国外农产品最低支持价格政策演进及其对中国的启示
|
摘要
本文在梳理国内外农产品最低支持价格政策研究文献的基础上,探讨了各国价格支持政策的实施背景、政策内容、政策效果和演变趋势。研究表明,为解决农产品供不应求、农民收入过低等问题,部分国家以生产成本和市场价格为参考标准,制定并实施了最低支持价格政策,对于鼓励农业生产、增加农民收入发挥了一定作用,但也导致了粮食生产过剩和市场价格扭曲等问题,为避免市场扭曲并保证农民收益,各国逐渐将最低支持价格政策转变为直接收入补贴,辅之以限产休耕、农业保险和绿色发展等配套措施。我国在当前农产品价格形成机制的改革过程中,应当吸取世界各国经验,对粮食最低收购价、临时收储和目标价格补贴政策进行改革时,应实施"脱钩化"和"半脱钩化"设计,以利用"蓝箱"空间和非特定产品支持的"黄箱"空间;同时通过限产休耕和定向直接补贴等方式调整农业生产结构,并通过农业保险和政府一般服务等政策措施,保障农民收益和国家粮食安全。
On the basis of reviewing domestic and foreign research literature,this paper summarizes the implement background,policy content,policy effect and evolutionary trend of price support policies in various countries. The research shows that some countries have formulated and implemented minimum support price policies for solving the problems of agricultural products shortage and low income of farmers,taking production costs and market prices as reference standards. This kind of policy has made brilliant achievement,while it has also caused overproduction of food and distortion of market price. To avoid some series of problems,many countries began to implement direct income subsidies,limited yield and fallow polices. In the process of reforming the price formation mechanism of agricultural products,China should absorb the experience of other countries,range from coupling subsidy to decoupling and semi-decoupling subsidy to take advantage of "blue box ",and release the policy space for non-product-specific AMS( Aggregate Measurement of Support) in"amber box",adjust the structure of agricultural production by limit production,lie fallow and targeted direct subsidy,and implement the measures,such as agricultural insurance and government general services to protect farmers' income and national food security.
On the basis of reviewing domestic and foreign research literature,this paper summarizes the implement background,policy content,policy effect and evolutionary trend of price support policies in various countries. The research shows that some countries have formulated and implemented minimum support price policies for solving the problems of agricultural products shortage and low income of farmers,taking production costs and market prices as reference standards. This kind of policy has made brilliant achievement,while it has also caused overproduction of food and distortion of market price. To avoid some series of problems,many countries began to implement direct income subsidies,limited yield and fallow polices. In the process of reforming the price formation mechanism of agricultural products,China should absorb the experience of other countries,range from coupling subsidy to decoupling and semi-decoupling subsidy to take advantage of "blue box ",and release the policy space for non-product-specific AMS( Aggregate Measurement of Support) in"amber box",adjust the structure of agricultural production by limit production,lie fallow and targeted direct subsidy,and implement the measures,such as agricultural insurance and government general services to protect farmers' income and national food security.
