中国农业直接补贴政策研究
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摘要
为解决国家粮食安全问题和农民增收缓慢问题,我国2004年出台了粮食直补政策、良种补贴政策和农机购置补贴政策,2006年又出台了农资综合直补政策,为保障国家粮食安全和增加农民收入做出了重要贡献。但农业直接补贴政策不能持续调动农民的种粮积极性,促进农民增收作用有限,而且无论在政策本身设计还是在政策执行方面都存在很多问题,需要对中国农业直接补贴政策进行深入剖析和研究,根据理论和现实需要对中国农业直接补贴政策进行设计,以期达到保障国家粮食安全和增加农民收入的双重目标,该研究具有重要的理论意义和现实意义。
本文使用定性分析和定量分析、实证分析和规范分析、动态分析和静态分析、比较分析和关联分析相结合的方法,对中国农业直接补贴政策的相关概念、基础理论、实施状况、实施效果、存在问题以及国外经验等进行了深入剖析,并对中国农业直补政策进行了分析和设计,提出了农业直补政策调整和完善的建议。
农业补贴政策是政府为支持、保护和发展农业,而对农业的生产、流通和贸易等环节进行转移支付的政策。农业直接补贴政策是政府将财政补贴资金直接发放给农业生产者或者直接让农业生产者受益的一种农业补贴政策。中国现行四项农业直补政策在政策含义、政策目标、补贴范围对象、补贴资金分配方式和兑付方式等方面存在着差异。产业扶持理论、城乡统筹理论、福利经济学理论、公共经济学理论、农业多功能性理论和政治博弈理论是进行农业直补的理论基础。
中国农业直补政策的出台源于粮食补贴政策改革、世贸组织要求、保障粮食安全、增加农民收入四个方面的因素。粮食直接补贴政策、良种补贴政策和农机购置补贴政策都经过试点而后推广,农资综合直补政策直接在全国范围内实施。农业直补政策调动了农户的种粮积极性,促使农户增加了粮食种植面积,提高了粮食单产,全国粮食总产量连续6年增加。农业直补政策对农民增收起了重要的作用,补贴对耕地数量多和种粮收入比重大的农户影响较大。农机购置补贴政策的实施提高了农业装备水平,加快了农业机械化进程,增强了农业综合生产能力,促进了农业生产方式的转变,推进了农机服务产业化,促进了多元化农机投入机制的形成,使农业增效和农民增收。良种补贴政策的实施调动了农民种粮积极性,提高了粮食单产水平和粮食优质化率,促进了优良品种的推广,实现了规模种植和优质优价。灰色关联度分析表明农业直补政策是影响粮食增产与农民增收的重要因素,补贴政策总的增收作用略大于增产作用,专项直补政策的增产增收作用均大于综合直补政策,其中只有粮食直补政策的增产作用大于增收作用。
中国农业直补政策自身存在着政策目标不明确、粮食补贴成本分摊不合理、补贴范围和对象限定不合理、补贴规模不大、农业直补标准低且地区差异大、补贴计算依据不统一、补贴体系不完善和补贴方案不明确等问题,在政策执行方面存在着政策宣传不到位、执行主体过多、执行成本高、补贴信息化程度低和补贴监管力度不够等问题,在政策支撑方面存在着补贴资金受限且管理分散、政策组织系统不完善和补贴政策缺乏法律保障等问题,农户卖粮难问题、补贴拉大收入差距问题、补贴公平问题都有待解决。
国外实施的农业直补政策主要有美国的生产灵活性合同补贴、土地休耕保护计划和反周期支付政策,欧盟的面积补贴、休耕补贴和环境保护补贴政策,日本的稻作安定经营政策和山区、半山区直接收入支付补贴政策以及韩国的稳定农户所得直补制度、农业结构调整直补制度、维护农业公益功能直补制度。各国直补政策在补贴目标、补贴强度、补贴对象、补贴方式等方面都有所差异。我国实施农业直接补贴政策的可借鉴的启示有七点:改间接补贴为直接补贴是一个必然趋势,在WTO框架下制定和调整农业直接补贴政策,综合补贴和专项补贴相结合,直接补贴与价格补贴同时实行,完善我国农业补贴的立法工作,提高对农业生态环境保护的认识,建立健全农业直接补贴的配套制度和措施。
从政策目标、体系和补贴原则、范围对象、规模标准、补贴方式、补贴程序、补贴监管、政策内容九大方面对中国农业直补政策进行了分析设计,构建了完整的综合直补和专项直补相结合的农业直接补贴政策体系,粮食直补政策和农资综合直补政策属于农业综合直补政策,农机购置补贴政策和良种补贴政策属于农业专项直补政策。提出要进一步完善现有政策,尽快增设全国性的土地流转补贴、技术推广补贴、自然灾害补贴、环境补贴、改良增产补贴、农民培训补贴和休耕补贴政策,采取种粮合同补贴方式进行综合直补,提高补贴标准,降低补贴成本,加强补贴监管,实现保障国家粮食安全和增加农民收入两大目标。
调整和完善中国农业直补政策除了遵照一定的步骤和要求来实施之外,更需要建立农业直接补贴长效机制,通过整合和完善现行的四项直接补贴政策和增设农业专项直补政策来完善农业直接补贴政策体系,建立农民种粮收益保障制度,稳定粮食最低收购价政策,还要加强和完善产销区利益协调机制,农业直接补贴立法,农民进城定居政策,农村社会保障体系等配套支持制度来支撑。
