毛德敏

摘要：【目的】对国外棉花补贴政策进行分析，为优化新疆棉花补贴和农业保险政策提供借鉴。【方法】采用文献调查方法，对相关文献进行梳理和对比研究，总结归纳国外棉花价格支持政策和农业保险政策。【结果】高额的补贴对促进棉花生产发挥了积极作用。印度和巴西实行棉花价格支持政策，按棉花产量（或出售量）计算补贴金额，核算简单；巴西和美国对农业保险给予保费补贴，且越发达的国家补贴水平及保障水平越高，美国立法保证农业保险的实施。相比之下，新疆棉花目标价格政策运行成本较高，补贴金额核算程序复杂，补贴项目相对较少；受制于地方经济发展水平，地方财政对农业保险投入有限；由于缺乏相关法律法规影响了棉花补贴政策的实施效果和可持续性。【建议】新疆应扩大棉花补贴范围，确保棉农种棉收益；加大对棉花保险的投入和支持力度，降低棉花生产风险；尽快出台棉花补贴和棉花保险的相关法律，提高政策实施效果。

关键词： 补贴政策；农业保险；棉花生产；新疆

中图分类号： F316.12 文献标志码：A 文章编号：2095-1191（2016）08-1434-05

Abstract：【Objective】The cotton subsidy policies of the cotton producing countries were analyzed， in order to provide reference for optimizing Xinjangs cotton subsidy policy and agricultural insurance policy. 【Method】Based on the literatures， prices support policy and agricultural insurance policy of main cotton-production countries were summarized through combing and comparative study. 【Result】High subsidies to promote cotton production had played a positive role. India and Brazil had cotton price support policy， calculating subsidies by cotton production（or sales）， that the method was simple； Brazil and the United States gave the agricultural insurance subsidies， and the more advanced level the coutry was， the higher subsidies and security level was；The United States legislate for ensuring the implementation of the agricultural insurance. By contrast， the price target policy of Xinjiang cotton cost was higher， and subsidies amount calculation procedure was complex， relatively few subsidy program local economic development level， the local finance in agricultural insurance was limited； Because of the lack of relevant laws and regulations， it was affected that cotton subsidies policy implementation effect and sustainability. 【Suggestion】Xinjiang should expand the subsidized coverage， ensure the income of the cotton growers， increase the investment and support for cotton insurance， reduce the production risk and issue relevant laws of the cotton subsidy policy and agricultural insurance policy to improve the effects of policy implementation.

Key words： subsidy policy； agricultural insurance； cotton production； Xinjiang

0 引言

【研究意義】2014年我国棉花进口量为243.95万t，由于印度和美国对棉花补贴力度较高，两国出口到我国的棉花达137.36万t，占我国棉花进口量的56%，对我国棉花销售冲击较大，尤其是对占据全国棉花产量“半壁江山”的新疆，其棉花第一次出现了滞销。尽管新疆的棉花生产有良种和农机购置等补贴，但相对于不断上涨的棉花种植成本而言，补贴金额较低，因此政策效果微乎其微。……