引文
1.Ezekiel M.The Cobweb Theorem.Quarterly Journal of Economics,1938,52(2):255~280
2.Sumner D A,Alston J M,Glauber J W.Evolution of the Economics of Agricultural Policy.American Journal of Agricultural Economics,2010,92(2):403~423
3.Morris C N.The Common Agricultural Policy.Fiscal Studies,2010,1(2):17~35
4.WTO.The WTO Agreements Series:Agriculture.Switzerland:2015
5.OECD.OECD-FAO Agricultural Outlook 2018-2027.Paris:2019
6.Minot N,Rashid S.Technical inputs toproposed Minimum Support Price(MSP)for wheat in Ethiopia.Washington:International Food Policy Research Institute.2015
7.Timmer C P.Getting Prices Right.New York:Cornell University Press,1986
8.Ali A,Ali M.Wheat Self-sufficiency in Different Policy Scenarios and Their Likely Impacts on Producers,Consumers,and the Public Exchequer.Pakistan Development Review,2001,40(3):203~223
9.Samuelson P A,Nordhaus W.Economics.New York:Mc Graw-Hill.1948/2009
10.Stiglitz J E.Markets,Market Failures,and Development.American Economic Review,1989,79(2):197~203
11.Ahn C Y,Singh I J.The Future of Agriculture in Southern Brazil:Some Policy Projections Through A Dynamic Regional Model of the Wheat Region,Rio Grande Do Sul(1970-1985).Conference held August,AAEA.1973
12.Otsuka K,Hayami Y.Goals and Consequences of Rice Policy in Japan,1965-80.American Journal of Agricultural Economics,1985,67(3):529~538
13.Associated Press Perspectives.The CAP in perspective:from market intervention to policy innovation.New York:2011
14.Coleman W D.Paradigm Shifts and Policy Networks:Cumulative Change in Agriculture.Journal of Public Policy,1996,16(3):273~301
15.OECD.Agricultural Policy Monitoring and Evaluation 2018.Paris:2018
16.FAO.The 2007-08 Rice Price Crisis.Rome:2011
17.WTO.China-Domestic support.Switzerland:2016
18.Mellor J W,Ahmed R.Agricultural price policy for developing countries.Washington:Johns Hopkins University Press,1988
19.Aditya K S,Subash S P,Praveen K V,et al.Awareness about Minimum Support Price and Its Impact on Diversification Decision of Farmers in India.Social Science Electronic Publishing,2017(8):514~526
20.Rashid S,Gulati A,Jr R C.From Parastatals to Private Trade:Lessons from Asian Agriculture.Washington:International Food Policy Research Institute,2008
21.Witzke H,Hausner U.A Public Choice Analysis of U.S.Producer Price Support in wheat and corn:implications for agricultural trade and policy.Staff Papers,1993
22.Steven H.Interest Groups and Economic Policy:Explaining Pattern of Protection in the Brazilian Agricultural Sector.Contemporary Economic Policy,2010,18(4):462~476
23.Gorter H D,Meilke K D.The Efficiency of Alternative Policies for the EC's Common Agricultural Policy:Reply.American Journal of Agricultural Economics,1991,73(2):533~534
24.Ministry of Agriculture&Farmers Welfare.State of Indian Agriculture 2015-16.New Delhi,2016
25.US Department of Agriculture.A short history of agricultural adjustment,1933-75.Washington,1976
26.Ali SZ,Sidhu R S,Vatta K.Effectiveness of minimum support price policy for paddy in India with a case study of Punjab.Agricultural Economics Research Review,2012,25(2):231~242
27.Westcott P C,Hoffman L A.Price Determination for Corn and Wheat:The Role of Market Factors and Government Programs.Technical Bulletins,1999