To address the issue of national food security and peasant incomes increasing slow, China introduced food direct subsidy policy, seed subsidy policy and farm machinery purchase subsidy policy in 2004, introduced agricultural production means comprehensive direct subsidy policy in 2006, which made an important contribution in ensuring national food security and increasing peasant income. However, agricultural direct subsidy policy could not continue to mobilize the enthusiasm of peasants to grow grain and the role of promoting peasant income was limited, and there are many problems in policy design aspects and policy implementation, it need to analysis and study agricultural direct subsidy policy of China deeply, based on theoretical and practical need to design agricultural direct subsidy policy of China, to achieve the dual objective of protecting national food security and increasing peasants income, the study has important theoretical and practical significance.
The article used method of combining with qualitative analysis and quantitative analysis, empirical analysis and normative analysis, dynamic analysis and static analysis, comparative analysis and correlation analysis, analyzed the relevant concepts, basic theory, implementation status, implementation of the results, present issues of agricultural direct subsidy policy of China and experiences abroad deeply, as well as analysis and design of agricultural direct subsidy policy of China, proposed the proposal of adjustments and improvements of agricultural direct subsidy policy.
Agricultural subsidy policy was policy which transferred payment in agricultural production, circulation and trade links for Government to support, protect and develop agriculture. The agricultural direct subsidy policy was an agricultural subsidy policy which Government paid financial subsidy funds to agricultural producers or benefit agricultural producers directly. China's current four agricultural direct subsidy policies existed differences in policy implications, policy objectives, the scope and targeted of subsidies, the allocation and payment methods of funds. Industry supporting theory, urban and rural co-ordination theory, welfare economics theory, public economics theory, agriculture multi-functional theory, and political game theory is the theoretical basis for agricultural direct subsidies.
