反思政策性粮食储备体系:目标分解与制度重构

Reflection on the Government Grain Storage System: Target Decomposition and System Reconstruction

中国政策性粮食储备体系过去在稳市、备荒和恤农上发挥了重要作用,但随着政策干预程度加深和国内外经济形势变化,粮食市场的问题不断累积,重构政策性粮食储备体系迫在眉睫。粮食储备体系的目标重叠是造成政策困境的关键因素。在促进农民增收和保障粮食安全的压力下,托市收储逐渐从单一职能演化到承担多重目标,目标重叠和偏向引发政策目标失衡、执行范围扩大,承储主体的政策依赖惯性进一步加剧托市收储泛化。政策干预不仅导致粮食市场内部出现矛盾,而且通过经济体系层层传导放大,扭曲市场供求和资源配置,甚至引发贸易争端。重构政策性粮食储备体系,应当剥离托市收储的收入支持功能,将其回归到确保粮食安全和市场稳定的基本定位;将过去的托市代储补贴用于鼓励农户和用粮企业入市收购,培育市场自发调节和缓冲风险的能力;将保农民收入的目标交由多样化的补贴和保险支持手段,从而确保生产稳定。同时,政府应当继续加强对政策性收储的监管问责,采取多种手段确保对民间储备的调控能力,并在WTO框架下优化补贴和保险支持方式。

In the past,China′s government grain storage system played an important role in stabilizing the market,responding to famines and natural disasters,and supporting farmers.However,with the deepening of policy intervention and the changes of economic situation at home and abroad,problems in the grain market continue to accumulate,so it is urgent to reconstruct the government grain storage system.The overlapping of policy objectives is one of the key factors to this policy dilemma.Under the pressure of increasing farmers′income and ensuring food security,the target undertaken by the Minimum Procurement Price(MPP)policy gradually evolved from a single one to multiple targets.The overlapping and bias of objectives lead to the imbalance of the government grain storage policy,which expands the implementation scope of MPP.Besides,state-owned storage companies′dependency on policies intensifies the generalization of the MPP policy.This leads to internal contradictions in the grain market.What′s worse,these contradictions are amplified through the economic system to distort market supply-demand and resources allocation,even trigger trade disputes.To reconstruct the policy grain storage system,it is necessary to divest the income-retaining function of the government grain reserve policy and turn back to the original intention of ensuring food security and market stability.Previous storage subsidies can be used to encourage farmers and private companies to store.This helps cultivate the market′s ability to buffer risks spontaneously.The income-retaining function should be supplemented by diversified subsidies and insurance schemes which helps to stabilize food production.At the same time,the government should continue to supervise the state-own storage companies,adopt diversified means to ensure the ability to regulate private reserves and improve subsidies and insurance tools to meet the requirements of WTO.