28.Malamasuri K,Soumya B,Prashant P,et al.A Historical Prospective for Minimum Support Price of Agricultural Crops.Kisan World,2013,4(12):46~48
29.Braun J V,Serova E,Seeth H T,et al.Russia's food economy in transition:current policy issues and the long-term outlook.Vision Discussion Papers,1996
30.Pasour E C.Agricultural Price Supports and Cost of Production:Comment.American Journal of Agricultural Economics,1983,65(3):620~622
31.Owen R.Implementing a Price Support Program for Myanmar's Rice Sector.Myanmar Rice Price Support,2014
32.Antón J,Martini R.Risk Management in Agriculture in Canada.General Information,2011
33.OECD.Agricultural Policies in Non-OECD Countries 2007.Paris,2007
34.WTO Secretariat.Trade Policy Review:Brazil.Switzerland,2013
35.Skogstad G,Verdun A.The Common Agricultural Policy:Continuity and Change.Journal of European Integration,2009,31(3):265-269
36.US Department of Agriculture.Grain and feed annual.Washington:2012
37.Arifin B,Rashid S,Gulati A,et al.From remarkable success stories to troubling present:the case of BULOG in Indonesia.Washington:International Food Policy Research Institute.2008
38.Rashid S,Gulati A,Cummings R J,et al.Grain marketing parastatals in Asia:why do they have to change now?.Social Science Electronic Publishing,2005:10~47
39.Aragie E A,Balie J.Supporting farmers and consumers under food price uncertainty:the role of price support policies.Conference Held September 23-26,AAAE,2016
40.Gallagher,P.The Effectiveness of Price Support Policy---Some Evidence for U.S.Corn Acreage Response.Agricultural Economics Research.1978,30(4):8~14
41.Kim K,Chavas J P.A Dynamic Analysis of the Effects of a Price Support Program on Price Dynamics and Price Volatility.Journal of Agricultural&Resource Economics,2002,27(2):495~514
42.Gallagher,P.The grain sector of the European Community:policy formation,price determination,and implications for trade.American Journal of Agricultural Economics.1988,70(4):767~778
43.Cummings R,Rashid S,Gulati A.Grain price stabilization experiences in Asia:What have we learned.Food Policy,2006,31(4):302~312
44.Hayami Y,Godo Y.Economics and Politics of Rice Policy in Japan:A Perspective on the Uruguay Round.Nber Chapters,1995:371~404
45.OECD.Agricultural Policy Monitoring and Evaluation.Paris,2014
46.Chand R.Minimum Support Price in Agriculture:Changing Requirements.Economic&Political Weekly,2003,38(29):3027~3028
47.Baffes,J.,and J.Meerman.From Prices to Incomes:Agricultural Subsidization without Protection?.World Bank Research Observer,1998,13(2):191~211
48.Téllez J,Córdoba D.The 20th Century Transformation of U.S.Agriculture and Farm Policy.Economic Information Bulletin,2005,124(124):7~17
49.Candel J J L,Breeman G E,Stiller S J,et al.Disentangling the consensus frame of food security:The case of the EU Common Agricultural Policy reform debate.Food Policy,2014,44(1):47~58
50.Godo Y.Evaluation of Japanese Agricultural Policy Reforms Under the WTO Agreement on Agriculture.Conference Held August 18-24,IAAE,2012
51.Carolyn Dimitri,AnneEffland,and Neilson Conklin.The 20th Century Transformation of U.S.Agriculture and Farm Policy.Economic Research Service,2005(3):1~14