The introduction of agricultural direct subsidy policy of China was from four aspects of food subsidy policy reforms, World Trade Organization requirements, ensuring food security and increase peasant income. Food direct subsidy policy, seed subsidy policy and farm machinery purchase subsidy policy were through the pilot and then promotion, agricultural production means comprehensive direct subsidy policy was implemented nationwide directly. Agricultural direct subsidy policy mobilized the enthusiasm of peasants to grow grain, prompting peasants to increase grain planting area, increased grain yield, the country's total grain output had increased for 6 years. Agricultural direct subsidy policy had played an important role in increasing peasant income; subsidies had greater impact on peasants who owned the quantity of cultivated land and larger percent of grain income. The implementation of farm machinery purchase subsidy policies improved the level of agricultural equipment, speeded up the process of agricultural mechanization, strengthened the agricultural comprehensive production capacity, promoted the transformation of agricultural production and promoted the agricultural services industry, and promoted the formation of the diversification agricultural machinery input mechanism, promoted agricultural efficiency and peasant to increase incomes. Implementation of seed subsidy policy mobilized the enthusiasm of peasants to grow grain, raised the level of grain yields and rates of quality grain, contributed to the promotion of fine varieties, and achieved the large-scale cultivation and high-quality products at higher prices. Gray correlation analysis showed that the agricultural direct subsidy policy is an important factor which impact on food production and peasants income, the total role of subsidy policies for income to increase was slightly greater than the role of grain yield to raise. The role of increased production and income of the special direct subsidy policy were greater than comprehensive direct subsidy policy. Only food subsidy policy had greater role of increasing income than role of increasing production.
Agricultural direct subsidy policy of China itself existed issues such as policy objectives not clear, cost-sharing of food subsidies unreasonable, the limit to scope and target of subsidies unreasonably, subsidies scale small, low standard of agricultural direct subsidies and large regional differences, what subsidies based on non-uniform, subsidies system imperfections and subsidy programs not clear, existed issues such as policy advocacy not in place, too much main body of implementation, high implementation costs, low degree of subsidies information technology and supervision not enough in policy implementation, in the policy support existed issues such as subsidies limited and management decentralized, policy-making bodies systems imperfect and subsidy policy lack of legal protection, Mai Liang Nan issues of peasant, the widening income disparity from subsidies, subsidies equity issues needed to be resolved.
Foreign agricultural direct subsidy policy implemented were mainly the production flexibility contract subsidies, land fallow protection plans and counter-cyclical payment policy in the United States, the area subsidies, land fallow subsidies and environmental protection subsidies in EU, policy of stability operating of rice and direct income payment subsidy policy of mountain areas and Mid-level mountain areas in Japan and direct subsidy system of farmers received stability, agricultural structural adjustment, and maintain agricultural public service functions in South Korean. National direct subsidy policy varied in subsidies targets, subsidies strength, subsidies object, subsidies ways and other aspects. China implemented agricultural direct subsidy policy could be a seven-point drawing inspiration: change indirect subsidies to direct subsidies was an inevitable trend, the formulation and adjustment of agricultural direct subsidy policy was in the under the framework of WTO, integrated comprehensive subsidies and special subsidies, the implementation of direct subsidies and price subsidies was at the same time , improved the legislative work of agricultural subsidies of China, raised awareness of agro-ecological environmental protection awareness, establishing and improving the supporting system and measures of agricultural direct subsidy policy.
From the nine aspects of agricultural direct subsidy policy of China such as the policy objectives, systems and the subsidy principle, the scope and the object, size and standard, subsidy ways, subsidy program, subsidies regulatory and subsidies content has been analyzed and designed, building a complete agricultural direct subsidy policy system of combination of comprehensive direct subsidy and specific direct subsidy, food subsidy policy and agricultural production means comprehensive direct subsidy policy belonged to agricultural comprehensive direct subsidy policy, farm machinery purchase subsidy policy and seed subsidy policy belonged to specific direct subsidy policy. Proposed to further improve the existing policy, set up the national land transfer subsidies, technology promotion subsidies, natural disasters subsidies, environmental subsidies, output improved subsidies, peasants training subsidies and land fallow subsidy policy as quickly as possible, and comprehensive direct subsidies took the way of grain contracts subsidies, improved subsidies standards, reduced subsidies cost, strengthened subsidies supervision, to achieve the two main objectives of protection national food security and increasing peasant income.
