1974년～1980년 동안에 실시된 다양한 유료 노임사업에는 78,000개 사업에 9,400만 명이 투입되어 2,260억 원의 임금이 지급되었다.
셋째, 저축 및 민간투자를 크게 증대시켰다. 농어촌 저축률은 60년대 소득대비 10%수준에서 70년대는 20%로 늘어나고 농협예금도 1963년 농민예금이 20.6%에 불과 했으나 1980년에는 50.5%로 늘어났다.
1971년∼1980년 10년간 총 새마을사업비 중 주민부담은 1조 6,912억 원으로 총 투자비의 49.4%에 달한다. 이중 현금이 34.1%, 노력 51.6%, 자재 11.8%, 토지2.1%, 기타 0.4%로 나타났다. 새마을사업 추진을 위해 주민들의 노력부담이 가장 큰 비중을 차지하고 있다. 그러나 주민부담 총액의 1/3을 현금으로 조달하고 있다는 사실은 새마을운동에 대한 주민들의 의욕과 자발적인 참여정도를 엿 볼 수 있는 좋은 증거라고 하겠다. 1972년의 마을단위 새마을사업은 32만 건이었으나 1978년에는 260만 건으로 8배 이상 증가했다. 1972년의 경우, 지역주민들이 새마을운동을 위해 제공한 현금･노동력･토지･기타물자의 환가 액은 273억 원으로 전체 새마을사업비에 투입된 재원의 86.6%를 차지할 정도로 주민참여의 열기는 높았다.
결과적으로 당시 농촌의 현안이었던 빈곤과 실업문제를 단기간에 해결했다.
70년대 새마을운동의 정책적 시사점은 다음과 같다.
첫째, 의식개혁과 효율적인 정책지원에 의한 빈곤퇴치의 교훈이다. 빈곤퇴치를 위해 먼저 농민들의 의식개혁에 주력했다. 농민들의 자조적․협동적 노력으로 가난을 극복할 수 있도록 정부의 전략적인 지원시책들이 펼쳐졌다
둘째, 종합적인 농촌자립화 정책으로 농촌근대화를 완수한 성공경험이다.
내부 지도자가 발굴되고 주민들의 자발성을 유인하는 다양하고도 전략적인 시책들이 펼쳐졌다. 고용과 소득증대를 위한 획기적인 정책들이 시행되었다.
셋째, 역동적인 사회개혁 분위기를 일구어낸 국민운동으로 발전시켰다.
농촌개발에서 획득한 교훈을 전 사회부문으로 확산시켜 사회개혁과 새로운 국가건설을 도모하는 국가근대화운동의 이념과 원리로 활용했다.
넷째, 수출주도형의 선 공업화 전략에서 새마을운동을 통해 농･공 병행 경제개발정책으로 정착했다. 새마을사업 추진을 위한 농촌지역의 투자확대로 농업생산성은 크게 향상되었다. 그 결과 농촌의 안정과 발전은 지속적인 산업발전의 뒷받침이 되었던 것이다.
정갑진
전 새마을중앙연수원 부원장
63호
2009.9.30
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15-07-09  |
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