农产品法律问题研究
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摘要
自1979年农村经济体制改革以来,我国农业和农村经济发展取得了举世瞩目的成就:农业的投资增加,投资效益提高,农业基础设施得到改善;主要农产品产量大幅增加,国内农产品市场供求平衡;农业结构进一步优化;农业的科技水平日益提高;农产品出口不断增加,出口结构更加完善,比较优势进一步突出。但是,目前我国农业与农村形势依然不容乐观,这集中体现为农产品的生产的产业化、流通的市场化和贸易的一体化程度都不太高,这进而影响了我国农产品竞争力的提升。而我国目前的农业和农村经济的发展状况在很大程度上又是受制于农业立法的,我国的农产品立法目前还存在着诸多问题,这些问题突出表现为:立法薄弱,同农业大国和农业的基础地位很不相称;立法滞后,与农业发展的要求不相适应;具有浓重的计划管理的色彩和痕迹,难以适应市场经济的需求;政策性、原则性较强,规范性和可操作性差。
西方经济学一直存在着国家干预和反国家干预的争论。经济法也在国家干预主义与自由放任主义的矛盾运动中的逐步成长和发展起来,并成为国家干预经济的一种重要形式。经济的不断发展使人们逐渐认识到,经济自由主义政策和国家干预政策都不完美,自身都存在难以弥补的缺陷。所以,只有两种政策相结合、同行并举,才能取长补短,使经济平稳发展,而经济法的重要目的之一就是要界定“需要”国家干预的范围和限度。但是一直以来,经济法学对关于国家职能问题的研究,基本上是将其视为一种当然的结论,对国家经济职能的范围和限度本身则缺乏详尽的分析,这种认识如果得不到纠正则可能影响对经济立法和实施的评价。因此,本文运用经济法中国家干预理论作为理论杠杆,以其阐释我国农产品产业化、市场化、一体化面临的突出法律问题。
要实现农业的产业化发展,就需要加大对农业的资金投入,而农业的基础地位和自身的一些特点又使得国家财政对农业的资金投入,即财政对农业的支持和保护,显得至关重要。公共财政理论从农业的基础地位、农业的弱质性、农业生产要素的公共产品或准公共产品性质、农产品在供给与需求方面具有特殊性、农业比较利益偏低以及加入WTO给我国农业带来的挑战等六个方面证明了政府通过财政手段支持保护农业的必要性。而这种支持保护却不能是盲目的和随意的,它受着农业生产经
Since the reform of rural economic system in 1979, there are remarkable achievements in China's agriculture and rural economic development: the investment in the agriculture increases, the investment return is improved, the agricultural infrastructure becomes better, the output of main agricultural products increases dramatically, and the supply and demand in the domestic agricultural product market is balanced; the structure of agriculture is optimalized, the scientific level of the agriculture becomes higher; the export of agricultural products increases, the export structure is better, and the comparative advantage becomes more obvious. However, the current situation of China's agriculture and rural area is not very satisfactory, which has been reflected in the slow development in the agricultural product of industrialization of agricultural production, the establishment of circulation market, and the integration of trade. It has further affected the improvement of the competence of China's agricultural products. The present development of China's agriculture and rural economy has, to a great degree, been subject to the agricultural legislation. There are a number of problems in the current legislation of agricultural product, and these problems include: the insufficiency of legislation, which is not suitable for our status as big agricultural nation and for the basis status of the agriculture; the legislation lags behind the requirement of agricultural development; it has strong remains about the planning management, which are hard to satisfy the requirement of the market economy; the role of policy and principle is very obvious, the role of regulations and rules is not satisfactory and the practicability is to be improved.In Western economics, there exists the argument for or against intervention by the state. The economic law has also developed progressively from the interaction between the state intervention theory and the doctrine of free economy, and become one important way by which the state intervenes
the economy. The consistent development of economy has made the people gradually realize that the theory of free economy and the policy of state intervention are not perfect, and that both of them have flaws which are hard to be cured. Therefore, these two policies shall work together to learn from each other and to ensure the steady development of economy. And one of the important objectives of economic law is to define the scope and limit of the "need" of state intervention. However, for quite a long time, the function of the country is essentially regarded as a conclusion-of-course in the study of economic law; it lacks the in-depth analysis of the scope and limit of the economic function of the state. If this viewpoint could not be corrected, it may affect the evaluation of the economic legislation and its enforcement. Therefore, this dissertation has adopted the theory of state intervention to analyze the obvious legal issues in the process of industrialization, the establishment of market, and the integration for China's agricultural products. In order to realize the industrial development of agriculture, the financial input to the agriculture should be increased. The basic status of agriculture and its certain features have made important the fiscal input of state into the agriculture, i.e. the support and protection of agriculture by the public finance. The theory of public finance has proved the necessity of the protection of agriculture by financial means from the following six aspects: the basic status of agriculture, the vulnerability of agriculture, the nature of agricultural production factor as public product or quasi-public product, the speciality of the supply and demand of agricultural products, the relative comparative interest of agriculture, and the challenge to the agriculture after the WTO accession. However, the protection and support shall not be arbitrary and blindfold, which are subject to the agricultural production and business situation and certain international rules. The Agreement on Agriculture under WTO is the main international rules in this field, and it has divided the domestic support measures into two categories: one is the "Green" or "Green
