美国农业风险管理政策体系构建及其应用效果——兼对2018年美国新农业法案动向的观察
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摘要
本文对美国农业风险管理政策体系的构建、成效及遇到的问题进行了梳理,并对2018年美国新农业法案的走向进行观察和分析。美国农作物商品项目和农业保险项目是美国农业风险管理政策体系的两大支柱,两者有机结合,相互补充,分别实现对农民收入浅度和深度损失的补偿。特殊条件下,美国会启动永久法案中《农作物商品信贷公司宪章法案》,对农民施行额外保护。美国农业风险管理政策体系保护了农民收入,促进了农业生产,但项目赔付向大规模农户偏移。2018年12月20日签署的美国新农业法案将继续坚持并优化农业风险管理政策体系,提高政策运行效率和对农民的保护力度。本文建议中国继续坚持发展农业保险,完善数据体系和运营系统等基础工作,不断完善农户利益补偿机制和农业支持保护制度。
This paper describes the establishment and implementation of U. S. farm risk management system and its impact on farmers' income,with observations on the 2018 U. S. Agriculture Act development. Crop Commodity Programs and Federal Crop Insurance Programs are presently two core pillars of the U. S. agricultural act that focuses on risk management. The two pillars have different but complementary functions. While Crop Commodity Programs play a role in shallow loss protection,Crop Insurance Programs contribute more in deep/basic loss protection. In seriously adverse conditions,the Commodity Credit Corporation Charter Act can also provide additional support. The U. S. risk management system provided positive impacts in protecting farmers' income in recent years. However,payments to farmers largely shifted towards larger farms. The new 2018 U. S. Agriculture Improvement Act is expected to improve the efficiency of policy implementation and adjust levels of payment in protection. We suggest that China's government continues in developing agricultural insurance,building its insurance data collection,management and timely publication system,and in this way perfecting its agricultural support and protection system.
This paper describes the establishment and implementation of U. S. farm risk management system and its impact on farmers' income,with observations on the 2018 U. S. Agriculture Act development. Crop Commodity Programs and Federal Crop Insurance Programs are presently two core pillars of the U. S. agricultural act that focuses on risk management. The two pillars have different but complementary functions. While Crop Commodity Programs play a role in shallow loss protection,Crop Insurance Programs contribute more in deep/basic loss protection. In seriously adverse conditions,the Commodity Credit Corporation Charter Act can also provide additional support. The U. S. risk management system provided positive impacts in protecting farmers' income in recent years. However,payments to farmers largely shifted towards larger farms. The new 2018 U. S. Agriculture Improvement Act is expected to improve the efficiency of policy implementation and adjust levels of payment in protection. We suggest that China's government continues in developing agricultural insurance,building its insurance data collection,management and timely publication system,and in this way perfecting its agricultural support and protection system.
引文
1.Burns C.and Mac Donald J.M.,(2018).America's Diverse Family Farms:2018 Edition.USDA-ERS Agric.Info.Bull No.(EIB-203)28
2.Congressional Research Service,(2018).Federal Crop Insurance:Program Overview for the 115th Congress.CRS Report Prepared for members and committees of congress
3.Coppess,J.,G.Schnitkey,C.Zulauf,and N.Paulson.,(2018a).Initial Review of the Senate Ag Committee's Draft 2018 Farm Bill.farmdoc daily,(8):107,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign
