我国政策性农业保险发展问题研究
发布时间：2018-08-13 12:20
【摘要】： 农业是人们利用植物、动物、微生物的生长机能,通过人工控制和培育以获得产品的基础产业,容易受到多种自然灾害和环境变化(如旱、涝、风、冰雹、寒潮、病虫害等)的影响。我国作为农业大国和自然灾害频发国家,探索建立符合中国国情的政策性农业保险制度,分散农业风险,保护农业生产者利益,既是降低农业生产系统性风险、保障农业健康持续发展的客观要求,也是发展现代农业、建立现代农村金融制度的迫切需要。 本论文试图运用准公共产品理论、博弈理论、制度变迁理论等作为分析工具,系统总结研究我国政策性农业保险的发展历程,比较分析国内外政策性农业保险典型模式,并专门考察山东省政策性农业保险试点探索情况。在此基础上,对影响我国政策性农业保险发展的重大问题进行深入研究和理性思考,提出相关政策建议。 本文的研究内容和主要结论如下: (一)梳理了政策性农业保险生成与发展的相关理论基础,认为建立政策性农业保险制度事关农业稳定持续发展,既有坚实的理论支撑,也是一项重要而又紧迫的现实问题。准公共物品理论分析表明,无论是多风险或一切险,农业保险都具有准公共产品的基本特征,需要政府在制度供给、环境营造和财政补贴等方面发挥不可或缺的作用,这是政策性农业保险生成的根本原因。博弈论分析表明,政府的支持和引导,可以有效调动农业保险经营者开办业务、农民参加保险的积极性和主动性,是实现政府、农业保险经营者、农民三个相关行为主体互动平衡的主导因素。制度变迁理论分析表明,制度在发展中处于基础和根本的地位,研究发展问题必须把制度建设作为重点,突出制度设计和实施的相关内容,其中政府推动农业保险制度变迁的动力最强,可以运用行政、经济或法律手段诱导和强制农业保险制度变迁,并履行相应的职责。福利经济学理论分析表明,政府支持开展政策性农业保险,可以大大增加社会总福利。农业弱质性理论、国际贸易理论和农业多功能理论分析表明,政策性农业保险属于政府对自然灾害的补偿和救济内容,实施的意义广泛而重要,并且对国际贸易不产生扭曲作用,是WTO框架下政府加强对农业支持保护的重要措施。 (二)按照政府干预和扶持力度的强弱,可将我国政策性农业保险的发展历程大体划分为早期波折阶段(1950-1993年)、制度缺失阶段(1994-2003年)和恢复试点阶段(2004年至今)。其中,1994年以前的农业保险是政策性农业保险的一种萌芽形态和简单形式,2004年是商业性农业保险和政策性农业保险的另一个重要分界时点。通过分析我国政策性农业保险发展历程、曲折成因及其启示表明,对于政府、农业生产者和保险公司三个行为主体而言,政府财政补贴等相关优惠政策的实施力度,决定着政策性农业保险的实际供给水平和农民有效需求水平。没有政府的积极介入和有力支持,我国政策性农业保险就很难有稳定、持续发展,更难以摆脱曲折、徘徊、萎缩的发展困境。这一历史实践也启示我们,政府采取合理的方式积极介入,尽快确立政策性农业保险的法律地位,不断加大财政补贴和政策支持力度,完善相关配套政策措施,是促进政策性农业保险健康发展、不断在更高水平上实现供求均衡的关键。 (三)2004年以后,我国多个省份开展了政策性农业保险的试点探索,主要形成了上海安信、黑龙江垦区阳光相互制、吉林安华、新疆建设兵团中华联合、浙江共保体等五大典型模式。这五种模式的相同点体现在:地方政府主导推动政策性农业保险发展、兼顾运用市场和行政手段实现保险规模扩张、采取有效措施预防和分散风险以及实行“以险养险”等方面,这些制度设计有效推动了试点工作的开展。同时,受经济发展水平和政策性农业保险基础开办条件的限制,五种模式在区域特色、经办主体、保险对象、保障方式与程度、政府扶持力度、扩散效应等方面有所差异。这些发展模式的探索实践启示我们,制度设计是否合理、财政补贴是否有力是影响政策性农业保险发展的重要因素。 (四)2006年,山东省正式启动政策性农业保险试点工作。从对山东省政策性农业保险试点探索情况的专门考察来看,试点取得了较好效果,特别是在帮助试点地区农户分散农业风险、推动农业生产等方面发挥了积极作用。但由于政策性农业保险属于新生事物,在山东省刚刚起步,制度设计还不够成熟和完善,仍存在不少问题,主要体现在行政色彩比较浓厚、巨灾风险准备金制度不够完善、保险责任与农民实际需求有一定差距、个别险种保险责任认定困难、农民群众保险意识淡薄且消费能力有限等诸多方面,特别是农户、保险公司、政府三者相互平衡关系还没有完全建立的问题,成为制约今后山东省政策性农业保险发展的主要因素。 (五)从世界范围看,约有40多个国家推行政策性农业保险,较为典型的有以美国、加拿大、日本、法国为代表的发达国家模式,以菲律宾为代表的发展中国家模式,以及前苏联模式。