box" policy which would not lead to the trade distortion, and is free of the reduction commitment; the other is the "Amber" policy which leads to the trade distortion. The Agreement requires the members calculate the money value of the measures by Total Aggregate Measurement of Support (TAMS), and gradually reduce them. In accordance with relevant WTO rules and in view of the experience of certain developed countries in the financial support and protection of agriculture, the author puts forward the suggestion for the perfection of China's agricultural financial support system, and points out that the major method of government agricultural support and protection shall develop from former administrative measure to the legal regulations. ' Therefore, the perfection of protection of agricultural system by financial support would mainly rely on the perfection of relevant laws, and the concrete measures include raising money from various sources, increasing the total amount of agricultural input while the proportion of total agricultural input in gross agricultural output value increasing gradually each year, making full use of subsidies allowed by WTO, strengthening the support to agriculture, perfecting the "green box" support system as well as properly utilizing the "Amber" policy, reforming the rural tax and fee system, reducing the burden of peasants, supporting the development of agricultural product professional cooperative agencies, promoting the legislation regarding related professional cooperative agencies, establishing the mature rural financial support system, establishing and perfecting agricultural policy-oriented insurance system, and regulating the obligations and rights of parties to the agricultural insurance in the form of legal rules.The circulation of agricultural products is the precondition of the introduction of market system into the agricultural field, and is an important part of the uniform socialist market. After the establishment of the socialist market economy, China has initiated the process of establishing the circulation market for the agricultural products and made great achievements
in many aspects. However, in comparison with the development need of the socialist market economy and other part of China's uniform market, China's development of the agricultural product circulation market is still at the early stage. It is essential to adjust the circulation of agricultural products in accordance with the laws in order to rapidly establish circulation market of agricultural products, remove the malpractice of unsteady policy of adjusting market, smoothly realize the principle of balanced interest, and ensure the market subject qualification of Chinese peasants. In comparison with industrial product and service product, agricultural product is characterized by its features in certain aspects such as the product itself, production relations, supply and demand, and market as well as price, which affect the circulation of the agricultural product greatly. Given the analyses of characteristics of agricultural product, the author puts forward the legal adjustment scheme of China's circulation system of agricultural product in allusion to the present problems within the system, which mainly includes perfection of governmental macro-control and regulatory mechanism so as to change governmental management system from segmentation into centralization and governmental function from controlling to serving; promoting the reform of price system of agricultural product in accordance with laws by transforming pricing system for main agricultural product, taking appropriate protective measures, striking the balance of price of main agricultural product between national and international market, and deepening the reform of purchase and sale system of agricultural product; perfecting circulation market of agricultural product in accordance with laws, in particular the system of wholesale market and country market; strengthening the reconstruction of circulation organization of agricultural product; effecting reform based on classification, clarification of relationship and responsibilities of supply and marketing cooperative, rural cooperative marketing organization, agents, and management entity with the integration
of trade, industry and agriculture.Strictly speaking, foreign trade in the field of agricultural product should be part of the circulation of agricultural product. However, since China lways regulates the domestic circulation and foreign trade of agricultural product respectively, in addition, after the WTO accession, the foreign trade of agricultural product would be more directly influenced by the international control and regulation of international trade rules and world trade integration process, this article discusses the issue separately. In this part, the author firstly analyzes the international competition edge, points out that China's agriculture product is good at total output value and its growth rate, cost and domestic market share, and that it is in an inferior position in the research and development input, the ratio of scientific personnel, labor productivity, product quality and international market share. Moreover, there are more disadvantages than advantages for the competitiveness of China's agricultural products. Therefore, we shall adjust the our trade system in accordance with the WTO relevant rules so as to make China's agricultural products adapt themselves to the increasingly fierce competition, and