4.Coppess,J.,G.Schnitkey,C.Zulauf,and N.Paulson.,(2018b).Progress and Potential Hurdles for the 2018 Farm Bill.farmdoc daily,(8):112,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign
5.Coppess,J.,G.Schnitkey,C.Zulauf,N.Paulson,B.Gramig and K.Swanson.,(2018c)The Agriculture Improvement Act of 2018:Initial Review.farmdoc daily,(8):227,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign,December12,2018.Permalink
6.Dimitri,C.,Effland,A.B.,&Conklin,N.C.,The 20th century transformation of US agriculture and farm policy(Vol.3).Washington,DC:USDepartment of Agriculture,Economic Research Service.2005
7.Erik J.O’Donoghue,Ashley E.Hungerford,Joseph C.Cooper,Thomas Worth,and Mark Ash.The 2014 Farm Act Agriculture Risk Coverage,Price Loss Coverage,and Supplemental Coverage Option Programs’Effects on Crop Revenue.U.S.Department of Agriculture,Economic Research Service,ERR-204.2016
8.Giri,A.,E.W.F.Peterson,and S.Sharma.The Impact of the Market Facilitation Program on U.S.Soybean,Sorghum and Corn Producers.Choices.Quarter 4.2018
9.Glauber,J.W.Agricultural Insurance and the World Trade Organization.International Food Policy Research Institute.2015
10.HOUSE OF REPRESENTATIVES.AGRICULTURE IMPROVEMENTACT OF 2018,2018.12.12
11.Johansson.C.R,The Outlook for U.S.Agriculture-2019:Growing Locally,Selling Globally,USDA's Agricultural Outlook Forum.2019
12.Key,N.,D.Prager,and C.Burns.Farm Household Income Volatility:An Analysis Using Panel Data From a National Survey.U.S.Department of Agriculture,Economic Research Service,ERR-226.2017
13.Kirwan,B.,and M.J.Roberts.,Who Really Benefits from Agricultural Subsidies?Evidence from Field-Level Data,American Journal of Agricultural Economics,2016,98(4):1095~1113
14.Kislev,Yoav,and Willis Peterson.Prices,Technology,and Farm Size”.Journal of Political Economy,1982(90):578~95
15.Mac Donald,J.M.,P.Korb,and R.A.Hoppe.Farm Size and the Organization of U.S.Crop Farming.U.S.Department of Agriculture,Economic Research Service,2013
16.Mahul,O.,&Stutley,C.J.Government support to agricultural insurance:challenges and options for developing countries.World Bank Publications.2010
17.Mc Fadden,Jonathan R.and Robert A.Hoppe.Evolving Distribution of Payments From Commodity,Conservation,and Federal Crop Insurance Programs.U.S.Department of Agriculture,Economic Research Service,EIB-184.2017
18.Mesbah Motamed,Ashley Hungerford,Stephanie Rosch,Erik O’Donoghue,Matthew Mac Lachlan,Gregory Astill,Jerry Cessna,and Joseph Cooper.Federal Risk Management Tools for Agricultural Producers:An Overview.U.S.Department of Agriculture,Economic Research Service,ERR-250.2018
19.Sumner,D.A.Farm subsidy Tradition and Modern Agricultural Realities.Paper prepared for American Enterprise Institute Project on Agricultural Policy for the 2007 Farm bill and Beyond,2007
20.USDA,Farm Service Agency.Market Facilitation Program(MFP):Fact Sheet.https://www.fsa.usda.gov/Assets/USDA-FSA-Public/usdafiles/Fact Sheets/2018/Market_Facilitation_Program_Fact_Sheet_September_2018C.pdf,2018
21.Westcott,P.C.,&Price,J.M.Analysis of the US commodity loan program with marketing loan.USDA-ERS Report(801),2001
