中国农业保险发展模式与补贴政策研究
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摘要
现代保险具有三大功能,即经济保障、资金融通和社会管理功能,而经济保障是保险的基本功能,是由保险的本质特征所决定的,该功能体现在分散风险、经济补偿或给付、促进社会安定这三个方面,社会管理功能是保险业发展到一定程度,并深入到社会生活的诸多层面之后的一项功能,比如社会保障、风险分散和社会管理等。
农业保险作为经济保障和分散风险的一种机制,在国际上已经成为保险保障体系中一个重要组成部分,但是农业保险经营是一个世界性难题,反映在中国的现实情况就是,由于国家对农村投入长期不足、农村现行体制的缺陷导致农村经济相对滞后,结果是农业现代化水平较低、农业灾害严重、农业风险分散机制的欠缺和农业保险逐步萎缩,保险保障的功能未能充分在农村地区体现。2006年6月15日,国务院颁布了《国务院关于保险改革发展的若干意见》(简称国十条),对政策性农业保险的发展提出了明确要求。政策性农业保险的实质是政府财政对农业生产部门的补贴,是工业反哺农业的一种表现形式,与一个国家或地区的工业化进程有着密切联系。当前,中国已经步入了工业反哺农业的初级阶段,政策性农业保险试点也顺势于2007年在全国逐步展开。在中国这样一个耕地资源有限的人口大国,开办政策性农业保险的一个重要目的就是维护粮食安全,我国首批政策性农业保险试点省份全部选择中西部粮食生产大省便是这一观点的最好诠释。
这些政策出台后,我国的农业保险虽然取得了一定发展,但整体情况并不理想,保险的保障功能和风险分散机制未能充分体现。受国家或地方政府整体财政实力的限制和区域经济发展不平衡的影响,当前中国政策性农业保险在发展过程中存在着保障水平过低、财政补贴资金安排不到位、风险防范、需求与供给相背离等一系列有待解决的重要问题,制约了农业保险风险保障功能的充分发挥。
本研究从利益相关者理论出发,针对农业保险制度的实际情况深入分析各方的利益关系,发现利益取向和矛盾所在,以便能够探索出适合我国农业保险风险特点和农村社会体系的发展道路。国内外利益相关者的理论研究是从管理学角度——主要是从公司治理、股权结构、内控合规等方面去研究企业的利益相关者,关键是探索企业所有权配置、共享所有权及利益相关者“共同治理”的优越性,从而为利益相关者参与治理提供了理论基础,良好的利益相关者治理机制和较高的利益相关者治理水平有助于增强企业的盈利能力,因此,利益相关者的研究者往往重视企业中各利益相关者的权威,鼓励利益相关者各方适当而有效的参与公司治理和内控合规管理。
国内外学者对利益相关者理论的研究颇为丰富,但是把该理论应用到保险尤其是农业保险领域则较为缺乏。农业保险的利益相关者主要可以从三个方面来识别：一是为农业保险日常运作所需各种资源的提供者,如政府(包括中央政府、地方政府)、保险公司及其管理人员和员工；二是其行为能直接影响到农业保险经营管理的社会实体,如农户、政府救济部门、保险行业协会、气象部门等；三是农业保险的经营活动所能影响到的组织与个人,如农村居民、农产品消费者等。
本文第三章研究农业保险利益相关者及其利益诉求,从合法性、影响力和紧急性三个维度对农业保险利益相关者进行分类,得出的结论是农业保险的利益相关者可以被分为三类：核心利益相关者、战略利益相关者和潜在利益相关者。核心利益相关者主要包括政府、保险公司和农户三个利益群体；政府的诉求是履行其职责,维护社会稳定,推进农村经济发展和提高社会福利水平；保险公司的利益诉求则为追求利润最大化的同时履行社会责任；而农户的利益诉求为获得政府或其他机构的防灾减损服务,在受到灾害事故后能得到保险公司的赔偿或政府的救济。本文第四章分析和研究核心利益相关者群体的利益冲突和博弈,由于各个利益群体有着不同的利益要求和行为特征,并由此引发了它们之间的利益冲突,本研究发现农业保险的各利益相关者既相互独立又相互影响。
本文第五章首先研究和分析了农业保险的可保风险和可保风险的转变条件以及农业保险的风险特征,随后以广东农业风险和农业保险为例,根据广东农业保险发展历程,分析保险公司利润最大化视角的农业风险可保性,认为解决农业风险可保性必须完善农业保险的再保险机制和巨灾风险防范机制,同时政府应当对农业保险进行保费补贴、减免相关税赋和提供管理费补贴。
本文第六章总结出国内外农业保险发展的实践证明,有效的农业保险制度或发展模式对于农业保险的发展至关重要,但迄今为止,并没有发现哪一种发展模式最成功,能够被全世界所普遍采用,这是因为不同的国家或地区在经济发展水平、社会文化环境和农业风险特征等方面存在着各种各样的差异。本文提出构建一种新型的农业保险经营模式——利益相关者导向模式,即核心利益相关者共同参与到农业保险的经营当中,通过协调各利益相关者之间关系并采取相应行动以实现农业保险可持续发展的一种制度安排。
本文第七章分析我国经济发展水平和农民收入水平存在地域差异的现实国情,从维护财政公平的角度出发,深入研究农业保险补贴模式的不足和对农民收入分配的不利影响,综合比较了现有各种财政补贴方式的利弊,同时结合我国经济发展存在省际差异和省内差距的现状,提出根据各级政府的经济发展水平和财政实力分摊农业保险财政补贴的新机制,建立中央财政与地方各级财政相结合的、多层次的农业保险财政补贴体系。
在当前耕地面积逐年下降、抛荒现象普遍存在、特大自然灾害频繁发生的背景下,根据我国的现实国情和运用利益相关者理论,研究设计科学的政策性农业保险财政补贴体系,确立科学的制度提高农民从事粮食生产的积极性,对于保障国家中长期粮食安全和社会稳定具有重要的现实意义。同时,开展本研究具有重要的理论意义和实践价值,特别是对于促进农业发展、增加农民收入、推动社会主义新农村建设,解决当前的“三农”问题有着十分重要的应用价值。