To adjust and improve agricultural direct subsidy policy of China, in addition to follow certain procedures and requirements to implement, we should establish a long-term agricultural direct subsidy mechanism, improve the existing agricultural direct subsidies policies, set up national agricultural special direct subsidy policies, establish peasant returns from growing grain security system, stable grain minimum purchase price policy, establish production and marketing interests co-ordination mechanisms, the legislation of agricultural direct subsidy, the peasants to settle in cities, rural social security system to support.
本文使用定性分析和定量分析、实证分析和规范分析、动态分析和静态分析、比较分析和关联分析相结合的方法,对中国农业直接补贴政策的相关概念、基础理论、实施状况、实施效果、存在问题以及国外经验等进行了深入剖析,并对中国农业直补政策进行了分析和设计,提出了农业直补政策调整和完善的建议。
农业补贴政策是政府为支持、保护和发展农业,而对农业的生产、流通和贸易等环节进行转移支付的政策。农业直接补贴政策是政府将财政补贴资金直接发放给农业生产者或者直接让农业生产者受益的一种农业补贴政策。中国现行四项农业直补政策在政策含义、政策目标、补贴范围对象、补贴资金分配方式和兑付方式等方面存在着差异。产业扶持理论、城乡统筹理论、福利经济学理论、公共经济学理论、农业多功能性理论和政治博弈理论是进行农业直补的理论基础。
中国农业直补政策的出台源于粮食补贴政策改革、世贸组织要求、保障粮食安全、增加农民收入四个方面的因素。粮食直接补贴政策、良种补贴政策和农机购置补贴政策都经过试点而后推广,农资综合直补政策直接在全国范围内实施。农业直补政策调动了农户的种粮积极性,促使农户增加了粮食种植面积,提高了粮食单产,全国粮食总产量连续6年增加。农业直补政策对农民增收起了重要的作用,补贴对耕地数量多和种粮收入比重大的农户影响较大。农机购置补贴政策的实施提高了农业装备水平,加快了农业机械化进程,增强了农业综合生产能力,促进了农业生产方式的转变,推进了农机服务产业化,促进了多元化农机投入机制的形成,使农业增效和农民增收。良种补贴政策的实施调动了农民种粮积极性,提高了粮食单产水平和粮食优质化率,促进了优良品种的推广,实现了规模种植和优质优价。灰色关联度分析表明农业直补政策是影响粮食增产与农民增收的重要因素,补贴政策总的增收作用略大于增产作用,专项直补政策的增产增收作用均大于综合直补政策,其中只有粮食直补政策的增产作用大于增收作用。
中国农业直补政策自身存在着政策目标不明确、粮食补贴成本分摊不合理、补贴范围和对象限定不合理、补贴规模不大、农业直补标准低且地区差异大、补贴计算依据不统一、补贴体系不完善和补贴方案不明确等问题,在政策执行方面存在着政策宣传不到位、执行主体过多、执行成本高、补贴信息化程度低和补贴监管力度不够等问题,在政策支撑方面存在着补贴资金受限且管理分散、政策组织系统不完善和补贴政策缺乏法律保障等问题,农户卖粮难问题、补贴拉大收入差距问题、补贴公平问题都有待解决。
国外实施的农业直补政策主要有美国的生产灵活性合同补贴、土地休耕保护计划和反周期支付政策,欧盟的面积补贴、休耕补贴和环境保护补贴政策,日本的稻作安定经营政策和山区、半山区直接收入支付补贴政策以及韩国的稳定农户所得直补制度、农业结构调整直补制度、维护农业公益功能直补制度。各国直补政策在补贴目标、补贴强度、补贴对象、补贴方式等方面都有所差异。我国实施农业直接补贴政策的可借鉴的启示有七点:改间接补贴为直接补贴是一个必然趋势,在WTO框架下制定和调整农业直接补贴政策,综合补贴和专项补贴相结合,直接补贴与价格补贴同时实行,完善我国农业补贴的立法工作,提高对农业生态环境保护的认识,建立健全农业直接补贴的配套制度和措施。
从政策目标、体系和补贴原则、范围对象、规模标准、补贴方式、补贴程序、补贴监管、政策内容九大方面对中国农业直补政策进行了分析设计,构建了完整的综合直补和专项直补相结合的农业直接补贴政策体系,粮食直补政策和农资综合直补政策属于农业综合直补政策,农机购置补贴政策和良种补贴政策属于农业专项直补政策。提出要进一步完善现有政策,尽快增设全国性的土地流转补贴、技术推广补贴、自然灾害补贴、环境补贴、改良增产补贴、农民培训补贴和休耕补贴政策,采取种粮合同补贴方式进行综合直补,提高补贴标准,降低补贴成本,加强补贴监管,实现保障国家粮食安全和增加农民收入两大目标。
调整和完善中国农业直补政策除了遵照一定的步骤和要求来实施之外,更需要建立农业直接补贴长效机制,通过整合和完善现行的四项直接补贴政策和增设农业专项直补政策来完善农业直接补贴政策体系,建立农民种粮收益保障制度,稳定粮食最低收购价政策,还要加强和完善产销区利益协调机制,农业直接补贴立法,农民进城定居政策,农村社会保障体系等配套支持制度来支撑。
To address the issue of national food security and peasant incomes increasing slow, China introduced food direct subsidy policy, seed subsidy policy and farm machinery purchase subsidy policy in 2004, introduced agricultural production means comprehensive direct subsidy policy in 2006, which made an important contribution in ensuring national food security and increasing peasant income. However, agricultural direct subsidy policy could not continue to mobilize the enthusiasm of peasants to grow grain and the role of promoting peasant income was limited, and there are many problems in policy design aspects and policy implementation, it need to analysis and study agricultural direct subsidy policy of China deeply, based on theoretical and practical need to design agricultural direct subsidy policy of China, to achieve the dual objective of protecting national food security and increasing peasants income, the study has important theoretical and practical significance.