这些国家的实践证明,要想实现政策性农业保险的可持续发展,需要健全的法律保障、强有力的政府支持、完善的再保险和巨灾风险分散机制、专设的管理机构、适合本国国情的发展模式。另外,由于自然条件和经济社会发展水平的差异,各国的政策性农业保险在险种与承保范围、保险责任、实施方式等经营层面上也有显著不同。这些国家政策性农业保险的实践启示我们,应积极借鉴国外发展政策性农业保险的有益经验和一般规律,结合国情,加强制度创新,健全完善法律和政策支持体系,推动我国政策性农业保险健康发展。 (六)在我国建立科学、有效、完善的政策性农业保险制度,是一项长期而复杂的系统工程,不可能一蹴而就,需要立足中国国情,大胆探索,抓住关键,勇于实践,积极推进,逐步建立具有中国特色的政策性农业保险制度。这其中的关键因素和环节主要包括:加强立法,尽快完善政策性农业保险法律制度;设立农业风险管理机构,统筹全国政策性农业保险发展;健全政策性农业保险财政补贴制度,提高财政资金使用效率;建立农业巨灾风险分散转移制度,多渠道分散农业生产的自然风险;完善政策性农业保险税收制度,促进承保公司可持续发展;建立政策性农业保险与农业信贷投放相结合制度,实现农村银保互动发展;坚持自愿与适度强制相结合,为提高参保率提供制度保障;建立政策性农业保险保费资金使用与监管制度,确保资金保值增值。
[Abstract]:Agriculture is a basic industry in which people use the growth function of plants, animals and microorganisms to obtain products by artificial control and cultivation. It is vulnerable to various natural disasters and environmental changes (such as drought, waterlogging, wind, hail, cold wave, diseases and insect pests). Policy-based agricultural insurance system, dispersing agricultural risks and protecting the interests of agricultural producers, is not only the objective requirement to reduce the systematic risks of agricultural production and ensure the healthy and sustainable development of agriculture, but also the urgent need to develop modern agriculture and establish a modern rural financial system.
This paper attempts to use quasi-public goods theory, game theory, institutional change theory as analytical tools to systematically summarize and study the development of China's policy-based agricultural insurance, comparative analysis of typical models of domestic and foreign policy-based agricultural insurance, and a special study of Shandong Province's policy-based agricultural insurance pilot exploration. This paper makes an in-depth study and rational thinking on the major issues concerning the development of policy-oriented agricultural insurance in China, and puts forward relevant policy recommendations.