Modern insurance has three functions, namely, economic security, financing and social management, and economic security is the basic function of the insurance which is determined by insurance's essential characteristics. The functions are reflected in three aspects of risk diversification, financial compensation and promote social stability. The social management is emerged when the insurance industry was developed and affected by many aspects of social life, such as social security and social risk management.
Agricultural insurance as a mechanism for economic security and risk diversification is an important part of social security system in the international arena. The management of agricultural insurance business is a worldwide problem and China faces great challenges for a long time as our special national conditions and the system, the serious agricultural disasters, economic backwardness in rural areas and low level of agricultural modernization. Due to the lack of agricultural risk spreading mechanism and lack of government investment, China agricultural insurance is gradually shrinking and the insurance function is not fully reflected. On June15,2006, the State Council promulgated the "A number of observations of State Council on insurance reform and development"(referred to as the State50), put forward specific demands on the development of policy agricultural insurance. The essence of policy agricultural insurance is the financial subsidies for agricultural production sector from government and it is a manifestation of the industry to support agriculture which is closely linked with the process of industrialization of a country or region. At present, China has entered the initial stage of the industry to support agriculture and the test of policy agricultural insurance was carried out in the country in2007. The important objective for running policy agricultural insurance is to maintain food security in the population with limited arable land resources and so it is the best interpretation that the first policy agricultural insurance test was selected in mid-west grain production province. These policies promoted the development of agricultural insurance but the overall situation is not ideal and the insurance protection function and risk diversification mechanism is not fully reflected. The current policy agricultural insurance in China existed a series of important issues such as low level of financial subsidy, risk prevention and the departure of demand and supply, all of which would restrict agricultural insurance risk protection as the shortage of overall financial strength of the national or local government.