The article used method of combining with qualitative analysis and quantitative analysis, empirical analysis and normative analysis, dynamic analysis and static analysis, comparative analysis and correlation analysis, analyzed the relevant concepts, basic theory, implementation status, implementation of the results, present issues of agricultural direct subsidy policy of China and experiences abroad deeply, as well as analysis and design of agricultural direct subsidy policy of China, proposed the proposal of adjustments and improvements of agricultural direct subsidy policy.
Agricultural subsidy policy was policy which transferred payment in agricultural production, circulation and trade links for Government to support, protect and develop agriculture. The agricultural direct subsidy policy was an agricultural subsidy policy which Government paid financial subsidy funds to agricultural producers or benefit agricultural producers directly. China's current four agricultural direct subsidy policies existed differences in policy implications, policy objectives, the scope and targeted of subsidies, the allocation and payment methods of funds. Industry supporting theory, urban and rural co-ordination theory, welfare economics theory, public economics theory, agriculture multi-functional theory, and political game theory is the theoretical basis for agricultural direct subsidies.
The introduction of agricultural direct subsidy policy of China was from four aspects of food subsidy policy reforms, World Trade Organization requirements, ensuring food security and increase peasant income. Food direct subsidy policy, seed subsidy policy and farm machinery purchase subsidy policy were through the pilot and then promotion, agricultural production means comprehensive direct subsidy policy was implemented nationwide directly. Agricultural direct subsidy policy mobilized the enthusiasm of peasants to grow grain, prompting peasants to increase grain planting area, increased grain yield, the country's total grain output had increased for 6 years. Agricultural direct subsidy policy had played an important role in increasing peasant income; subsidies had greater impact on peasants who owned the quantity of cultivated land and larger percent of grain income. The implementation of farm machinery purchase subsidy policies improved the level of agricultural equipment, speeded up the process of agricultural mechanization, strengthened the agricultural comprehensive production capacity, promoted the transformation of agricultural production and promoted the agricultural services industry, and promoted the formation of the diversification agricultural machinery input mechanism, promoted agricultural efficiency and peasant to increase incomes. Implementation of seed subsidy policy mobilized the enthusiasm of peasants to grow grain, raised the level of grain yields and rates of quality grain, contributed to the promotion of fine varieties, and achieved the large-scale cultivation and high-quality products at higher prices. Gray correlation analysis showed that the agricultural direct subsidy policy is an important factor which impact on food production and peasants income, the total role of subsidy policies for income to increase was slightly greater than the role of grain yield to raise. The role of increased production and income of the special direct subsidy policy were greater than comprehensive direct subsidy policy. Only food subsidy policy had greater role of increasing income than role of increasing production.