52.Sckokai P,Moro D.Modeling the Reforms of the Common Agricultural Policy for Arable Crops under Uncertainty.American Journal of Agricultural Economics,2006,88(1):43~56
53.Kimura S,Anton J.Farm Income Stabilization and Risk Management:Some Lessons from Agri Stability Program in Canada.Conference Held August 30 to September 2,EAAE,2011
54.Glauber J W,Westhoff P.The 2014 Farm Bill and the WTO.American Journal of Agricultural Economics,2015(5):1-11
55.Chite R M.The 2014 farm bill(P.L.113-79):Summary and side-by-side.Washington:congressional research service.2014
56.Branch S P,Canada G O.Brazil Agriculture Policy Review.Economic&Market Information,2005
57.高鸣,寇光涛,何在中.中国稻谷收储制度改革研究:新挑战与新思路.南京农业大学学报(社会科学版),2018(5):131~137+159
58.陈锡文.落实发展新理念破解农业新难题.农业经济问题,2016(3):4~10
59.谭砚文,杨重玉,陈丁薇,张培君.中国粮食市场调控政策的实施绩效与评价.农业经济问题,2014(5):87~98+112
60.平力群.日本农业政策的转向:从社会政策到产业政策.现代日本经济,2018(2):1~12
61.徐田华.农产品价格形成机制改革的难点与对策.农业经济问题,2018(7):70~77
62.谭砚文,曾华盛.美国农业目标价格补贴政策的演变及对中国的启示.农村经济,2015(9):125~129
63.崔海霞,宗义湘,赵帮宏.欧盟农业绿色发展支持政策体系演进分析---基于OECD农业政策评估系统.农业经济问题,2018(5):130~142
64.马欣,田志宏.巴西农业支持政策分析与借鉴.经济问题探索,2015(3):14~18
**无追索权贷款是由美国政府事先规定贷款率,在农产品收获后,农民可以把农产品的所有权抵押给商品信贷公司,若抵押期限内的市场价格持续低于贷款率,农民就可以将抵押的农产品交给商品信贷公司,保留贷款
***本文称为农产品最低支持价格政策的原因有两个方面:一是源于印度计划委员会的Minimum Support Price Policy;二是因为最低支持价格政策作为一个政策体系,尽管其实施形式多样,但最基本的特征就是政府通过设定农产品价格下限来对农业发展和农民收入给予支持
(1)资料来源:国家发展和改革委员会网站,http://zys.ndrc.gov.cn/xwfb/201710/t20171027_864996.html
*此处提到的目标价格补贴为美国政府于1973-1985年实施的政策,该阶段的目标价格仍然根据特定农产品的生产成本进行上调,属于和当期生产挂钩的价格支持政策
*2015年,我国调整了棉花的目标价格补贴方式,主要内容是10%的补贴资金根据南疆四地州的种植面积进行补贴,90%的补贴资金按照全区的实际籽棉交售量进行补贴
*在WTO农业协定中,基于固定面积或产量的支付,以及按照固定基期产量85%及以下的支付均归属于“蓝箱”政策措施
2.Sumner D A,Alston J M,Glauber J W.Evolution of the Economics of Agricultural Policy.American Journal of Agricultural Economics,2010,92(2):403~423
3.Morris C N.The Common Agricultural Policy.Fiscal Studies,2010,1(2):17~35
4.WTO.The WTO Agreements Series:Agriculture.Switzerland:2015
5.OECD.OECD-FAO Agricultural Outlook 2018-2027.Paris:2019
6.Minot N,Rashid S.Technical inputs toproposed Minimum Support Price(MSP)for wheat in Ethiopia.Washington:International Food Policy Research Institute.2015
7.Timmer C P.Getting Prices Right.New York:Cornell University Press,1986
8.Ali A,Ali M.Wheat Self-sufficiency in Different Policy Scenarios and Their Likely Impacts on Producers,Consumers,and the Public Exchequer.Pakistan Development Review,2001,40(3):203~223
9.Samuelson P A,Nordhaus W.Economics.New York:Mc Graw-Hill.1948/2009
10.Stiglitz J E.Markets,Market Failures,and Development.American Economic Review,1989,79(2):197~203
11.Ahn C Y,Singh I J.The Future of Agriculture in Southern Brazil:Some Policy Projections Through A Dynamic Regional Model of the Wheat Region,Rio Grande Do Sul(1970-1985).Conference held August,AAEA.1973
12.Otsuka K,Hayami Y.Goals and Consequences of Rice Policy in Japan,1965-80.American Journal of Agricultural Economics,1985,67(3):529~538
13.Associated Press Perspectives.The CAP in perspective:from market intervention to policy innovation.New York:2011
14.Coleman W D.Paradigm Shifts and Policy Networks:Cumulative Change in Agriculture.Journal of Public Policy,1996,16(3):273~301
15.OECD.Agricultural Policy Monitoring and Evaluation 2018.Paris:2018
