The task of increasing agricultural production beyond simple recovery from the Korean War was not easy. The country's sparse agricultural resources limit agricultural growth. Climate, terrain, and soil conditions are not particularly favorable for farming. Only about 18 percent of the total landmass, or approximately 2.2 million hectares, is arable; the major portion of the country is rugged mountain terrain. The weather varies markedly according to elevation, and lack of precipitation, along with infertile soil, makes land at elevations higher than 400 meters unsuitable for purposes other than grazing. Precipitation is geographically and seasonally irregular, and in most parts of the country as much as half the annual rainfall occurs in the three summer months. This pattern favors the cultivation of paddy rice in warmer regions that are outfitted with irrigation and flood control networks. Where these conditions are lacking, however, farmers have to substitute other grains for the traditional favorite.
Farming is concentrated in the flatlands of the four west coast provinces, where a longer growing season, level land, adequate rainfall, and good, irrigated soil permit the most intensive cultivation of crops. A narrow strip of similarly fertile land runs through the eastern seaboard Hamgyng provinces and Kangwn Province, but the interior provinces of Chagang and Yanggang are too mountainous, cold, and dry to allow much farming. The mountains, however, contain the bulk of North Korea's forest reserves while the foothills within and between the major agricultural regions provide lands for livestock grazing and fruit tree cultivation.
Since self-sufficiency remains an important pillar of North Korean ideology, self-sufficiency in food production is deemed a worthy goal. Another aim of government policies--to reduce the "gap" between urban and rural living standards--requires continued investment in the agricultural sector. Finally, as in most countries, changes in the supply or prices of foodstuffs probably are the most conspicuous and sensitive economic concerns for the average citizen. The stability of the country depends on steady, if not rapid, increases in the availability of food items at reasonable prices. In the early 1990s, there also were reports of severe food shortages.
The most far-reaching statement on agricultural policy is embodied in Kim Il Sung's 1964 "Theses on the Socialist Agrarian Question in Our Country," which underscores the government's concern for agricultural development. Kim emphasized technological and educational progress in the countryside as well as collective forms of ownership and management. As industrialization progressed, the share of agriculture, forestry, and fisheries in the total national output declined from 63.5 percent and 31.4 percent, respectively, in 1945 and 1946, to a low of 26.8 percent in 1990. Their share in the labor force also declined from 57.6 percent in 1960 to 34.4 percent in 1989.
Resource development in agriculture is a crucial means for increasing agricultural production, recognizing the unfavorable natural endowments--topography, climate, and soil. This development consists of what North Koreans call "nature-remaking" projects. These projects generally increase the quantity of arable land, and rural investment projects, which, in turn, increase the yield of the available land through increased capital and improved technology. "Nature-remaking" projects include irrigation, flood control, and land reclamation. Rural investment projects consist of mechanization, electrification, and "chemicalization"--that is, the increased use of chemical fertilizers and pesticides.
Despite priority allocation of state funds for heavy industry, North Korea has achieved considerable success in irrigation since the Korean War. Irrigation projects began with paddy fields and then continued to non-paddy fields. Irrigated land increased from 227,000 hectares in 1954 to 1.2 million hectares in 1988. North Korea claimed that paddy field irrigation was completed by 1970. In 1990 there were more than 1,700 reservoirs throughout the country, watering 1.4 million hectares of fields with a ramified irrigation network of 40,000 kilometers, which irrigated about 70 percent of the country's arable land. Water-jetting irrigation of non-paddy fields was introduced in the 1980s. In 1989 construction began on a 400- kilometer canal by diverting the flow of the Taedong River along its west coast.
Rural electrification has progressed rapidly. The proportion of villages supplied with electricity increased from 47 percent in 1953 to 92 percent of all villages by the end of 1961. The process of extending electrical lines to the rural areas reportedly was completed in 1970. The annual supply of electricity to the rural areas reached 2.5 billion kilowatt-hours toward the end of the 1980s.
Mechanization is another agricultural target. By 1984 mechanization had reached the level of seven tractors per 100 hectares in the plains and six tractors per 100 hectares in the intermediate and mountainous areas. The fact that the same tractor ratios are quoted in official pronouncements of the early 1990s probably indicates that there is no further improvement in these ratios, and that the planned target of ten tractors per 100 hectares by the end of the Second Seven-Year Plan in 1984 still has not been met. Given the disappointing output record of tractors in recent years, it is doubtful that the target of ten to twelve tractors per 100 hectares will be fulfilled by the end of the Third Seven-Year Plan in 1993. Nonetheless, North Korea claimed that 95 percent of rice planting was mechanized and that there were 5.5 rice transplanting machines per 100 hectares of paddy fields in 1990.
