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에티오피아의 토지 보유 체계와 토지 정책

Land Tenure Systems and Land Policies in Ethiopia

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한국아프리카학회 (Korean Association Of African Studies)|2015.06|한국아프리카 학회지 (Journal of the Korean Association of African Studies)|제44권 |pp. 141-180

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참고문헌

키워드

소유권corruptionownership부패토지 정책에티오피아 인민혁명민주전선EPRDF토지 보유 체계land tenure systemland policy
주제분류학제간연구

초록

이 글의 목적은 19세기 후반 이래 에티오피아의 토지 문제를 고찰하는 데 있었다. 이러한 목적 하에 이 글은 세 개의 상이한 시대 즉, 황제 시대, 더그 시대, 에티오피아 인민혁명민주전선 시대의 토지 보유 체계를 살펴본 후에, 토지 정책의 주요 쟁점과 문제를 검토하였다. 황제 시대에는 다양한 형태의 토지 보유 체계―예컨대 리스트, 세몬, 마데리아, 게바르 등―가 존재했다. 황제들과 엘리트 집단은 자신들의 권력을 유지하고 영속화하기 위해 토지를 통제했다. 지배 계급 구성원들은 토지를 통해 많은 혜택을 누렸으나, 대다수의 민중은 소작인의 삶을 살면서 불안정한 토지권 때문에 고통을 받았다. 1974년에 집권한 더그 정권은 그 이듬해인 1975년에 토지를 국유화하고, ‘토지는 경작자에게로’라는 슬로건 하에 토지 개혁을 단행하여, 수세기 동안 존속했던 봉건 체제를 철폐했다. 1991년에 집권한 현 정부는 국민에게 토지 소유권을 부여함으로써, 구시대의 토지 보유 체계를 청산할 것으로 기대되었다. 그러나 현 정부는 더그 정부와 마찬가지로 농촌과 도시의 모든 토지와 천연자원에 대한 소유권을 가지고 있다. 그 결과 농촌 주민은 보유권(사용권)을, 그리고 도시 주민은 차지권을 가지고 있을 뿐이다. 이러한 현상은 현 정권의 토지 정책이 더그 정권의 토지 정책과 본질적으로 다르지 않음을 보여 준다. 그간 에티오피아에서는 토지 정책과 관련된 다양한 논쟁이 발생해 왔다. 주된 논쟁은 토지를 누가 소유하는 것이 국가 발전에 도움이 되느냐 하는 것이었다. 정부의 입장에 따르면 토지는 ‘사회적 평등’과 ‘보유의 안정성’을 위해 국유 재산으로 관리되어야 한다. 정부는 국가의 토지 소유권이야말로 농민을 시장의 힘으로부터 보호할 수 있는 최상의 기제라고 주장한다. 그러나 에티오피아의 토지 문제를 연구하는 사람들의 대부분은 토지 이용자들이 보유의 불안에 시달리게 되면, 토지 생산성의 향상을 기대하기 어렵다고 주장한다. 토지 정책을 시행하는 과정에서 발생하는 각종 부패 문제도 에티오피아 사회의 발전을 저해하는 주요인 중 하나로 간주되고 있다. 이러한 부패 현상은 토지 관련 제도와 정책 자체의 문제뿐만 아니라 이것들을 시행하는 데 필요한 인적․물적 자원의 문제에서 비롯된다.

Abstract

This article aims to examine the land tenure systems and land policies in Ethiopia since the late 19th century. The present paper explored the issues and problems of land policy, after reviewing the land tenure systems of three different periods, i.e., the imperial, Derg and Ethiopian People’s Revolutionary Democratic Front periods. During the imperial regime, there were diverse forms of land tenure systems―e.g., rist, semon, maderia and gebar―in Ethiopia. Emperors and the elite controlled land in order to maintain and perpetuate their power. The dominant class members enjoyed a lot of benefits from land, whereas the majority of common people suffered from insecure rights to land while living a life as tenants. It was in 1974 when the military government called the Derg came to power. The Derg regime nationalized all land in Ethiopia and carried out land reform under the slogan of “Land to the Tiller” in 1975 so as to abolish the feudal system which had survived over several centuries. When the Ethiopian People’s Revolutionary Democratic Front came to power in 1991, it was expected that it will abolish the old land tenure system, by providing ownership of land to people. However, the present government, just like the Derg government, has owned all land in rural and urban areas and natural resources. As a result, rural people have had only land holding rights and urban people have just leasehold rights. This phenomenon shows that the Derg regime and the present regime are not different essentially in terms of land policy. There have been diverse debates in Ethiopia concerned with land policy. The major debate is related to ownership of land. The government argues that state ownership of land is the best mechanism which enables peasants to protect against market forces. However, many students assert that, if land users suffer from insecurity of tenure, land productivity cannot be expected. In addition, various forms of corruption, which are found in the process of executing land policy, have been one of the major factors which hinder the development of Ethiopian society. It is no doubt that such corruption has been derived from the problem of human and material resources as well as that of institutions and policies related land.

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