The research contents and main conclusions are as follows:
(1) Combing the relevant theoretical basis of the formation and development of policy-based agricultural insurance, it is considered that the establishment of policy-based agricultural insurance system is related to the stable and sustainable development of agriculture, which is both a solid theoretical support and an important and urgent practical problem. The basic characteristics of quasi-public goods require the government to play an indispensable role in system supply, environment construction and financial subsidy, which is the fundamental reason for the formation of policy-based agricultural insurance. Polarity and initiative are the dominant factors to realize the interaction and balance among the government, agricultural insurance operators and peasants. The theoretical analysis of institutional change shows that the system is in the basic and fundamental position in development. The government has the strongest impetus to promote the change of agricultural insurance system. It can use administrative, economic or legal means to induce and enforce the change of agricultural insurance system and perform corresponding duties. The theoretical analysis of agricultural multi-function shows that policy-based agricultural insurance belongs to the government's compensation and relief for natural disasters. Its implementation is of great significance and has no distorting effect on international trade.
(2) According to the strength of government intervention and support, the development of China's policy-based agricultural insurance can be roughly divided into the early twists and turns (1950-1993), the absence of the system (1994-2003) and the restoration of the pilot stage (2004-present). Among them, agricultural insurance before 1994 is a budding form and simplification of policy-based agricultural insurance. Single form, 2004 is another important demarcation point between commercial agricultural insurance and policy-based agricultural insurance. By analyzing the development course of policy-based agricultural insurance in China, the tortuous causes and Its Enlightenment show that, for the three main actors of government, agricultural producers and insurance companies, government financial subsidies and other related preferential policies are effective. Without the active involvement and strong support of the government, it will be difficult for China's policy-based agricultural insurance to have a stable and sustainable development, and even more difficult to get rid of the development dilemma of twists and turns, hesitation and shrinkage. Actively intervening, establishing the legal status of policy-based agricultural insurance as soon as possible, increasing financial subsidies and policy support, and perfecting relevant supporting policies and measures are the keys to promoting the healthy development of policy-based agricultural insurance and achieving a balanced supply and demand at a higher level.
(3) After 2004, a number of provinces in China have carried out pilot exploration of policy-oriented agricultural insurance, mainly forming five typical models: Shanghai Anxin, mutual sunshine system in Heilongjiang reclamation area, Jilin Anhua, China Union of Xinjiang Construction Corps, Zhejiang Commonwealth of Insurance, etc. The development of insurance, taking into account both market and administrative means to achieve the expansion of insurance scale, taking effective measures to prevent and disperse risks, and implementing "insurance by insurance" have effectively promoted the pilot work. At the same time, restricted by the level of economic development and the conditions for the establishment of a policy-based agricultural insurance foundation, five models have been developed. The exploration and practice of these development models reveal that whether the system design is reasonable and whether the financial subsidy is effective are the important factors affecting the development of policy-based agricultural insurance.
(4) In 2006, Shandong Province formally launched the pilot work of policy-based agricultural insurance. From the special investigation of the pilot work of policy-based agricultural insurance in Shandong Province, the pilot project has achieved good results, especially in helping farmers in the pilot areas to disperse agricultural risks and promote agricultural production. Occupational insurance is a new thing. In Shandong Province, the system design is not mature and perfect. There are still many problems, mainly reflected in the administrative color is relatively strong, the catastrophe risk reserve system is not perfect, there is a certain gap between the insurance liability and the actual needs of farmers, the identification of individual insurance liability is difficult, and the insurance intention of farmers. There are many problems, such as poor knowledge and limited consumption capacity, especially the balance among farmers, insurance companies and the government has not yet been fully established, which have become the main factors restricting the development of policy-oriented agricultural insurance in Shandong Province in the future.
(5) From a worldwide perspective, more than 40 countries have implemented policy-based agricultural insurance, typically the developed countries represented by the United States, Canada, Japan and France, the developing countries represented by the Philippines, and the former Soviet Union. In addition, due to the differences in natural conditions and the level of economic and social development, the policy-oriented agricultural insurance in various countries should be implemented in the range of insurance coverage, insurance liability and implementation. The practice of these countries'policy-based agricultural insurance shows that we should actively draw lessons from the useful experience and general laws of foreign countries in developing policy-based agricultural insurance, strengthen institutional innovation, improve the legal and policy support system, and promote the healthy development of policy-based agricultural insurance in China.
