日本稻米价格与收入补贴政策的演进过程及战略创新

Policy Evolution on Rice Price,Income Subsidy and Strategic Innovations in Japan

作为经济成长战略的组成部分,日本政府决定依靠提升竞争力和开拓市场,大幅度增加农业收入。水稻是最主要的粮食作物,对其限产保护和主食用稻米的生产补贴将于2018年取消。日本水稻生产经营以小规模农户为主,对价格保护和收入补贴有较强依赖性,相关政策调整备受关注。本文系统梳理了日本稻米价格和收入补贴政策的演进过程,以及新形势下的战略创新。发端于"二战"前的价格管制在稳定粮荒时代稻米供求的同时,也带来了沉重的财政负担。随着供求关系的变化和相关法律的调整,粮食流通市场逐渐开放,以市场为基础的稻米价格形成机制确立。从1990年代末开始,受农业经济形势特别是世贸组织规则的限制,日本政府更多依靠收入补贴缓解价格下降对农业生产的冲击。伴随政党更替,补贴对象和标准几经修改。自民党政府侧重于促进生产资源向高效、可持续的农业经营体集中,民主党政府则更多考虑小规模农户的生产成本补偿。为化解稻米供给量反弹压力,补贴的重点已经转向饲料和加工等新用途稻米,并且正在努力升级为农业保险。

Being part of the economic growth strategy, the Japanese government aims to increase agricultural income through higher competitiveness and larger market. The acreage restriction and subsidy for table rice, the most important food crop, will be ended since 2018. The small-scale operation-oriented rice production dependent much on price protection and income subsidy, and relevant policy changes attract attention. This paper surveyed policies and latest strategic innova- tions of rice price and income subsidy. Started before World War II, the price control contributed to stabilize the market with extreme rice shortage, while posed heavy fiscal burden. With changed market and legal environment, free rice circula- tion and market-based pricing system have been established. Since late 1990s, more income subsidies were used to relieve the impact of failing prices on agricultural production, subject to the agricultural economic situation, and the WTO rules. With regime shifts, objects and standard of subsidy changed. The LDP government aimed to consolidate the production re- sources to efficient and sustainable farms, while the Democratic government considered more the reproduction of small-scale farms. To deal with the possible rebound of rice supply, the focus of subsidies is shifted to rice produced for feed, processing or other new uses, and to promote the upgrade to agricultural insurance.