财政可持续性约束下的中国政策性农业保险运行困境及对策分析

Analysis of the Operational Difficulties and Countermeasures of China’s Policy Based Agricultural Insurance under the Constraint of Fiscal Sustainability

摘要: 为解决农业保险市场失灵提升其分担农业风险能力，我国政府自2007年起开始大规模农业保险费补贴试点工作，经过多年努力我国已经成为世界最大的农业保险市场，在保障粮食安全和农民收入稳定起到关键作用。但是随着财政支持强度、支持范围不断扩大，高度依赖财政补贴模式面临着巨大挑战，本文从具体挑战出发，研究发现，在财政补贴条件下，我国农业保险实践存在基层政府财政压力过大、财政补贴放大逆向选择和道德风险、政府与承保机构间委托代理问题等。针对这些问题，本文提出重构补贴机制，使其转向精准化与绩效导向；构建多层次巨灾风险分散体系以化解系统性风险；通过“保险 + 科技”等金融创新模式降低交易成本与信息不对称，并完善相关法律与监管框架等具体措施，进而推动我国政策性农业保险的从规模扩张向质量、效率提升的范式转型，实现政策性农业保险可持续发展之目标。

Abstract: In order to address the failure of the agricultural insurance market and enhance its ability to share agricultural risks, the Chinese government has been piloting large-scale agricultural insurance premium subsidies since 2007. After years of efforts, China has become the world’s largest agricultural insurance market, playing a key role in ensuring food security and stable income for farmers. However, with the continuous expansion of financial support intensity and scope, the highly dependent fiscal subsidy model is facing enormous challenges. Starting from specific challenges, this article finds that under the conditions of fiscal subsidies, China’s agricultural insurance practice faces problems such as excessive financial pressure on grassroots governments, adverse selection and moral hazard caused by the amplification of fiscal subsidies, and agency problems between the government and underwriting institutions. In response to these issues, this article proposes to restructure the subsidy mechanism towards precision and performance orientation; Building a multi-level catastrophic risk diversification system to mitigate systemic risks; By using financial innovation models such as “insurance + technology” to reduce transaction costs and information asymmetry, and improving specific measures such as relevant laws and regulatory frameworks, we can promote the paradigm shift of policy based agricultural insurance in China from scale expansion to quality and efficiency improvement, and achieve the goal of sustainable development of policy based agricultural insurance.