조선후기 환곡 이자와 추가 징수의 문제

Abstract

The grain loan system, which was enforced to protect reproduction of farmers, sometimes resulted in losses arising from merchandise operation process. At the outset, no interest was charged on grain loan. Later, some interests were charged on grain loans under the pretext of preventing losses arising from warehouse storage. In the 16th century, it became customary practice to impose 10% levy on grain loan. The customary grain levy aimed originally to supplement grain stocks which were declining naturally. In fact, the grain levy was nothing more than interest charge. The 10% interest charge on grain loan was practiced customarily from the 16th century before being codified and incorporated into legal system in mid 18th. The 10% interest paid on grain loan was main source of revenue that could be funneled into local government and provided a source of funding to plug the loss or shortage in operating the grain loan. However, some interest paid on grain loan began to be recorded in central government's account book, resulting in erosion of financial resources for local government officials. The interest rate which remained 10% at the outset was rising to 30% and 40% over time. The revenue from interest on grain loan provided by central government agencies, not by Hojo(Ministry of Taxation) or Ever-Normal Granary Office, was funneled wholly into central government's coffers. As greater share of revenue from interest on grain loan was earmarked for central government's expenditures, local government saw a decline in its share and attempted to impose additional levy on grain loan besides the interest charge. Such extra levy was actually tantamount to the 'extra tax paid in kind' or land tax, etc. Local government officials began to impose extra levy, called "Saekrak(色落)", in addition to the interest on grain loan, when they inspected and weighed grains collected from farmers. Such local government's extra levy was enforced customarily, not prescribed by laws. The customary "Saekrak(色落)" was levied in different amount for each region and gave rise to problems because excessively high levy was imposed in some regions. The problems arose from excessive levy, not "Saekrak(色落)" itself. Jeong Yak-yong, a renowned Silhak (Realist School of Confucianism) scholar in the late Joseon Dynasty, pointed out that 10% "Saekrak(色落)" levied additionally on grain loan became customary. In the latter period of Joseon Dynasty, farmers were imposed 20% levy on grain loan, which is a combination of interest charge and "Saekrak(色落)", in addition to principal amount. The central government gave its tacit approval to imposition of "Saekrak(色落)" because it was aware of financial strain on local governments. As a result, the central government did not take issue with imposition of "Saekrak(色落)" itself unless excessive amount was levied. Local government officials imposed "Saekrak(色落)" to secure local fiscal reserves, and sometimes used grain surplus generated from warehouse storage process to supplement local financial resources.