This study, starting from the stakeholder theory based upon agricultural insurance system and in-depth analysis of the interests of all parties, try to find the orientation of interest and contradictions wherein and to explore the road of development suitable for the risk characteristics of agricultural insurance and rural social system.
The theoretical study of the domestic and international stakeholders mainly focuses on corporate governance, ownership structure and internal control from the management perspective, the key of this study is to explore the configuration of ownership, shared ownership and the advantages of common governance of stakeholder. This study provides a theoretical foundation for stakeholder's participation in governance mechanisms as a high level of stakeholder governance contributes the profitability of the enterprise. Therefore, stakeholder researchers tend to attach importance to the authority of stakeholders in the enterprise and to encourage the stakeholder participation in corporate governance and regulatory management of internal control.
The study of stakeholder theory from domestic and foreign scholars is quite rich, but very little theory is applied to insurance, especially the field of agricultural insurance. Stakeholders in the agricultural insurance can be identified from three aspects:First, the provider of daily operation for the agricultural insurance, such as government (including central and local government), insurance companies, its officers and employees; social entities whose behavior can directly affect the management of agricultural insurance, such as farmers, relief from the government sector, insurance association and the meteorological department etc.
The chapter III studies the stakeholders and their interest demands and classifies the stakeholders from three dimensions for legitimacy, influence and urgency, finally concludes that the stakeholders in the agricultural insurance can be divided into three categories:core stakeholders, strategic stakeholders and potential stakeholders. The core stakeholders, including three interest groups of government, insurance companies and farmers; the demands of the government to fulfill its responsibilities to maintain social stability, to promote rural economic development and raise the level of social welfare; the demands of insurance companies, compared with the pursuit of profit maximization at the same time to fulfill their social responsibilities; the demands of farmers is to obtain the risks prevention service by the government or other agencies and to get the compensation or government relief when suffered disaster or accidents. The chapter IV analyses the conflict of interest and the game among the core stakeholders. This study found that agricultural insurance stakeholders both independent and influence each other as various interest groups have different interests and demands and behavioral characteristics, and thus triggered a conflict of interest among them.
The chapter V firstly researches and analyses of insurable risks and changes in the conditions of the insurable risk and the risk characteristics of the agricultural insurance, followed the example of Guangdong's agricultural risks and agricultural insurance. According to the course of development of the agricultural Insurance, this part analyses agricultural risk insurability from insurers'profit-maximizing perspective and considers that the risk insurability depend upon the mechanism of agricultural reinsurance and catastrophe risk, the government should conduct agricultural premium subsidies, reduction of the related taxes and provide management subsidies as well.
The chapter VI summed up the practice of agricultural insurance development at home and abroad and proved essential for the development of agricultural insurance with its system or mode of development, but so far, not any one development model is the most successful or apply worldwide generally. The reason is simple as there were wide differences in the level of economic development, social and cultural environment and agricultural risk characteristics in different countries or regions. This study proposes to build a new agricultural insurance model-stakeholders-oriented model and in this model core stakeholders should participate in the agricultural insurance business by coordinating the relationship among the various stakeholders and take appropriate action to achieve sustainable agricultural insurance system arrangement.
The chapter VII analyses the actual situation of the level of economic development and farmers income level of the geographical differences and in-depth study of agricultural insurance subsidy model deficiencies and adverse effects on farmers' income distribution and a comprehensive comparison of existing the pros and cons of the various financial subsidies from the perspective of maintaining fiscal equity. Meanwhile the chapter analyses comparison of existing the pros and cons of the various financial subsidies comprehensively and proposed a new mechanism for sharing financial subsidies according to the level of economic development and financial strength of all levels of government and the establishment of the Central finance and local combining all levels of financial and multi-level agricultural insurance financial subsidy system.
Under the background of declining in the current arable land, abandoned widespread frequent occurrence of natural disasters, it has important practical significance for the protection of national long-term food security and social stability depend upon our actual situation and the use of stakeholder theory and designation of scientific policy agricultural insurance financial subsidy system. To carry out this study has important theoretical and practical value, especially for promoting agricultural development and construction of a new rural, increasing farmers' income and finally solving the "three rural" issues.