keep pace with the integration of world trade. For this reason, the author has further listed the relevant WTO provisions of Agreement on Agriculture, SPS Agreement, TBT Agreement. Subsequently, in combination with the "international adjustment" theory and taking these three Agreements as blueprint, the paper thoroughly reviews the market access rule, export competition rule, sanitary and phytosanitary rules of agricultural products, and the technical rules of agricultural products, and it also summarizes the issues. Eventually, the author has put forward the concrete ways of adjusting China's trade rules in accordance with WTO rules: firstly, with regard to the market access rule, adjusting the import tariff structure of agricultural product, establishing proper tariff system, perfecting the tariff quota system; improving the method adopted by state enterprises, lowering the degree of monopoly; making full
use of special safeguard articles, preventing the excessive import of agricultural products; taking necessary measures to make China's agricultural product enter into markets of other nations. Secondly, with regard to the sanitary and phytosanitary rules of agricultural products, establishing the uniform coordination agency for SPS Agreement, perfecting China's relevant standard system which should be reflected in the laws, fully utilizing the function of entry-exit inspection and quarantine, enlarging the export of China's agricultural products, protecting the safety of the domestic agricultural production and the good health condition of the people. Thirdly, in terms of the technical rules of agricultural products' establishing the uniform national coordinating system of technical measures; establishing and perfecting of the technical legal system and of standard system, establishing the uniform national authentication and approval system; establishing the early-warning mechanism for technical barrier to trade; establishing the risk analysis system; speeding up the scientific development in enterprises, improving the capacity of technical innovation; adjusting the industrial structure of agricultural product, devoting major efforts to developing organic food; improving the export operation pattern of agricultural product, developing the "green" marketing of agricultural products.Based on the analysis and study in the dissertation, the basic legal structure regarding agricultural product issues could be established, the extent and limit of state intervention into the agricultural economy has been solved, and the theory of state intervention has been analyzed and enriched by the substantial evidence. It is safe to say that the institutional basis of the industrialization of China's agricultural production, the marketisation of circulation, and the integration of trade have been established and perfected by the study in this dissertation.
西方经济学一直存在着国家干预和反国家干预的争论。经济法也在国家干预主义与自由放任主义的矛盾运动中的逐步成长和发展起来,并成为国家干预经济的一种重要形式。经济的不断发展使人们逐渐认识到,经济自由主义政策和国家干预政策都不完美,自身都存在难以弥补的缺陷。所以,只有两种政策相结合、同行并举,才能取长补短,使经济平稳发展,而经济法的重要目的之一就是要界定“需要”国家干预的范围和限度。但是一直以来,经济法学对关于国家职能问题的研究,基本上是将其视为一种当然的结论,对国家经济职能的范围和限度本身则缺乏详尽的分析,这种认识如果得不到纠正则可能影响对经济立法和实施的评价。因此,本文运用经济法中国家干预理论作为理论杠杆,以其阐释我国农产品产业化、市场化、一体化面临的突出法律问题。
要实现农业的产业化发展,就需要加大对农业的资金投入,而农业的基础地位和自身的一些特点又使得国家财政对农业的资金投入,即财政对农业的支持和保护,显得至关重要。公共财政理论从农业的基础地位、农业的弱质性、农业生产要素的公共产品或准公共产品性质、农产品在供给与需求方面具有特殊性、农业比较利益偏低以及加入WTO给我国农业带来的挑战等六个方面证明了政府通过财政手段支持保护农业的必要性。而这种支持保护却不能是盲目的和随意的,它受着农业生产经
Since the reform of rural economic system in 1979, there are remarkable achievements in China's agriculture and rural economic development: the investment in the agriculture increases, the investment return is improved, the agricultural infrastructure becomes better, the output of main agricultural products increases dramatically, and the supply and demand in the domestic agricultural product market is balanced; the structure of agriculture is optimalized, the scientific level of the agriculture becomes higher; the export of agricultural products increases, the export structure is better, and the comparative advantage becomes more obvious. However, the current situation of China's agriculture and rural area is not very satisfactory, which has been reflected in the slow development in the agricultural product of industrialization of agricultural production, the establishment of circulation market, and the integration of trade. It has further affected the improvement of the competence of China's agricultural products. The present development of China's agriculture and rural economy has, to a great degree, been subject to the agricultural legislation. There are a number of problems in the current legislation of agricultural product, and these problems include: the insufficiency of legislation, which is not suitable for our status as big agricultural nation and for the basis status of the agriculture; the legislation lags behind the requirement of agricultural development; it has strong remains about the planning management, which are hard to satisfy the requirement of the market economy; the role of policy and principle is very obvious, the role of regulations and rules is not satisfactory and the practicability is to be improved.In Western economics, there exists the argument for or against intervention by the state. The economic law has also developed progressively from the interaction between the state intervention theory and the doctrine of free economy, and become one important way by which the state intervenes
