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subject 새마을운동의 재조명(39): 80년대 새마을운동의 특성과 의의

90년대 이후 새마을운동은 순수민간운동으로 방치되면서 관심 밖으로 밀려났다. 앞으로 새마을운동이 활성화되려면 80년대처럼 민관 파트너십이 복원되어야 한다.

새마을운동을 제대로 평가하려면 새마을운동의 역사적 흐름을 이해해야 한다. 새마을운동의 1차 중장기발전 목표는 제4차 경제개발5개년계획이 끝나는 1981년 까지 마무리되게 되었으나, 이미 1979년도에 농가소득과 전국마을의 자립화 계획이 완성되어 사실상 2년 앞당겨 조기 달성되었다. 1980년대의 새마을운동은 1970년대 10년간의 성공적인 기반조성단계를 거쳐 본격적인 확산발전단계를 예고했었다. 그러나 1979년 12월, 새마을운동을 진두지휘 해온 박정희 대통령의 유고로 새마을운동은 뜻밖에 위기를 맞게 된다. 1980년대에는 새마을운동사에 있어 매우 중요한 의미를 갖는 두 가지 사건이 있다. 즉 1980. 12. 1. 새마을운동 중앙본부가 창립된 것과 1988. 12. 31자로 새마을운동의 정부 주관부서인 내무부 새마을과가 국민운동지원과로 개칭한 것이다. 전자가 민간주도 새마을운동으로의 출범을 알리는 일이라면, 후자는 이제 새마을이란 명칭이 중앙정부 직제에서 사라진 것이다.

따라서 80년대 새마을운동의 첫 번째 특성은 정부 주도의 새마을운동에서 민・관 공조운동으로 전환되었다는 사실이다. 새마을 추진체제도 70년대식 관 주도조직에서 혼합형조직으로 바뀌었다. 정부의 유관부서가 모여 새마을운동을 지원하는 새마을운동 중앙협의회와 정부 직제는 그대로 유지된 채, 새로운 민간차원의 조직이 중앙에서 현장에 이르기까지 체계를 갖추고 함께 새마을사업을 추진하게 된 것이다. 1980. 12. 13. 새마을운동 조직육성법이 제정되고 1981년부터는 민간분야 새마을업무가 대폭 이양되기 시작했다. 즉 새마을국민교육, 새마을홍보, 새마을지도자관리, 민간조직 육성관리(내무부), 공장새마을운동(상공부), 새마을청소년회 육성(농수산부), 새마을부녀회 운영지도(보사부)사업 등 10건을 시작으로 새마을지도자 포상 추천, 농어촌후계자 발전육성, 새마을가족계획 계도사업 등이 추가로 이양되었다. 그러나 종래의 정부예산에 의한 물량사업은 정부 직제가 존치될 때까지 계속되었다. 마지막 정부 새마을사업백서가 발간된 1987년의 경우만 하더라도 새마을사업 건수는 1,137천 건으로 마을당 평균 31건이 추진되었다. 투자도 총 1조 1,687억원으로 사상 최대규모이며, 이중 정부투자는 1조 14억원으로 86%를 차지한다. 이는 새마을운동 시작해인 1970년 정부 투자액 41억 원의 240배에 해당하는 규모이다.

둘째, 농어촌 사업은 단순한 소득증대차원을 넘어 새마을 복지기반의 확충에 주력하였다. 모든 농촌마을이 자립마을로 승급하면서 마을지표 관리도 자립, 자영, 복지마을로 상향 조정하게 된다. 소득 향상과 함께 문화・복지생활 관련 사업들이 다양하게 추진되었다. 즉, 우수새마을 특별지원사업, 새마을소득 종합개발사업, 취락개선・주택개량사업, 위생급수사업, 의료・보건사업, 농어촌전화사업, 새마을협동유아원 건립, 농어촌후계자 육성 등이다.

셋째, 마을단위 사업에서 생활권역 사업으로 점차 사업추진 단위가 광역화된다. 새마을협동권사업, 새마을소득 종합개발지원사업, 소도읍 가꾸기 등이 그 좋은 예다. 한편 농어촌 중심의 새마을운동이 본격적으로 도시 새마을운동과 직능운동으로 확대되기도 했다. 직장・공장새마을운동, 학교 새마을운동, 군새마을운동이 관련 부처의 책임하에 적극적으로 추진되었다.  
넷째, 지역사회 개발보다 국민정신 개혁운동이 더욱 강조되었다. 이는 주민들의 자조사업이 점차 한계가 드러나면서, 국가적 프로젝트에 대한 국민들의 관심과 참여 필요성이 대두되었기 때문이다.

특히 ‘86아세안게임과 ’88올림픽 대비 새마을운동을 중점과제로 선정하여  범국민적 질서, 친절, 청결운동을 대대적으로 전개하였다. 정신질서, 행동질서, 환경질서 등 3대 질서운동을 더욱 강화하는 한편 서비스 종사자 등 다양한 계층을 대상으로 새마을 국민교육을 확대 실시하였으며, 전국토 공원화사업으로 깨끗하고 아름다운 거리 조성에 역점을 두었다. 따라서 70년대 새마을운동이 지역사회 개발운동의 성격이 강했다면 80년대 새마을운동은 국민정신운동의 성격이 두드러졌다고 말할 수 있다.  

이처럼 80년대 새마을운동은 민주도화, 복지화, 광역화, 정신운동화 하는 특성을 갖고 있다. 이러한 특성은 오늘날의 새마을운동 방향성에 대한 단초를 열었다는데 큰 의의가 있다. 80년대의 관・민 혼합조직체제는 이후 새마을운동단체가 운동의 주체가 되고, 정부는 행・재정적 지원기능으로 역할분담이 이루어진다. 그러나 90년대 중반 이후는 정부차원의 예산 지원이 중단되는 등 순수민간운동으로 방치됨에 따라 새마을운동은 점차 국민들의 관심 밖으로 밀려나게 되는 것이다. 따라서 앞으로의 새마을운동 활성화를 위해서는 80년대의 새마을 추진체제에서 엿보듯이 민・관의 효율적인 파트너십이 복원되어야 한다는 것이다. 이것이 80년대 새마을운동에서 발견할 수 있는 두 번째의 중요한 교훈이자 의의라고 말할 수 있다.

정갑진  
새마을운동중앙연수원 부원장          

No.41
2007.11.22

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