农业保险作为经济保障和分散风险的一种机制,在国际上已经成为保险保障体系中一个重要组成部分,但是农业保险经营是一个世界性难题,反映在中国的现实情况就是,由于国家对农村投入长期不足、农村现行体制的缺陷导致农村经济相对滞后,结果是农业现代化水平较低、农业灾害严重、农业风险分散机制的欠缺和农业保险逐步萎缩,保险保障的功能未能充分在农村地区体现。2006年6月15日,国务院颁布了《国务院关于保险改革发展的若干意见》(简称国十条),对政策性农业保险的发展提出了明确要求。政策性农业保险的实质是政府财政对农业生产部门的补贴,是工业反哺农业的一种表现形式,与一个国家或地区的工业化进程有着密切联系。当前,中国已经步入了工业反哺农业的初级阶段,政策性农业保险试点也顺势于2007年在全国逐步展开。在中国这样一个耕地资源有限的人口大国,开办政策性农业保险的一个重要目的就是维护粮食安全,我国首批政策性农业保险试点省份全部选择中西部粮食生产大省便是这一观点的最好诠释。
这些政策出台后,我国的农业保险虽然取得了一定发展,但整体情况并不理想,保险的保障功能和风险分散机制未能充分体现。受国家或地方政府整体财政实力的限制和区域经济发展不平衡的影响,当前中国政策性农业保险在发展过程中存在着保障水平过低、财政补贴资金安排不到位、风险防范、需求与供给相背离等一系列有待解决的重要问题,制约了农业保险风险保障功能的充分发挥。
本研究从利益相关者理论出发,针对农业保险制度的实际情况深入分析各方的利益关系,发现利益取向和矛盾所在,以便能够探索出适合我国农业保险风险特点和农村社会体系的发展道路。国内外利益相关者的理论研究是从管理学角度——主要是从公司治理、股权结构、内控合规等方面去研究企业的利益相关者,关键是探索企业所有权配置、共享所有权及利益相关者“共同治理”的优越性,从而为利益相关者参与治理提供了理论基础,良好的利益相关者治理机制和较高的利益相关者治理水平有助于增强企业的盈利能力,因此,利益相关者的研究者往往重视企业中各利益相关者的权威,鼓励利益相关者各方适当而有效的参与公司治理和内控合规管理。
国内外学者对利益相关者理论的研究颇为丰富,但是把该理论应用到保险尤其是农业保险领域则较为缺乏。农业保险的利益相关者主要可以从三个方面来识别：一是为农业保险日常运作所需各种资源的提供者,如政府(包括中央政府、地方政府)、保险公司及其管理人员和员工；二是其行为能直接影响到农业保险经营管理的社会实体,如农户、政府救济部门、保险行业协会、气象部门等；三是农业保险的经营活动所能影响到的组织与个人,如农村居民、农产品消费者等。
本文第三章研究农业保险利益相关者及其利益诉求,从合法性、影响力和紧急性三个维度对农业保险利益相关者进行分类,得出的结论是农业保险的利益相关者可以被分为三类：核心利益相关者、战略利益相关者和潜在利益相关者。核心利益相关者主要包括政府、保险公司和农户三个利益群体；政府的诉求是履行其职责,维护社会稳定,推进农村经济发展和提高社会福利水平；保险公司的利益诉求则为追求利润最大化的同时履行社会责任；而农户的利益诉求为获得政府或其他机构的防灾减损服务,在受到灾害事故后能得到保险公司的赔偿或政府的救济。本文第四章分析和研究核心利益相关者群体的利益冲突和博弈,由于各个利益群体有着不同的利益要求和行为特征,并由此引发了它们之间的利益冲突,本研究发现农业保险的各利益相关者既相互独立又相互影响。
本文第五章首先研究和分析了农业保险的可保风险和可保风险的转变条件以及农业保险的风险特征,随后以广东农业风险和农业保险为例,根据广东农业保险发展历程,分析保险公司利润最大化视角的农业风险可保性,认为解决农业风险可保性必须完善农业保险的再保险机制和巨灾风险防范机制,同时政府应当对农业保险进行保费补贴、减免相关税赋和提供管理费补贴。
本文第六章总结出国内外农业保险发展的实践证明,有效的农业保险制度或发展模式对于农业保险的发展至关重要,但迄今为止,并没有发现哪一种发展模式最成功,能够被全世界所普遍采用,这是因为不同的国家或地区在经济发展水平、社会文化环境和农业风险特征等方面存在着各种各样的差异。本文提出构建一种新型的农业保险经营模式——利益相关者导向模式,即核心利益相关者共同参与到农业保险的经营当中,通过协调各利益相关者之间关系并采取相应行动以实现农业保险可持续发展的一种制度安排。
本文第七章分析我国经济发展水平和农民收入水平存在地域差异的现实国情,从维护财政公平的角度出发,深入研究农业保险补贴模式的不足和对农民收入分配的不利影响,综合比较了现有各种财政补贴方式的利弊,同时结合我国经济发展存在省际差异和省内差距的现状,提出根据各级政府的经济发展水平和财政实力分摊农业保险财政补贴的新机制,建立中央财政与地方各级财政相结合的、多层次的农业保险财政补贴体系。
在当前耕地面积逐年下降、抛荒现象普遍存在、特大自然灾害频繁发生的背景下,根据我国的现实国情和运用利益相关者理论,研究设计科学的政策性农业保险财政补贴体系,确立科学的制度提高农民从事粮食生产的积极性,对于保障国家中长期粮食安全和社会稳定具有重要的现实意义。同时,开展本研究具有重要的理论意义和实践价值,特别是对于促进农业发展、增加农民收入、推动社会主义新农村建设,解决当前的“三农”问题有着十分重要的应用价值。
Modern insurance has three functions, namely, economic security, financing and social management, and economic security is the basic function of the insurance which is determined by insurance's essential characteristics. The functions are reflected in three aspects of risk diversification, financial compensation and promote social stability. The social management is emerged when the insurance industry was developed and affected by many aspects of social life, such as social security and social risk management.