16.FAO.The 2007-08 Rice Price Crisis.Rome:2011
17.WTO.China-Domestic support.Switzerland:2016
18.Mellor J W,Ahmed R.Agricultural price policy for developing countries.Washington:Johns Hopkins University Press,1988
19.Aditya K S,Subash S P,Praveen K V,et al.Awareness about Minimum Support Price and Its Impact on Diversification Decision of Farmers in India.Social Science Electronic Publishing,2017(8):514~526
20.Rashid S,Gulati A,Jr R C.From Parastatals to Private Trade:Lessons from Asian Agriculture.Washington:International Food Policy Research Institute,2008
21.Witzke H,Hausner U.A Public Choice Analysis of U.S.Producer Price Support in wheat and corn:implications for agricultural trade and policy.Staff Papers,1993
22.Steven H.Interest Groups and Economic Policy:Explaining Pattern of Protection in the Brazilian Agricultural Sector.Contemporary Economic Policy,2010,18(4):462~476
23.Gorter H D,Meilke K D.The Efficiency of Alternative Policies for the EC's Common Agricultural Policy:Reply.American Journal of Agricultural Economics,1991,73(2):533~534
24.Ministry of Agriculture&Farmers Welfare.State of Indian Agriculture 2015-16.New Delhi,2016
25.US Department of Agriculture.A short history of agricultural adjustment,1933-75.Washington,1976
26.Ali SZ,Sidhu R S,Vatta K.Effectiveness of minimum support price policy for paddy in India with a case study of Punjab.Agricultural Economics Research Review,2012,25(2):231~242
27.Westcott P C,Hoffman L A.Price Determination for Corn and Wheat:The Role of Market Factors and Government Programs.Technical Bulletins,1999
28.Malamasuri K,Soumya B,Prashant P,et al.A Historical Prospective for Minimum Support Price of Agricultural Crops.Kisan World,2013,4(12):46~48
29.Braun J V,Serova E,Seeth H T,et al.Russia's food economy in transition:current policy issues and the long-term outlook.Vision Discussion Papers,1996
30.Pasour E C.Agricultural Price Supports and Cost of Production:Comment.American Journal of Agricultural Economics,1983,65(3):620~622
31.Owen R.Implementing a Price Support Program for Myanmar's Rice Sector.Myanmar Rice Price Support,2014
32.Antón J,Martini R.Risk Management in Agriculture in Canada.General Information,2011
33.OECD.Agricultural Policies in Non-OECD Countries 2007.Paris,2007
34.WTO Secretariat.Trade Policy Review:Brazil.Switzerland,2013
35.Skogstad G,Verdun A.The Common Agricultural Policy:Continuity and Change.Journal of European Integration,2009,31(3):265-269
36.US Department of Agriculture.Grain and feed annual.Washington:2012
37.Arifin B,Rashid S,Gulati A,et al.From remarkable success stories to troubling present:the case of BULOG in Indonesia.Washington:International Food Policy Research Institute.2008
38.Rashid S,Gulati A,Cummings R J,et al.Grain marketing parastatals in Asia:why do they have to change now?.Social Science Electronic Publishing,2005:10~47
39.Aragie E A,Balie J.Supporting farmers and consumers under food price uncertainty:the role of price support policies.Conference Held September 23-26,AAAE,2016
40.Gallagher,P.The Effectiveness of Price Support Policy---Some Evidence for U.S.Corn Acreage Response.Agricultural Economics Research.1978,30(4):8~14