(6) Establishing a scientific, effective and perfect policy-based agricultural insurance system in China is a long-term and complicated systematic project, which can not be accomplished overnight. It is necessary to base on China's national conditions, explore boldly, grasp the key points, practice boldly and push forward actively, and gradually establish a policy-based agricultural insurance system with Chinese characteristics. The links include: strengthening legislation, perfecting the legal system of policy-based agricultural insurance as soon as possible; establishing agricultural risk management institutions, coordinating the development of policy-based agricultural insurance throughout the country; perfecting the financial subsidy system of policy-based agricultural insurance, improving the efficiency of the use of financial funds; establishing the system of dispersing and transferring agricultural catastrophe risks, and diversifying agricultural production through multiple channels. Natural risks; Improving the policy-based agricultural insurance tax system to promote the sustainable development of insurance companies; Establishing a policy-based agricultural insurance and agricultural credit delivery system to achieve the interactive development of rural banking and insurance; Adhering to the combination of voluntary and moderate compulsion to provide institutional guarantee for increasing the rate of insurance participation; Establishing a policy-based agricultural insurance premium fund to enable Ensure that funds are maintained and increased with the supervision system.
【学位授予单位】：山东农业大学
【学位级别】：博士
【学位授予年份】：2009
【分类号】：F842.6
本文编号：2180972
[Abstract]:Agriculture is a basic industry in which people use the growth function of plants, animals and microorganisms to obtain products by artificial control and cultivation. It is vulnerable to various natural disasters and environmental changes (such as drought, waterlogging, wind, hail, cold wave, diseases and insect pests). Policy-based agricultural insurance system, dispersing agricultural risks and protecting the interests of agricultural producers, is not only the objective requirement to reduce the systematic risks of agricultural production and ensure the healthy and sustainable development of agriculture, but also the urgent need to develop modern agriculture and establish a modern rural financial system.
This paper attempts to use quasi-public goods theory, game theory, institutional change theory as analytical tools to systematically summarize and study the development of China's policy-based agricultural insurance, comparative analysis of typical models of domestic and foreign policy-based agricultural insurance, and a special study of Shandong Province's policy-based agricultural insurance pilot exploration. This paper makes an in-depth study and rational thinking on the major issues concerning the development of policy-oriented agricultural insurance in China, and puts forward relevant policy recommendations.
The research contents and main conclusions are as follows:
(1) Combing the relevant theoretical basis of the formation and development of policy-based agricultural insurance, it is considered that the establishment of policy-based agricultural insurance system is related to the stable and sustainable development of agriculture, which is both a solid theoretical support and an important and urgent practical problem. The basic characteristics of quasi-public goods require the government to play an indispensable role in system supply, environment construction and financial subsidy, which is the fundamental reason for the formation of policy-based agricultural insurance. Polarity and initiative are the dominant factors to realize the interaction and balance among the government, agricultural insurance operators and peasants. The theoretical analysis of institutional change shows that the system is in the basic and fundamental position in development. The government has the strongest impetus to promote the change of agricultural insurance system. It can use administrative, economic or legal means to induce and enforce the change of agricultural insurance system and perform corresponding duties. The theoretical analysis of agricultural multi-function shows that policy-based agricultural insurance belongs to the government's compensation and relief for natural disasters. Its implementation is of great significance and has no distorting effect on international trade.
(2) According to the strength of government intervention and support, the development of China's policy-based agricultural insurance can be roughly divided into the early twists and turns (1950-1993), the absence of the system (1994-2003) and the restoration of the pilot stage (2004-present). Among them, agricultural insurance before 1994 is a budding form and simplification of policy-based agricultural insurance. Single form, 2004 is another important demarcation point between commercial agricultural insurance and policy-based agricultural insurance. By analyzing the development course of policy-based agricultural insurance in China, the tortuous causes and Its Enlightenment show that, for the three main actors of government, agricultural producers and insurance companies, government financial subsidies and other related preferential policies are effective. Without the active involvement and strong support of the government, it will be difficult for China's policy-based agricultural insurance to have a stable and sustainable development, and even more difficult to get rid of the development dilemma of twists and turns, hesitation and shrinkage. Actively intervening, establishing the legal status of policy-based agricultural insurance as soon as possible, increasing financial subsidies and policy support, and perfecting relevant supporting policies and measures are the keys to promoting the healthy development of policy-based agricultural insurance and achieving a balanced supply and demand at a higher level.
