잠비아의 토지 개혁과 관습 토지권(customary land rights)의 연관성에 대한 고찰
Analyzing the Connection Between Land Reform and Customary Land Rights in Zambia.
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잠비아 정부는 독립 후 토지법 1995를 제정했고 관습 토지에 사는 농민이 자신의 토지를 임대차 계약 토지로 전환할 수 있게 했다. 이는 관습 토지에 사는 농민의 토지권을 강화할 것으로 기대되었다. 하지만 관습 토지의 토지 임대권을 취득한 잠비아인의 약 90%가 도심지역에 사는 부유층이다. 또한, 잠비아 관습 토지에 외국 투자자와 기업이 진출하면서 농민이 자신들의 토지에서 쫓겨나고 있다. 본 논문은 토지법 1995가 관습 토지에 사는 농민의 토지권을 보호하지 못하는 원인을 분석한다. 본 연구는 관습 토지에 사는 농민의 약한 토지권은 식민지 시대부터 현재까지 적용되는 이중 토지 보유권 체계가 국유지와 관습 토지에 사는 잠비아인 사이의 빈부격차를 크게 만들었기 때문이라고 주장한다. 식민지 정부와 유럽 정착민은 비옥하고 광물이 있는 크라운 랜드에 정착했고 잠비아인은 저질의 토질, 숲, 사냥터 등으로 조성된 관습 토지로 이주했다. 독립 후에도 잠비아 토지는 국유지와 관습 토지로 나뉘었고 대부분의 잠비아 농민은 관습 토지에 정착하고 있다. 즉, 식민지 시대부터 현재까지 관습 토지에 사는 잠비아인에게 부를 창출할 기회가 제한되었다는 것을 뜻한다. 이는 부를 축적하지 못한 농민이 관습 토지를 임대차 계약 토지로 전환하는 것을 어렵게 만들어 그들의 토지권 강화를 불가능하게 한다. 또한, 잠비아 개발청 설립과 투자자를 유치하려는 잠비아 정부의 정책은 외국 투자자와 기업이 잠비아의 관습 토지에 진출하는 것을 쉽게 했다. 그리고 막대한 자금을 가진 외부 투자자가 관습 토지를 사유지로 전환했고 이는 결과적으로 해당 지역의 농민을 다른 곳으로 쫓아내고 있다. 잠비아 농민의 토지권이 더욱 약해지면 관습 토지 내 불평등이 높아지고 해당 지역 내에서 암묵적인 이중 토지 보유권 체계가 형성될 수 있다. 이는 잠비아의 경제, 정치, 사회 등 다양한 문제로 이어질 수 있다. 잠비아 정부는 이러한 문제를 예방하기 위해서 장기간 관습 토지에서 살아온 잠비아 농민의 토지 전환 비용을 낮춰야 한다. 이는 현실적으로 잠비아 농민의 토지권을 강화할 방안이기 때문에 향후 토지법과 정책 제정 시 적용되어야 한다.
Abstract
The implementation of the Land Act 1995 enabled Zambian farmers living on customary land to convert their customary land rights into leasehold tenures. This opportunity was expected to secure the Zambian farmers’ land rights. However, there are more individuals from urban centers obtaining title deeds on customary land than local farmers. In addition, farmers living on customary land are often displaced as more foreign investors and companies lease large areas of customary land. Thus, despite the commencement of Land Act 1995, the Zambian farmers’ customary land rights is not properly secured. This paper aims to analyze and identify the main reasons for the weak customary land rights of farmers in Zambia. This paper finds that the dual land tenure system that has persisted from colonial period to the present is the main reason for the weak customary land rights of Zambian farmers. As farmers have been living on customary land consisting of infertile land, forests and game land, they have been unable to accumulate wealth. Therefore, they cannot pay the cost of obtaining the leasehold title. It is only the wealthy Zambians and foreign investors who can afford to pay the land transfer fees. This inequality could lead to the establishment of dual land tenure system within customary land, which could lead to greater economic, political and social problems in the country. To prevent this from happening, the government of Zambia should reduce the fees for the farmers living on customary land to convert their land into a leasehold.
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