the economy. The consistent development of economy has made the people gradually realize that the theory of free economy and the policy of state intervention are not perfect, and that both of them have flaws which are hard to be cured. Therefore, these two policies shall work together to learn from each other and to ensure the steady development of economy. And one of the important objectives of economic law is to define the scope and limit of the "need" of state intervention. However, for quite a long time, the function of the country is essentially regarded as a conclusion-of-course in the study of economic law; it lacks the in-depth analysis of the scope and limit of the economic function of the state. If this viewpoint could not be corrected, it may affect the evaluation of the economic legislation and its enforcement. Therefore, this dissertation has adopted the theory of state intervention to analyze the obvious legal issues in the process of industrialization, the establishment of market, and the integration for China's agricultural products. In order to realize the industrial development of agriculture, the financial input to the agriculture should be increased. The basic status of agriculture and its certain features have made important the fiscal input of state into the agriculture, i.e. the support and protection of agriculture by the public finance. The theory of public finance has proved the necessity of the protection of agriculture by financial means from the following six aspects: the basic status of agriculture, the vulnerability of agriculture, the nature of agricultural production factor as public product or quasi-public product, the speciality of the supply and demand of agricultural products, the relative comparative interest of agriculture, and the challenge to the agriculture after the WTO accession. However, the protection and support shall not be arbitrary and blindfold, which are subject to the agricultural production and business situation and certain international rules. The Agreement on Agriculture under WTO is the main international rules in this field, and it has divided the domestic support measures into two categories: one is the "Green" or "Green
box" policy which would not lead to the trade distortion, and is free of the reduction commitment; the other is the "Amber" policy which leads to the trade distortion. The Agreement requires the members calculate the money value of the measures by Total Aggregate Measurement of Support (TAMS), and gradually reduce them. In accordance with relevant WTO rules and in view of the experience of certain developed countries in the financial support and protection of agriculture, the author puts forward the suggestion for the perfection of China's agricultural financial support system, and points out that the major method of government agricultural support and protection shall develop from former administrative measure to the legal regulations. ' Therefore, the perfection of protection of agricultural system by financial support would mainly rely on the perfection of relevant laws, and the concrete measures include raising money from various sources, increasing the total amount of agricultural input while the proportion of total agricultural input in gross agricultural output value increasing gradually each year, making full use of subsidies allowed by WTO, strengthening the support to agriculture, perfecting the "green box" support system as well as properly utilizing the "Amber" policy, reforming the rural tax and fee system, reducing the burden of peasants, supporting the development of agricultural product professional cooperative agencies, promoting the legislation regarding related professional cooperative agencies, establishing the mature rural financial support system, establishing and perfecting agricultural policy-oriented insurance system, and regulating the obligations and rights of parties to the agricultural insurance in the form of legal rules.The circulation of agricultural products is the precondition of the introduction of market system into the agricultural field, and is an important part of the uniform socialist market. After the establishment of the socialist market economy, China has initiated the process of establishing the circulation market for the agricultural products and made great achievements
in many aspects. However, in comparison with the development need of the socialist market economy and other part of China's uniform market, China's development of the agricultural product circulation market is still at the early stage. It is essential to adjust the circulation of agricultural products in accordance with the laws in order to rapidly establish circulation market of agricultural products, remove the malpractice of unsteady policy of adjusting market, smoothly realize the principle of balanced interest, and ensure the market subject qualification of Chinese peasants. In comparison with industrial product and service product, agricultural product is characterized by its features in certain aspects such as the product itself, production relations, supply and demand, and market as well as price, which affect the circulation of the agricultural product greatly. Given the analyses of characteristics of agricultural product, the