41.Kim K,Chavas J P.A Dynamic Analysis of the Effects of a Price Support Program on Price Dynamics and Price Volatility.Journal of Agricultural&Resource Economics,2002,27(2):495~514
42.Gallagher,P.The grain sector of the European Community:policy formation,price determination,and implications for trade.American Journal of Agricultural Economics.1988,70(4):767~778
43.Cummings R,Rashid S,Gulati A.Grain price stabilization experiences in Asia:What have we learned.Food Policy,2006,31(4):302~312
44.Hayami Y,Godo Y.Economics and Politics of Rice Policy in Japan:A Perspective on the Uruguay Round.Nber Chapters,1995:371~404
45.OECD.Agricultural Policy Monitoring and Evaluation.Paris,2014
46.Chand R.Minimum Support Price in Agriculture:Changing Requirements.Economic&Political Weekly,2003,38(29):3027~3028
47.Baffes,J.,and J.Meerman.From Prices to Incomes:Agricultural Subsidization without Protection?.World Bank Research Observer,1998,13(2):191~211
48.Téllez J,Córdoba D.The 20th Century Transformation of U.S.Agriculture and Farm Policy.Economic Information Bulletin,2005,124(124):7~17
49.Candel J J L,Breeman G E,Stiller S J,et al.Disentangling the consensus frame of food security:The case of the EU Common Agricultural Policy reform debate.Food Policy,2014,44(1):47~58
50.Godo Y.Evaluation of Japanese Agricultural Policy Reforms Under the WTO Agreement on Agriculture.Conference Held August 18-24,IAAE,2012
51.Carolyn Dimitri,AnneEffland,and Neilson Conklin.The 20th Century Transformation of U.S.Agriculture and Farm Policy.Economic Research Service,2005(3):1~14
52.Sckokai P,Moro D.Modeling the Reforms of the Common Agricultural Policy for Arable Crops under Uncertainty.American Journal of Agricultural Economics,2006,88(1):43~56
53.Kimura S,Anton J.Farm Income Stabilization and Risk Management:Some Lessons from Agri Stability Program in Canada.Conference Held August 30 to September 2,EAAE,2011
54.Glauber J W,Westhoff P.The 2014 Farm Bill and the WTO.American Journal of Agricultural Economics,2015(5):1-11
55.Chite R M.The 2014 farm bill(P.L.113-79):Summary and side-by-side.Washington:congressional research service.2014
56.Branch S P,Canada G O.Brazil Agriculture Policy Review.Economic&Market Information,2005
57.高鸣,寇光涛,何在中.中国稻谷收储制度改革研究:新挑战与新思路.南京农业大学学报(社会科学版),2018(5):131~137+159
58.陈锡文.落实发展新理念破解农业新难题.农业经济问题,2016(3):4~10
59.谭砚文,杨重玉,陈丁薇,张培君.中国粮食市场调控政策的实施绩效与评价.农业经济问题,2014(5):87~98+112
60.平力群.日本农业政策的转向:从社会政策到产业政策.现代日本经济,2018(2):1~12
61.徐田华.农产品价格形成机制改革的难点与对策.农业经济问题,2018(7):70~77
62.谭砚文,曾华盛.美国农业目标价格补贴政策的演变及对中国的启示.农村经济,2015(9):125~129
63.崔海霞,宗义湘,赵帮宏.欧盟农业绿色发展支持政策体系演进分析---基于OECD农业政策评估系统.农业经济问题,2018(5):130~142
64.马欣,田志宏.巴西农业支持政策分析与借鉴.经济问题探索,2015(3):14~18
**无追索权贷款是由美国政府事先规定贷款率,在农产品收获后,农民可以把农产品的所有权抵押给商品信贷公司,若抵押期限内的市场价格持续低于贷款率,农民就可以将抵押的农产品交给商品信贷公司,保留贷款
***本文称为农产品最低支持价格政策的原因有两个方面:一是源于印度计划委员会的Minimum Support Price Policy;二是因为最低支持价格政策作为一个政策体系,尽管其实施形式多样,但最基本的特征就是政府通过设定农产品价格下限来对农业发展和农民收入给予支持
(1)资料来源:国家发展和改革委员会网站,http://zys.ndrc.gov.cn/xwfb/201710/t20171027_864996.html
*此处提到的目标价格补贴为美国政府于1973-1985年实施的政策,该阶段的目标价格仍然根据特定农产品的生产成本进行上调,属于和当期生产挂钩的价格支持政策
*2015年,我国调整了棉花的目标价格补贴方式,主要内容是10%的补贴资金根据南疆四地州的种植面积进行补贴,90%的补贴资金按照全区的实际籽棉交售量进行补贴
*在WTO农业协定中,基于固定面积或产量的支付,以及按照固定基期产量85%及以下的支付均归属于“蓝箱”政策措施