원예작물 자조금제도 발전방안 } : 한국농촌경제연구원

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연구보고서

원예작물 자조금제도 발전방안

2010.09.01 52760

과제성격

수탁보고서(C2010-20)
저자

이용선, 김태균; 이선령; 홍나경
등록일

2010.09.01
연구주제

농업정책일반.

요약문

원예작물 자조금제도가 도입 품목 수나 자조금 조성액 등 양적으로는 매우 빠르게 성장하였지만 질적으로는 아직 개선되어야 할 점이 여러가지 지적되고 있다. 이 연구는 원예 자조금 제도를 도입한지 10년이 지난 시점에서 원예자조금의 운영 방식과 성과에 대해 평가하고 이를 바탕으로 원예자조금제도의 발전 방안을 제시하기 위해 수행되었다.

The checkoff program for horticultural crop was first introduced in 2000 in order to ease supply excess by promoting consumption. This study has the purpose of assessing the operation status and achievements of the horticultural crop checkoff program and proposing the direction to be headed based on the assessments.
The horticultural checkoff program first began with paprika and kiwi, and until 2009 it had expanded to cover 26 crop items and its total value grew to KRW 16.4 billion. A survey was conducted against 32 open field producer groups and found that the respondents gave relative high marks on awareness and necessity of the checkoff program, but expressed the neutral opinion for their satisfaction with the program and the introduction of the mandatory program. In general, the advanced greenhouse-based horticultural farmers tend to show higher awareness of the checkoff program and their awareness has increased compared with 2006.
Regarding the support for making the checkoff program mandatory, the farmers with longer cultivation career, higher crop export ratio and high awareness of the program and its necessity tend to be more supportive. In particular, it was found that in this group of respondents, the relevance to the satisfaction with the checkoff program was the highest at 0.63. According to the survey result, it is found that key consideration items by farmers to decide their participation in the checkoff system include the level of government support, the checkoff amount level and the participation ratio by other producers. It was also found that the marginal willingness to pay by checkoff attribute is estimated to be KRW 476.5 per year per 3.3 square meter for 10% increase in the government's matching fund subsidy ratio, and the amount is equal to 47.7% level of the current checkoff payment amount of KRW 1,000.
Currently, the checkoff program (operation) has several challenges. First, the awareness and participation by producers (producer groups) is still low. Second, the checkoff organizations are not properly representing each crop item (industry). Third, project planning and administration are unskillfully handled because of the lack of administrative workers. Fourth, there are not many research and development activities (inefficient) under way, and the checkoff program is regarded as one-off event. Fifth, the government's engagement in determining checkoff crop items and providing support is not adequate.
Given the challenges above, the checkoff program should be basically developed further by i) strengthening the self-assistance effort of producers, ii) reinforcing expected effects (performance) of the checkoff programs, iii) ensuring the transparency and efficiency in management and operation, and iv) improving existing policies and building linkage. Horticultural crop types can be classified depending on the representation of checkoff producer groups, checkoff payment probability, demand expansion possibility and level of policy reflection. Open field vegetables require supply and demand management and the link with processing sectors(industries). On the other hand, greenhouse horticulture and fruits need domestic consumption promotion and export. For open field vegetables, the checkoff program shall be put in place together with the supply/demand stabilization program, the distribution agreement execution, the operation of local level checkoff programs and the integrated management of the nationwide checkoff program. Greenhouse-based horticulture and fruits should also develop the nationwide checkoff program composed of farmers and producer groups. For paprika and orchids which are advanced cultivating items, the checkoff program needs to be mandatory and it should be expanded to similar items over time.
In the mid/long term, in the anticipation of growing competition among crop items (industries), the checkoff program needs to be operated by a comprehensive organization which covers all crop types to enhance more effective project development and performance. To this end, the most reasonable option is the current organizations are all recognized as independent departments and are integrated into one step by step.
The mandatory checkoff program requires most producers of concerned items to pay checkoff with an aim to expand the checkoff resources and address the free-ride issue. According to a feasibility study where checkoff group's representation, ability to pay checkoff by farmers, appropriateness of payment timing and inclusion within policy projects were researched, it was concluded that the mandatory checkoff program can be introduced over a short term only for paprika, orchid and a few similar crop items. Therefore, it is recommended to introduce the mandatory checkoff program for a few items and then expand the application to other items on a step-by-step basis.
To cement the checkoff program's legal ground, a bill known as the agricultural produce checkoff act (tentative named) shall be passed into a law. The bill shall include purpose, definition, installation of mandatory and temporary checkoff programs, the usage and resources of checkup programs, the cap of checkoff amount and the collection agency. If this kind of law does not seem to be passed into act, related existing provisions shall be included into the agriculture stabilization act to provide legal base for this initiative. Mandatory checkoff program needs to include the member voting mechanism, which will ensure justification of the program by asking members for its continuation. In Korea, some items are cultivated by a large number of farmers, and for such items, representatives should be selected to speed up decision-making process.
It is essential to make the management and operation of the checkoff program more transparent and effective. To this end, the checkoff management committees should be integrated and the joint secretariats shall be in operation for better project effects and cost saving. The mandatory establishment of the checkoff management committee and the development of related operational provisions are needed as well. Most of all, producers' participation is the most important. Training programs should be developed and used to promote their participation. The government shall respect checkoff organization's self autonomy but offer its mid/long-term guideline for guidance and supervision, helping them boost their capacity in the planned and gradual manner.

Researchers: Yong-Sun Lee, Tae-Kyun Kim, Sun-Lyung Lee, Na-Kyoung Hong
Research period: 2010. 4. - 9.
E-mail address: yslee@krei.re.kr