22.Westcott,P.C.,Young,C.E.,&Price,J.M.The 2002 Farm Act:Provisions and implications for commodity markets.United States Department of Agriculture,Economic Research Service,(No.33745),2002
23.White,T.K.,and R.A.Hoppe.Changing Farm Structure and the Distribution of Farm Payments and Federal Crop Insurance.U.S.Department of Agriculture,Economic Research Service,EIB-91,2012
24.Woodard,J.D.,&Yi,J.Estimation of insurance deductible demand under endogenous premium rates.Journal of Risk and Insurance,2018:1~24
25.Young,C.E.,&Westcott,P.C.The 1996 US Farm Act increases market orientation.USDA-ERS Agric.Info.Bull(726),1996
26.Zulauf,C.Why Crop Insurance Has Become an Issue.farmdoc daily,(6):76,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign.2016
27.国务院新闻办公室.关于中美经贸摩擦的事实与中方立场.新华社,2018-09-24
*贷款率(Loan rates)为保护价,在制定时往往低于当时的市场价格。在美国商品信贷公司(Commodity Credit Corporation)为农民提供的营销援助贷款(MALs)中,若市价低于贷款率,农民可以使用抵押的农产品抵偿债务。1985年的农业法案提出农民可以较低的市价归还MALs,而不用将产品抵押给国家,即产生了贷款差额补贴(LDP),这一偿还方式调整标志着美国农业政策向市场化方向的转变(Sumner,2007)
**2014年的ARC项目包含农场和县域两个层面的产品,其中县域产品参与最多。后文除特殊说明外,提到的ARC特指县域产品
*SCO为农业保险项目,因其会影响农民在PLC和ARC项目参与,所以在本节介绍
**县域收入标准为前5年全国移动平均价格(除去最低和最高价)和前5年县域移动平均单产(除去最高产和最低产)的乘积。其中,价格指代年度标准价格取全国指导价格和全国市场平均价格中的高价
*该方案基于1949年永久法案的《农作物商品信贷公司宪章法案》(The Commodity Credit Corporation(CCC)Charter Act),区别于ARC和PLC计划以及农业保险
*2018年6月13日,美国参议院20∶1顺利通过农业法案草案,唯一反对票针对大农场主获农业补贴资格
**保费补贴质疑类似于2002年直接补贴(DP),直接补贴因补贴比例的合法性与合理性受到质疑在2014年被终止了。1999-2013年,直接补贴支出44~81亿美元,占政府支农项目支出的18%~45%
***良好耕作方法是指科学性和可持续性的生产方式。参议院提出了对在生产过程中采用降低风险措施的农民提供更多的保费优惠,受法规限制被否定。因为折扣等方式不合法,RMA需要实行统一的费率和价格
2.Congressional Research Service,(2018).Federal Crop Insurance:Program Overview for the 115th Congress.CRS Report Prepared for members and committees of congress
3.Coppess,J.,G.Schnitkey,C.Zulauf,and N.Paulson.,(2018a).Initial Review of the Senate Ag Committee's Draft 2018 Farm Bill.farmdoc daily,(8):107,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign
4.Coppess,J.,G.Schnitkey,C.Zulauf,and N.Paulson.,(2018b).Progress and Potential Hurdles for the 2018 Farm Bill.farmdoc daily,(8):112,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign
5.Coppess,J.,G.Schnitkey,C.Zulauf,N.Paulson,B.Gramig and K.Swanson.,(2018c)The Agriculture Improvement Act of 2018:Initial Review.farmdoc daily,(8):227,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign,December12,2018.Permalink
6.Dimitri,C.,Effland,A.B.,&Conklin,N.C.,The 20th century transformation of US agriculture and farm policy(Vol.3).Washington,DC:USDepartment of Agriculture,Economic Research Service.2005
7.Erik J.O’Donoghue,Ashley E.Hungerford,Joseph C.Cooper,Thomas Worth,and Mark Ash.The 2014 Farm Act Agriculture Risk Coverage,Price Loss Coverage,and Supplemental Coverage Option Programs’Effects on Crop Revenue.U.S.Department of Agriculture,Economic Research Service,ERR-204.2016
8.Giri,A.,E.W.F.Peterson,and S.Sharma.The Impact of the Market Facilitation Program on U.S.Soybean,Sorghum and Corn Producers.Choices.Quarter 4.2018
9.Glauber,J.W.Agricultural Insurance and the World Trade Organization.International Food Policy Research Institute.2015
10.HOUSE OF REPRESENTATIVES.AGRICULTURE IMPROVEMENTACT OF 2018,2018.12.12
11.Johansson.C.R,The Outlook for U.S.Agriculture-2019:Growing Locally,Selling Globally,USDA's Agricultural Outlook Forum.2019