Chemical fertilizers receive much government attention and investment because of their importance for agriculture. Most fertilizers are produced by the enormous fertilizer plant in H ngnam, which has an annual capacity of 1 million tons. According to official claims, the output of 4.7 million tons in 1984 compared with 3 million tons in 1976, had fulfilled the 1978-84 plan target. Judging from a foreign estimate of 3.5 million tons in 1990, however, production of chemical fertilizers has been deteriorating. The Sariwn Potassium Fertilizer Complex, which has an annual capacity of 3 million tons of potassium feldspar, began construction in 1988 and when completed is expected to raise the country's potassium fertilizer capacity to 500,000 tons, aluminum capacity to 420,000 tons, and cement capacity to 10 million tons per year. In his 1991 New Year's address, Kim Il Sung noted that the complex still was under construction.
By 1977 the "chemicalization" process had increased the average fertilizer application to 1.3 tons per hectare and 1.2 tons per hectare, respectively, for paddy and non-paddy fields, and the 1984 target of two tons per hectare was claimed to have been achieved. The target of the Third Seven-Year Plan is to increase the rate to 2.5 tons. In a 1991 "advisory note" addressing the North Korean economy for the years 1992-96, the United Nations Development Programme (UNDP), the only international agency resident in P'yongyang, warned that the practice of intensive chemicalization has led to land degradation--that is, declining soil fertility, falling organic matter content, erosion and soil acidification, and water pollution, with resulting environmental damage.
The objectives of the "nature-remaking program" launched in 1976 are to complete the irrigation of non-paddy lands, to reclaim 100,000 hectares of new land, to build 150,000 hectares to 200,000 hectares of terraced fields, to reclaim tidal land, and to conduct afforestation and water conservation projects. The reclamation of 6,200 hectares of tideland at Taedong Bay was underway as part of the 1987-93 plan to reclaim a total of 300,000 hectares of tidal land. The largest land reclamation scheme, the West Sea Barrage, involves an eight-kilometer-long sea wall across the Taedong River, and was completed in June 1986. The multipurpose project, five years in construction at a reported cost of US$4 billion, consists of a main dam, three locks, and thirty-six sluices, and reportedly was the longest dam in the world as of 1992.
Production and Distribution of Crops and Livestock
The total cropland of about 2.2 million hectares is overwhelmingly planted with grains, of which rice accounted for 30.1 percent in 1989-90. Official data on cropland distribution and agricultural production are scanty, and there are discrepancies in the methods of calculating the weight of rice (husked or unhusked). North Korea claims to have produced 10 million tons of grains in 1984. The grain output in 1989 was estimated at 12.04 million tons by the Food and Agriculture Organization (FAO) of the United Nations. In 1989 the output of the two most important crops, rice and corn, was estimated at 6.4 million tons and 3 million tons, respectively. The output of potatoes was 2.05 million tons in 1989. Other important crops are wheat, barley, millet, sorghum, oats, and rye. Corn grows in most areas, except for parts of Yanggang and North Hamgyng provinces. Barley and wheat are cultivated mostly in both Hwanghae provinces and in South P'yngan Province. Rice is exported, but other grains, such as wheat, are imported. P'yongyang's goal is to increase the grain output to 15 million tons by 1993.
Major rice production centers are located in the provinces of North and South Hwanghae and in the provinces of North and South P'yngan. North Korea's climate precludes double-cropping of rice in most areas, and different methods had to be devised to increase productivity. One method is to use cold-bed seeding, a process that enables farmers to begin rice growing before the regular season by planting seedlings in protected, dry beds.
Fruits, vegetables, and livestock also are important, particularly around cities and in upland areas unsuited to grain cultivation. Fruit orchards are concentrated in both Hamgyng provinces, South P'yngan Province, and South Hwanghae Province. Soybeans, whose output was around 450,000 tons toward the end of the 1980s, are raised in many parts of the country, but primarily in South P'yngan Province.
The post-Korean War trend of increasing the share of livestock in the total value of agricultural output continued during the 1980s, judging from the steady growth, which outpaced grain production. Cattle are raised in the mountainous parts of the two P'yngan provinces, and sheep and goats are kept in the rugged areas of the two Hamgyng provinces and in Yanggang and Kangwn provinces. Pigs and poultry, probably the most important types of livestock, are raised near P'yongyang and in North P'yngan and South Hwanghae provinces. The government is particularly proud of its large chicken farms.
According to a 1988 agreement with the UNDP, North Korea was to receive livestock aid from the UNDP, along with assistance in modernizing vegetable farms, fruit production and storage, rice cultivation, and construction of a fish farm and soil and plant experimental stations. A rice nursery and a vegetable research institute began operation in March 1991. The Third Seven-Year Plan called for attaining an annual output of 1.7 million tons of meat, 7 billion eggs, and 2 million tons of fruit by 1993.
In the early 1990s, there were persistent reports of severe food shortages as a result of several years of consecutive crop failures, coupled with distribution problems that had serious consequences for food rationing. An indirect admission of food shortages came in Kim Il Sung's 1992 New Year's address, in which he defined 1992 as the "year of put-greater-efforts-into- agriculture" in order to provide the population with sufficient food.