(3) After 2004, a number of provinces in China have carried out pilot exploration of policy-oriented agricultural insurance, mainly forming five typical models: Shanghai Anxin, mutual sunshine system in Heilongjiang reclamation area, Jilin Anhua, China Union of Xinjiang Construction Corps, Zhejiang Commonwealth of Insurance, etc. The development of insurance, taking into account both market and administrative means to achieve the expansion of insurance scale, taking effective measures to prevent and disperse risks, and implementing "insurance by insurance" have effectively promoted the pilot work. At the same time, restricted by the level of economic development and the conditions for the establishment of a policy-based agricultural insurance foundation, five models have been developed. The exploration and practice of these development models reveal that whether the system design is reasonable and whether the financial subsidy is effective are the important factors affecting the development of policy-based agricultural insurance.
(4) In 2006, Shandong Province formally launched the pilot work of policy-based agricultural insurance. From the special investigation of the pilot work of policy-based agricultural insurance in Shandong Province, the pilot project has achieved good results, especially in helping farmers in the pilot areas to disperse agricultural risks and promote agricultural production. Occupational insurance is a new thing. In Shandong Province, the system design is not mature and perfect. There are still many problems, mainly reflected in the administrative color is relatively strong, the catastrophe risk reserve system is not perfect, there is a certain gap between the insurance liability and the actual needs of farmers, the identification of individual insurance liability is difficult, and the insurance intention of farmers. There are many problems, such as poor knowledge and limited consumption capacity, especially the balance among farmers, insurance companies and the government has not yet been fully established, which have become the main factors restricting the development of policy-oriented agricultural insurance in Shandong Province in the future.
(5) From a worldwide perspective, more than 40 countries have implemented policy-based agricultural insurance, typically the developed countries represented by the United States, Canada, Japan and France, the developing countries represented by the Philippines, and the former Soviet Union. In addition, due to the differences in natural conditions and the level of economic and social development, the policy-oriented agricultural insurance in various countries should be implemented in the range of insurance coverage, insurance liability and implementation. The practice of these countries'policy-based agricultural insurance shows that we should actively draw lessons from the useful experience and general laws of foreign countries in developing policy-based agricultural insurance, strengthen institutional innovation, improve the legal and policy support system, and promote the healthy development of policy-based agricultural insurance in China.
(6) Establishing a scientific, effective and perfect policy-based agricultural insurance system in China is a long-term and complicated systematic project, which can not be accomplished overnight. It is necessary to base on China's national conditions, explore boldly, grasp the key points, practice boldly and push forward actively, and gradually establish a policy-based agricultural insurance system with Chinese characteristics. The links include: strengthening legislation, perfecting the legal system of policy-based agricultural insurance as soon as possible; establishing agricultural risk management institutions, coordinating the development of policy-based agricultural insurance throughout the country; perfecting the financial subsidy system of policy-based agricultural insurance, improving the efficiency of the use of financial funds; establishing the system of dispersing and transferring agricultural catastrophe risks, and diversifying agricultural production through multiple channels. Natural risks; Improving the policy-based agricultural insurance tax system to promote the sustainable development of insurance companies; Establishing a policy-based agricultural insurance and agricultural credit delivery system to achieve the interactive development of rural banking and insurance; Adhering to the combination of voluntary and moderate compulsion to provide institutional guarantee for increasing the rate of insurance participation; Establishing a policy-based agricultural insurance premium fund to enable Ensure that funds are maintained and increased with the supervision system.
【学位授予单位】：山东农业大学
【学位级别】：博士
【学位授予年份】：2009
【分类号】：F842.6
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