Agricultural direct subsidy policy of China itself existed issues such as policy objectives not clear, cost-sharing of food subsidies unreasonable, the limit to scope and target of subsidies unreasonably, subsidies scale small, low standard of agricultural direct subsidies and large regional differences, what subsidies based on non-uniform, subsidies system imperfections and subsidy programs not clear, existed issues such as policy advocacy not in place, too much main body of implementation, high implementation costs, low degree of subsidies information technology and supervision not enough in policy implementation, in the policy support existed issues such as subsidies limited and management decentralized, policy-making bodies systems imperfect and subsidy policy lack of legal protection, Mai Liang Nan issues of peasant, the widening income disparity from subsidies, subsidies equity issues needed to be resolved.
Foreign agricultural direct subsidy policy implemented were mainly the production flexibility contract subsidies, land fallow protection plans and counter-cyclical payment policy in the United States, the area subsidies, land fallow subsidies and environmental protection subsidies in EU, policy of stability operating of rice and direct income payment subsidy policy of mountain areas and Mid-level mountain areas in Japan and direct subsidy system of farmers received stability, agricultural structural adjustment, and maintain agricultural public service functions in South Korean. National direct subsidy policy varied in subsidies targets, subsidies strength, subsidies object, subsidies ways and other aspects. China implemented agricultural direct subsidy policy could be a seven-point drawing inspiration: change indirect subsidies to direct subsidies was an inevitable trend, the formulation and adjustment of agricultural direct subsidy policy was in the under the framework of WTO, integrated comprehensive subsidies and special subsidies, the implementation of direct subsidies and price subsidies was at the same time , improved the legislative work of agricultural subsidies of China, raised awareness of agro-ecological environmental protection awareness, establishing and improving the supporting system and measures of agricultural direct subsidy policy.
From the nine aspects of agricultural direct subsidy policy of China such as the policy objectives, systems and the subsidy principle, the scope and the object, size and standard, subsidy ways, subsidy program, subsidies regulatory and subsidies content has been analyzed and designed, building a complete agricultural direct subsidy policy system of combination of comprehensive direct subsidy and specific direct subsidy, food subsidy policy and agricultural production means comprehensive direct subsidy policy belonged to agricultural comprehensive direct subsidy policy, farm machinery purchase subsidy policy and seed subsidy policy belonged to specific direct subsidy policy. Proposed to further improve the existing policy, set up the national land transfer subsidies, technology promotion subsidies, natural disasters subsidies, environmental subsidies, output improved subsidies, peasants training subsidies and land fallow subsidy policy as quickly as possible, and comprehensive direct subsidies took the way of grain contracts subsidies, improved subsidies standards, reduced subsidies cost, strengthened subsidies supervision, to achieve the two main objectives of protection national food security and increasing peasant income.
To adjust and improve agricultural direct subsidy policy of China, in addition to follow certain procedures and requirements to implement, we should establish a long-term agricultural direct subsidy mechanism, improve the existing agricultural direct subsidies policies, set up national agricultural special direct subsidy policies, establish peasant returns from growing grain security system, stable grain minimum purchase price policy, establish production and marketing interests co-ordination mechanisms, the legislation of agricultural direct subsidy, the peasants to settle in cities, rural social security system to support.
引文
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