Organization and Management
Efforts to increase agricultural production include a variety of experiments with land tenure, farm organization, and managerial techniques. Following a typical communist pattern, land initially was redistributed to tillers in a sweeping land reform in 1946 soon after the communists took over the country. By 1958 private farming, which ironically was given a boost by land reform, was completely collectivized.
The Land Reform Act of March 1946 had, in the remarkably short period of one month, abolished tenancy and confiscated and redistributed more than 1 million hectares of land. The government reallocated most of the land formerly owned by the Japanese colonists and all properties exceeding five hectares to individual farming households. The number of peasant holdings increased dramatically, but the average size of individual holdings dropped from 2.4 hectares to 1.4 hectares. It was difficult to determine the effect of such massive land distribution on production because the Korean War interrupted farming in the early 1950s. The reform, however, was quickly replaced by a drive for collectivization.
During the 1954-58 transition period, farm holdings went through three progressively collective phases: "permanent mutualaid teams," "semisocialist cooperatives," and "complete socialist cooperatives." In the final stage, all land and farm implements are owned collectively by the members of each cooperative. The pace of collectivization quickened during 1956, and by the end of that year about 80 percent of all farmland was cooperatively owned. By the time this process was completed in August 1958, more than 13,300 cooperatives with an average of eighty households and 130 hectares of land dotted the countryside. Only two months later, however, the government increased the size of the average cooperative to 300 households managing 500 hectares of land through consolidation of all farms in each ri, or ni (village, the lowest administrative unit) into one. As a result, the number of cooperatives decreased but their average size increased. Judging from the timing of the consolidation of farms, this sudden decision to increase the size of the cooperatives appears to have been influenced by the introduction of communes in China. Newly consolidated farms established and operated such nonagricultural institutions as clinics, rest homes, day nurseries, schools, and community dining halls.
Each cooperative farm elects a management committee to oversee all aspects of farm activity, including retail services and marketing, and the local party committee closely supervises its management. The party committee chairman usually is the vice chairman of the management committee. Within the management committee, an auditing unit wields the most power and controls the management of farm accounts, work points, cooperative shops, and credit facilities. Auditors report to the plenary session of the management committee as well as to county authorities.
The basic unit of production and accounting on the cooperative farm is the work team, which is further divided into subteams. Most cooperatives have several agricultural work teams and at least one animal husbandry work team. In some cooperatives, work teams or subteams specialize in vegetable farming, sericulture, fruit cultivation, aquaculture, or other activities. Work is allocated to teams and subteams according to physical ability. Most able-bodied men and women are assigned to rice growing units, which require the most effort. Wages are distributed in both cash and kind.
State farms are considered the more ideologically "advanced" agricultural organizations. Both the means of production and output are state owned, and farmers receive standardized wages on the basis of an eight-hour workday rather than shares of production. Managers of state farms, appointed by the state farm bureau of the national-level Agricultural Committee, run the farms as if they were industrial enterprises. State farms often are coterminous with a county and are model farms that experiment with new cropping methods or specialize in livestock or fruit production. Their larger scale allows for greater mechanization, and their output per worker is undoubtedly higher because their operations are more efficient than those of the rural cooperative farms. State farms attempt to integrate all county agricultural and industrial activities into one complementary and integrated management system. Utilizing about 10 percent of the country's total cropland, they contribute about 20 percent of total agricultural output. Kim Il Sung often stresses the need for transforming agriculture from cooperative ownership to "allpeople 's" or state ownership, but as of 1993 no action had been taken to change cooperative farms to state farms.
Dissatisfied with low levels of agricultural production, the government developed a new administrative structure to perform for the rural cooperatives what the management of state farms is supposed to have accomplished. The county Cooperative Farm Management Committee, established in 1962, took over all the economic functions of the county people's committees. The new committee was to bring agricultural management closer to the ideal "industrial method," by "the strengthening of technical guidance of production and the planification and systematization of all management activities of the enterprise."
The composition of the management committee varies from county to county, but the staff usually consists of agronomists, technicians, directors of county agricultural agencies, and, where appropriate, forestry and fishery agents. The function of the committee is to set production targets for the cooperatives within its jurisdiction, allocate resources and materials necessary to achieve these goals, and monitor the payment of wage shares and the collection of receipts. County managers report to their counterparts at the provincial-level Rural Management Committee, who in turn direct all their reports to the General Bureau for Cooperative Farm Guidance at the national-level Agricultural Committee.
In spite of lagging agricultural output, there have been no significant changes in the agricultural organization and management system in place since the early 1960s. Furthermore, as exemplified by Kim Il Sung's exhortation to strengthen the application of the Ch'ongsan-ni Method of farming, no fundamental changes in the agricultural incentive system have been introduced. The strategy for achieving greater agricultural production continues to emphasize "industrialization" of agriculture through increased irrigation, fertilizer use, and mechanization while maintaining the existing administrative, management, and incentive systems.
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