12.Key,N.,D.Prager,and C.Burns.Farm Household Income Volatility:An Analysis Using Panel Data From a National Survey.U.S.Department of Agriculture,Economic Research Service,ERR-226.2017
13.Kirwan,B.,and M.J.Roberts.,Who Really Benefits from Agricultural Subsidies?Evidence from Field-Level Data,American Journal of Agricultural Economics,2016,98(4):1095~1113
14.Kislev,Yoav,and Willis Peterson.Prices,Technology,and Farm Size”.Journal of Political Economy,1982(90):578~95
15.Mac Donald,J.M.,P.Korb,and R.A.Hoppe.Farm Size and the Organization of U.S.Crop Farming.U.S.Department of Agriculture,Economic Research Service,2013
16.Mahul,O.,&Stutley,C.J.Government support to agricultural insurance:challenges and options for developing countries.World Bank Publications.2010
17.Mc Fadden,Jonathan R.and Robert A.Hoppe.Evolving Distribution of Payments From Commodity,Conservation,and Federal Crop Insurance Programs.U.S.Department of Agriculture,Economic Research Service,EIB-184.2017
18.Mesbah Motamed,Ashley Hungerford,Stephanie Rosch,Erik O’Donoghue,Matthew Mac Lachlan,Gregory Astill,Jerry Cessna,and Joseph Cooper.Federal Risk Management Tools for Agricultural Producers:An Overview.U.S.Department of Agriculture,Economic Research Service,ERR-250.2018
19.Sumner,D.A.Farm subsidy Tradition and Modern Agricultural Realities.Paper prepared for American Enterprise Institute Project on Agricultural Policy for the 2007 Farm bill and Beyond,2007
20.USDA,Farm Service Agency.Market Facilitation Program(MFP):Fact Sheet.https://www.fsa.usda.gov/Assets/USDA-FSA-Public/usdafiles/Fact Sheets/2018/Market_Facilitation_Program_Fact_Sheet_September_2018C.pdf,2018
21.Westcott,P.C.,&Price,J.M.Analysis of the US commodity loan program with marketing loan.USDA-ERS Report(801),2001
22.Westcott,P.C.,Young,C.E.,&Price,J.M.The 2002 Farm Act:Provisions and implications for commodity markets.United States Department of Agriculture,Economic Research Service,(No.33745),2002
23.White,T.K.,and R.A.Hoppe.Changing Farm Structure and the Distribution of Farm Payments and Federal Crop Insurance.U.S.Department of Agriculture,Economic Research Service,EIB-91,2012
24.Woodard,J.D.,&Yi,J.Estimation of insurance deductible demand under endogenous premium rates.Journal of Risk and Insurance,2018:1~24
25.Young,C.E.,&Westcott,P.C.The 1996 US Farm Act increases market orientation.USDA-ERS Agric.Info.Bull(726),1996
26.Zulauf,C.Why Crop Insurance Has Become an Issue.farmdoc daily,(6):76,Department of Agricultural and Consumer Economics,University of Illinois at Urbana-Champaign.2016
27.国务院新闻办公室.关于中美经贸摩擦的事实与中方立场.新华社,2018-09-24
*贷款率(Loan rates)为保护价,在制定时往往低于当时的市场价格。在美国商品信贷公司(Commodity Credit Corporation)为农民提供的营销援助贷款(MALs)中,若市价低于贷款率,农民可以使用抵押的农产品抵偿债务。1985年的农业法案提出农民可以较低的市价归还MALs,而不用将产品抵押给国家,即产生了贷款差额补贴(LDP),这一偿还方式调整标志着美国农业政策向市场化方向的转变(Sumner,2007)
**2014年的ARC项目包含农场和县域两个层面的产品,其中县域产品参与最多。后文除特殊说明外,提到的ARC特指县域产品
*SCO为农业保险项目,因其会影响农民在PLC和ARC项目参与,所以在本节介绍
**县域收入标准为前5年全国移动平均价格(除去最低和最高价)和前5年县域移动平均单产(除去最高产和最低产)的乘积。其中,价格指代年度标准价格取全国指导价格和全国市场平均价格中的高价
*该方案基于1949年永久法案的《农作物商品信贷公司宪章法案》(The Commodity Credit Corporation(CCC)Charter Act),区别于ARC和PLC计划以及农业保险
*2018年6月13日,美国参议院20∶1顺利通过农业法案草案,唯一反对票针对大农场主获农业补贴资格
**保费补贴质疑类似于2002年直接补贴(DP),直接补贴因补贴比例的合法性与合理性受到质疑在2014年被终止了。1999-2013年,直接补贴支出44~81亿美元,占政府支农项目支出的18%~45%
***良好耕作方法是指科学性和可持续性的生产方式。参议院提出了对在生产过程中采用降低风险措施的农民提供更多的保费优惠,受法规限制被否定。因为折扣等方式不合法,RMA需要实行统一的费率和价格