Agricultural insurance as a mechanism for economic security and risk diversification is an important part of social security system in the international arena. The management of agricultural insurance business is a worldwide problem and China faces great challenges for a long time as our special national conditions and the system, the serious agricultural disasters, economic backwardness in rural areas and low level of agricultural modernization. Due to the lack of agricultural risk spreading mechanism and lack of government investment, China agricultural insurance is gradually shrinking and the insurance function is not fully reflected. On June15,2006, the State Council promulgated the "A number of observations of State Council on insurance reform and development"(referred to as the State50), put forward specific demands on the development of policy agricultural insurance. The essence of policy agricultural insurance is the financial subsidies for agricultural production sector from government and it is a manifestation of the industry to support agriculture which is closely linked with the process of industrialization of a country or region. At present, China has entered the initial stage of the industry to support agriculture and the test of policy agricultural insurance was carried out in the country in2007. The important objective for running policy agricultural insurance is to maintain food security in the population with limited arable land resources and so it is the best interpretation that the first policy agricultural insurance test was selected in mid-west grain production province. These policies promoted the development of agricultural insurance but the overall situation is not ideal and the insurance protection function and risk diversification mechanism is not fully reflected. The current policy agricultural insurance in China existed a series of important issues such as low level of financial subsidy, risk prevention and the departure of demand and supply, all of which would restrict agricultural insurance risk protection as the shortage of overall financial strength of the national or local government.
This study, starting from the stakeholder theory based upon agricultural insurance system and in-depth analysis of the interests of all parties, try to find the orientation of interest and contradictions wherein and to explore the road of development suitable for the risk characteristics of agricultural insurance and rural social system.