author puts forward the legal adjustment scheme of China's circulation system of agricultural product in allusion to the present problems within the system, which mainly includes perfection of governmental macro-control and regulatory mechanism so as to change governmental management system from segmentation into centralization and governmental function from controlling to serving; promoting the reform of price system of agricultural product in accordance with laws by transforming pricing system for main agricultural product, taking appropriate protective measures, striking the balance of price of main agricultural product between national and international market, and deepening the reform of purchase and sale system of agricultural product; perfecting circulation market of agricultural product in accordance with laws, in particular the system of wholesale market and country market; strengthening the reconstruction of circulation organization of agricultural product; effecting reform based on classification, clarification of relationship and responsibilities of supply and marketing cooperative, rural cooperative marketing organization, agents, and management entity with the integration
of trade, industry and agriculture.Strictly speaking, foreign trade in the field of agricultural product should be part of the circulation of agricultural product. However, since China lways regulates the domestic circulation and foreign trade of agricultural product respectively, in addition, after the WTO accession, the foreign trade of agricultural product would be more directly influenced by the international control and regulation of international trade rules and world trade integration process, this article discusses the issue separately. In this part, the author firstly analyzes the international competition edge, points out that China's agriculture product is good at total output value and its growth rate, cost and domestic market share, and that it is in an inferior position in the research and development input, the ratio of scientific personnel, labor productivity, product quality and international market share. Moreover, there are more disadvantages than advantages for the competitiveness of China's agricultural products. Therefore, we shall adjust the our trade system in accordance with the WTO relevant rules so as to make China's agricultural products adapt themselves to the increasingly fierce competition, and keep pace with the integration of world trade. For this reason, the author has further listed the relevant WTO provisions of Agreement on Agriculture, SPS Agreement, TBT Agreement. Subsequently, in combination with the "international adjustment" theory and taking these three Agreements as blueprint, the paper thoroughly reviews the market access rule, export competition rule, sanitary and phytosanitary rules of agricultural products, and the technical rules of agricultural products, and it also summarizes the issues. Eventually, the author has put forward the concrete ways of adjusting China's trade rules in accordance with WTO rules: firstly, with regard to the market access rule, adjusting the import tariff structure of agricultural product, establishing proper tariff system, perfecting the tariff quota system; improving the method adopted by state enterprises, lowering the degree of monopoly; making full
use of special safeguard articles, preventing the excessive import of agricultural products; taking necessary measures to make China's agricultural product enter into markets of other nations. Secondly, with regard to the sanitary and phytosanitary rules of agricultural products, establishing the uniform coordination agency for SPS Agreement, perfecting China's relevant standard system which should be reflected in the laws, fully utilizing the function of entry-exit inspection and quarantine, enlarging the export of China's agricultural products, protecting the safety of the domestic agricultural production and the good health condition of the people. Thirdly, in terms of the technical rules of agricultural products' establishing the uniform national coordinating system of technical measures; establishing and perfecting of the technical legal system and of standard system, establishing the uniform national authentication and approval system; establishing the early-warning mechanism for technical barrier to trade; establishing the risk analysis system; speeding up the scientific development in enterprises, improving the capacity of technical innovation; adjusting the industrial structure of agricultural product, devoting major efforts to developing organic food; improving the export operation pattern of agricultural product, developing the "green" marketing of agricultural products.Based on the analysis and study in the dissertation, the basic legal structure regarding agricultural product issues could be established, the extent and limit of state intervention into the agricultural economy has been solved, and the theory of state intervention has been analyzed and enriched by the substantial evidence. It is safe to say that the institutional basis of the industrialization of China's agricultural production, the marketisation of circulation, and the integration of trade have been established and perfected by the study in this dissertation.
引文
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