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subject 새마을운동재조명(28): 새마을운동 초기 기반조성단계의 특성

1970년에 시작된 새마을운동은 올해로 36년의 긴 역사를 갖고 있다. 이 중 1973년부터 1987년까지는 정부에서 매년 공식적인 사업백서를 발간했다. 따라서 1987년 이전까지를 정부시책기로 볼 수 있으며, 이후는 민간운동기로 볼 수도 있다.

사업백서를 보면 정부는 전국 34,665개 모든 마을이 자립 마을로 발전 하게 될 1981년까지를 새마을의 1차적인 장기발전기간으로 설정했었다. 이 기간은 총 12년으로 제 4차 경제개발 5개년 계획을 마무리하는 시점과 일치함으로 새마을운동이 지니고 있는 농촌 근대화와 국가발전 기본전략으로서의 의미를 보여준다.

새마을운동이 처음부터 마스터플랜이나 로드맵을 갖고 시작된 것은 아니지만 1973년을 전후로 연도별 장기발전 목표가 수립 시행된 것이다. 우선 1971년~1973년은 기초 환경사업과 손쉬운 소득사업을 통하여 새마을정신을 점화, 가열하는데 중점을 둔 새마을운동의 기반조성단계이다. 1974년~1976년의 3년간은 자조발전단계이다. 생산기반사업과 복차소득사업을 통하여 농촌 표준 환경의 마무리와 생산기반확충에 역점을 두었다. 1977년~1981년까지의 5년간은 자립완성단계로 설정했다. 생산 소득기반의 완비와 농외소득원의 확대로 모든 마을을 표준 농촌으로 발전시키는 것이 목표였다. 특히 ´70년 기준 256천원의 농가소득을 140만원으로 끌어올려 5.5배 증가토록 계획되었다. ´70년 공정 환율 ($1: 290원)기준으로 가구당 $4,800수준이다.

초기 새마을운동의 성공적인 출범을 가져온 기반조성단계는 년도 별로 특성을 갖고 있는데 ´70년이 새마을운동의 태동기라면 ´71년은 실험기라 할 수 있다. ´72년은 기초점화기이며 ´73년은 새마을운동을 종합 체계화시킨 기반확립기로 성격 지을 수 있다. 기반조성단계 3년간 연인원 108,480천명, 년 평균 36,160천명이 새마을사업에 참여하였으므로 전 국민이 적어도 하루 이상 새마을 현장에서 땀 흘린 것으로 나타났다. 사업성과에 있어서도 3년간 총 사업비 1,399억 원 중 정부지원사업비는 248억 원에 불과하여 평균 5.6배의 성과가 나타났다. 특히 ´72년은 기초 환경 개선 사업에 역점을 두었던 해로서 정부투자대비 8.8배의 성과를 거두었다. 참여 마을이 10만원내외 규모의 사업을 년 평균 21건 정도 추진했고 ´73년에는 31건으로 새마을사업이 빠르게 확대되었음을 알 수 있다. 년도 별로 좀 더 자세한 추진내용과 특성을 살펴보면 다음과 같다.

´71년도의 새마을운동은 10대 새마을 가꾸기 사업으로 대변되는 실험사업기이다. 정부는 ´70년 10월부터 ´71년 6월까지 240일간 농한기를 활용하여 전국 33,267개 행정 리동에 양회 335포대씩을 무상으로 지원하면서 마을 숙원사업을 주민들의 힘으로 추진 할 것을 권장한다. 중요한 내용을 요약해 보면, (1)10대가꾸기 사업은 마을 조림, 진입로 확장, 소하천정비, 퇴비장 만들기, 소류지준설, 관정보수, 하수구정비, 공동우물•빨래터 만들기, 쥐잡기 등이다. (2)가꾸기 사업을 통해 3가지 시책에 반영 할 교훈을 얻었다. 즉 유능한 지도자 발굴 육성 방안, 주민들의 참여의식과 정신계발, 우수마을 우선 지원책의 수립 필요성이다. (3)시멘트 36억 원과 자재대 5억 원 도합 41억 원의 정부지원으로, 주민자력 55억 원과 자재대 26억 원 총 81억 원의 투자를 유발시켜 약 3배의 투자효과와 새마을정신을 배태시켰다.

´72년은 ´71년 성과를 바탕으로 체계적, 계획적, 본격적으로 추진된 해였다. (1) 전국마을 중 ´71년도 사업실적이 우수한 16,600개 마을에 한해서 시멘트 500포대와 철근 1톤을 추가 지원하는 시책을 폈다. (2) 지원에서 제외된 6,108개 마을이 자진 참여하여 총 22,708개 마을(68%)을 대상으로 추진되었다. (3) 새마을중앙협의회를 비롯한 행정 단계별로 지원협의체를 구성하여 부처별 정책을 조정하고 효과적인 지원체제를 확립했다. (4) 새마을 지도자연수원을 설립하여 본격적인 지도자 양성훈련을 실시했다. (5) 새마을사업이 국가시책의 최우선사업임을 공표했다. (6) 마을안길과 농로개설사업으로 농촌에 자동차 통행과 농업기계화가 가능해졌다. (7) 지붕개량으로 농촌 환경이 눈에 띄게 개선되었다.  (8) 기본 사업 외에 새마을지원사업으로 전국기간도로 주변 환경정비(국토 가꾸기)와 소하천 가꾸기 사업에 1,182천명을 취로케 하여 농외소득을 증대시켰다. (9) 새마을 우수 부락에 전기를 우선 공급하여 전화율 40%를 달성했다. (10) 새마을노래를 제정 보급하였다.

´73년에는 (1) 시도•시군구에 새마을지도과를 설치했다. (2) 농수산, 상공, 문교부 및 농협에 새마을 전담부서를 신설했다. (3) 새마을훈장제도를 제정하고 제 1회 전국새마을지도자 대회를 광주에서 개최했다. (4) 전국마을을 수준별로 기초, 자조, 자립 마을로 등급화 하여 관리했다. (5) 전국 모든 마을을 대상으로 시멘트 500포대와 철근 1톤을 균등 지원하였다. (6) 사업을 기본사업, 지원사업, 소득사업으로 구분 관리하였다. (7) 지원사업은 노임 사업과 문화 복지사업으로 추진되었다. (8) 전국에 1군 1자립 마을을 선정하여 총138개 마을에 농촌지도사를 상주시켰다. (9) 새마을공장 170개를 건립하였다. (10) 소하천 가꾸기와 마을 양묘사업을 마을 도급 방식으로 추진하여 50%는 노임, 50%는 마을 복차기금으로 조성시켰다. (11) 치산녹화 10년 계획을 수립하고 국민애조림사상을 보급하였다. (12) 마을당 평균 10회 이상 총회를 개최하여 총 19건의 안건을 의결 하였다. 이처럼 초기 3년 만에 새마을사업을 주민주도형으로 전환하는 계기가 조성 되었을 뿐만 아니라, 주민공동의 토론결정으로 자치능력을 배양하고 자조 협동하는 주민 조직화의 토대가 구축되었다. 이것은 민주주의 발전을 위한 귀중한 훈련 경험이라고 말 할 수 있으며 새마을운동의 또 다른 성과를 엿보게 한다는 점에서 매우 큰 의미가 있다.


丁甲鎭
새마을운동중앙연수원 부원장

29호

wty123 16-11-30 
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