The theoretical study of the domestic and international stakeholders mainly focuses on corporate governance, ownership structure and internal control from the management perspective, the key of this study is to explore the configuration of ownership, shared ownership and the advantages of common governance of stakeholder. This study provides a theoretical foundation for stakeholder's participation in governance mechanisms as a high level of stakeholder governance contributes the profitability of the enterprise. Therefore, stakeholder researchers tend to attach importance to the authority of stakeholders in the enterprise and to encourage the stakeholder participation in corporate governance and regulatory management of internal control.
The study of stakeholder theory from domestic and foreign scholars is quite rich, but very little theory is applied to insurance, especially the field of agricultural insurance. Stakeholders in the agricultural insurance can be identified from three aspects:First, the provider of daily operation for the agricultural insurance, such as government (including central and local government), insurance companies, its officers and employees; social entities whose behavior can directly affect the management of agricultural insurance, such as farmers, relief from the government sector, insurance association and the meteorological department etc.
The chapter III studies the stakeholders and their interest demands and classifies the stakeholders from three dimensions for legitimacy, influence and urgency, finally concludes that the stakeholders in the agricultural insurance can be divided into three categories:core stakeholders, strategic stakeholders and potential stakeholders. The core stakeholders, including three interest groups of government, insurance companies and farmers; the demands of the government to fulfill its responsibilities to maintain social stability, to promote rural economic development and raise the level of social welfare; the demands of insurance companies, compared with the pursuit of profit maximization at the same time to fulfill their social responsibilities; the demands of farmers is to obtain the risks prevention service by the government or other agencies and to get the compensation or government relief when suffered disaster or accidents. The chapter IV analyses the conflict of interest and the game among the core stakeholders. This study found that agricultural insurance stakeholders both independent and influence each other as various interest groups have different interests and demands and behavioral characteristics, and thus triggered a conflict of interest among them.
The chapter V firstly researches and analyses of insurable risks and changes in the conditions of the insurable risk and the risk characteristics of the agricultural insurance, followed the example of Guangdong's agricultural risks and agricultural insurance. According to the course of development of the agricultural Insurance, this part analyses agricultural risk insurability from insurers'profit-maximizing perspective and considers that the risk insurability depend upon the mechanism of agricultural reinsurance and catastrophe risk, the government should conduct agricultural premium subsidies, reduction of the related taxes and provide management subsidies as well.
The chapter VI summed up the practice of agricultural insurance development at home and abroad and proved essential for the development of agricultural insurance with its system or mode of development, but so far, not any one development model is the most successful or apply worldwide generally. The reason is simple as there were wide differences in the level of economic development, social and cultural environment and agricultural risk characteristics in different countries or regions. This study proposes to build a new agricultural insurance model-stakeholders-oriented model and in this model core stakeholders should participate in the agricultural insurance business by coordinating the relationship among the various stakeholders and take appropriate action to achieve sustainable agricultural insurance system arrangement.
The chapter VII analyses the actual situation of the level of economic development and farmers income level of the geographical differences and in-depth study of agricultural insurance subsidy model deficiencies and adverse effects on farmers' income distribution and a comprehensive comparison of existing the pros and cons of the various financial subsidies from the perspective of maintaining fiscal equity. Meanwhile the chapter analyses comparison of existing the pros and cons of the various financial subsidies comprehensively and proposed a new mechanism for sharing financial subsidies according to the level of economic development and financial strength of all levels of government and the establishment of the Central finance and local combining all levels of financial and multi-level agricultural insurance financial subsidy system.
Under the background of declining in the current arable land, abandoned widespread frequent occurrence of natural disasters, it has important practical significance for the protection of national long-term food security and social stability depend upon our actual situation and the use of stakeholder theory and designation of scientific policy agricultural insurance financial subsidy system. To carry out this study has important theoretical and practical value, especially for promoting agricultural development and construction of a new rural, increasing farmers' income and finally solving the "three rural" issues.
引文
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①2008年新增河南、辽宁、黑龙江、河北为政策性农业保险试点省份。
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