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subject 새마을운동재조명(29): 새마을운동 방식의 특성과 노하우(1)

새마을운동은 독특한 지역사회개발 모델로 종래의 학문적 이론이나 개발경험을 뛰어넘는 특성이 있다. 한국의 비약적인 경제 발전을 뒷받침한 세계사적으로도 유례가 드문 새마을운동방식이 갖는 노하우는 최근 어려운 한국농촌문제 해결을 위한 접근방식으로 아직도 유용하다. 새마을운동의 노하우를 10가지로 정리해본다.

1 새마을운동은 3농문제(三農問題)의 종합대책 운동: 새마을운동 이전의 농정시책은 농업을 경제적으로만 접근했었다. 농업은 상대적으로 투자효율이 낮은 쇠퇴산업이라는 생각에서 농업투자는 기피 또는 경시되었다. 그러나 산업화가 빠르게 진행되면서 농업은 산업적 기능 못지않게 농촌•농민이라는 사회•경제적인 기능이 있다는데 착안한 것이 새마을운동이다. 즉 농촌의 ①급격한 사회 변동에 대한 완충적 안전판 역할 ②산업공해에 대한 방파제적인 역할 ③자연보호와 고유전통문화의 보존 역할 ④도시민들의 정신적 고향, 재충전의 역할 ⑤식량 안보기지로서의 역할 ⑥산업인력공급기지와 공산품의 시장 역할 ⑦홍수 등 재해방지 역할에 주목하게 되었다.

새마을운동은 이러한 농촌의 순기능을 살리기 위해 우선순위를 종래의 농정시책과는 역(逆)방향으로 잡았다. 농업보다는 농민, 농민보다는 농촌의 개발에 우선순위를 두면서 새마을사업은 농촌의 생활환경개선→농민의 정신계발→농업의 증산과 소득증대라는 단계로 추진되어 투자순위의 최하위로 밀렸던 농촌의 생활환경개선사업이 최우선 투자부문이 되면서 증산위주의 농정시책에만 끌려오던 농민들의 의사(意思)가 지역사회 개발의 주체적 의사로 형성 되어 농민들의 자각과 새로운 의욕이 촉진되었다.

이러한 농촌•농민•농업의 종합개발이라는 새마을운동의 접근방식이 정체된 한국농촌에 혁명적 농촌근대화의 불을 지폈던 것이다.

2 사업과 마을은 단계별로 추진되고 관리되었다: ① 마을의 기초적 생활환경의 개혁을 통하여 주민의 정신을 계발하고 이러한 정신적 바탕 위에서 소득증대가 실현되도록 이른바 단계적 구현원칙을 취했다.

②손쉽고 자금과 위험부담이 적으며 가시적 성과가 나타나는 사업부터 우선적으로 추진했다. 환경개선 사업도 지붕개량, 담장고치기, 마을 안길 넓히기 등 손쉽게 함께 할 수 있는 기초 환경개선부터 시작했다. 마을회관이나 공동목욕탕의 건립 등 문화 복지시설 확충사업은 그 다음단계에서 추진되었다. 보다 많은 자금과 높은 수준의 기술을 필요로 하는 주택개량, 취락구조의 개선사업은 훨씬 나중에 추진되었다. 소득증대사업도 초반에는 퇴비증산, 객토, 시한영농 등 쉬운 사업부터 우선적으로 추진되었다. 즉 새마을사업은 노동협동의 단계에서 시작하여 축적된 경험과 기술, 협동정신을 바탕으로 점차 기술협동으로, 그 다음 자본협동의 단계로 발전되어 왔음을 알 수 있다.

③초기 새마을가꾸기 사업은 자재지원을 통한 <점화자극>단계, 마을총회의 <사업선정>, 사업추진 방법을 모색하는<계획수립>, <협동작업>, <사업완공>단계를 통한 증거→보람, 자신감고취→새로운 의욕과 도전을 창출토록 하는 5단계 과정을 거쳐 실현하도록 지도하였다.

④모든사업은 기본사업-지원사업-소득사업으로 기능별 단계화로 구분하고 유관부처를 지정하여 지원하였다.

⑤전국의 농촌 마을은 그 발전수준에 따라 기초마을, 자조마을, 자립마을로 계층화, 단계화 하여 육성되었다. 마을수준별로 표준사업과 8개의 평가지표가 설정되었다. 마을수준별 요건을 미리 명시해 놓음으로써 주민들이 앞으로 무엇을 어떻게 해야 할 것인가를 스스로 판단 할 수 있게 하였고 상위등급 마을로 발전하도록 주민들의 단합과 도전정신을 일깨웠다. 정부는 1981년까지 전국 모든 마을이 자립마을로 승급 할 수 있도록 계획하였는데, 1979년 말에 조기달성하고 이후 자영마을, 복지마을을 추가 신설하여 관리하였다. 이처럼 단계별 추진과 철저한 관리체계로 주민들에게 자신감과 의욕을 고취시켰고 시행착오를 줄여 나갔던 것이다.



丁甲鎭
새마을운동중앙연수원 부원장

30호 (2006.11.20)

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