【作者】 段玉华；

【导师】 王家传；

【作者基本信息】 山东农业大学 ， 农业经济管理， 2007， 博士

【摘要】 全面建设小康社会,关键在农村,重点在农村。资金投入不足是目前制约我国社会主义新农村建设的一个非常重要的因素。近几年来,解决“三农”问题,财政走到了前台,惠农政策大都是财政政策。但通过金融渠道筹集农村发展资金方面做得很不够,农村的资金仍在大量外流,农业和农村信贷资金供求矛盾比较突出。农业政策性金融是整个农村金融服务体系的重要环节,发挥着不可替代的作用。构建“功能完善、分工合理、产权明晰、监管有力”的农村金融服务体系,必须要充分发挥商业金融、农村合作金融以及政策性金融的合力。然而,由于职能定位、服务手段、管理体制等多方面的问题,政策性金融支农职能并没有得到充分发挥。为此,在新形势下,如何深化农业政策性金融体制改革,完善职能、健全机制,支持农业和农村经济发展成为一个亟待研究和解决的重要课题,具有重要的理论和实践意义。本文在已有研究成果的基础上,总结、借鉴国外经验,运用实证分析与规范分析、比较分析、博弈分析等方法,对我国农业政策性金融问题进行了较为全面的研究。论文主要框架与内容是:第一,对农业政策性金融相关理论、概念界定及国内外研究状况等基本问题进行阐述。第二,在回顾我国农业政策性金融历史变迁的基础上,研究我国农业政策性金融目前存在的问题,分析问题的成因。第三,研究世界各国农业政策性金融体制和运作实践情况,为下一步我国农业政策性金融改革发展提出借鉴。第四,进一步深化对农业政策性金融的认识。提出我国农业政策性金融改革发展总体原则和目标模式,并提出促进农业政策性金融发展的配套措施。论文的主要观点和结论如下:1、本文认为农业政策性金融是以贯彻国家农业产业政策和区域政策为主要任务的特殊金融活动,具有扶植性、调控性、倡导性和辅导性等特有功能。农业政策性金融的存在具有深厚的理论和实践基础,是市场经济的必要补充,鉴于农业本身所固有的弱势和市场经济本身所固有的缺陷在可以预见的时间内不会消失,农业政策性金融的功能作用都将长期存在。2、我国农业政策性金融仍然存在诸多问题,从而影响了政策性金融支农功能的发挥:(1)农业政策性金融职能定位不清,国家对政策性与商业性金融的区分模糊,农业政策性金融、商业性金融、合作金融尚未形成合力;(2)农业政策性金融体系缺位,农发行业务范围受限。同时农业政策性金融的倡导性、辅导性功能基本未得到应用;(3)融资机制不健全,利益补偿机制不完善;(4)经营机制不完善,内部管理水平和金融服务能力有待提高;机构布局不尽合理,人员素质较低等。分析产生以上问题的原因,主要是农业政策性金融特殊性质的固有矛盾;对政策性金融认识不到位,政府支持力度不够;缺乏法律法规保障;没有形成有效的监督、评价和协调机制;政策性因素影响了资产质量。3、通过对国外农业政策性金融机构的管理模式、所有制形式、组织形式、体制特征、资金来源和运用、功能应用、外部环境进行比较,结合我国农业政策性金融发展现状,本文认为值得我们借鉴的经验和启示至少有以下五点:(1)农业政策性金融无论在发展中国家和发达国家都普遍存在,我国作为发展中国家,政策性金融支农功能应予强化;(2)政策性保护功能要审慎使用,防止过度保护产生路径依赖;(3)发展是硬道理,政策性银行也是银行,必须要能够可持续发展,才能够使自身的政策性金融支农作用得到稳健、长期发挥;(4)必须完善我国农业政策性金融的配套措施;(5)按照现代银行要求,改革内部管理体制,完善农业政策性银行的公司治理结构。4、针对存在的问题和新的形势要求,我国农业政策性金融应定位于政府支农的有效金融工具,引导社会资金回流农村的主要载体,在农村金融中发挥骨干和支柱作用,实现全方位金融支农。为此,需要按照财政、政策性金融和商业性金融的协调发展原则、业务动态调整和区域差异化原则、全方位功能实现等原则,深化我国农业政策性金融改革。5、本文提出解决问题的具体思路和观点:(1)明晰政策性与商业性金融业务,跳出原来的将金融业务简单划分为政策性业务和商业性业务、非此即彼的二分法,主张将金融业务至少要划分为强政策性业务、弱政策性业务、准政策性业务、商业性业务四个层次。国家根据不同时期的需要,不定期确定金融业务性质和层次,据此制订不同的管理、监督、补偿、优惠方法;(2)农业政策性金融的目的和手段是两个层次的问题,商业化经营只是手段,并非是政策性银行与商业性银行的本质区别,政策性银行的性质应该主要体现在贷款的产业投向及其功能实现上,而不应体现在贷款的运作方式上;(3)进一步构建农业政策性金融体系,允许农业政策性金融业务主体之间适当竞争。扩大农发行的业务范围,允许开办(但不是必须开办)所有的涉农金融业务(包括政策性业务),国家对其政策性业务比例进行硬性规定。(4)区分不同性质、种类和区域的农业政策性金融业务,深化财政、政策性金融和商业性金融合作机制,创新农业政策性金融业务运营模式,重点加大对粮棉油、化肥、糖等物资的购销储业务,中长期建设项目,农业小企业项目等新农村建设等的“瓶颈”领域和薄弱环节的融资支持力度;(5)按照现代银行要求,加快内部综合改革,不断提高经营管理水平和金融服务能力,打造现代农业政策性银行;(6)完善我国农业政策性金融的配套措施,包括建立长期、稳定的融资和补偿机制,加强我国农业政策性金融的法律地位和保障,探索监管新模式,优化金融生态环境等。更多还原

【Abstract】 The key part of building a well-off society lies in rural areas. Insufficient capital investment is an important factor which restricts the new socialist countryside construction. In recent years, in order to settle the problem of "Three Rural Issues", the finance is put on the stage and most preferential agriculture policies are of financial policies. But a large number of rural funds are flowing out and contradiction between supply and demand of agriculture and rural credit is rather outstanding, because mobilization through financial channel to collect rural development funds is inadequate. Agricultural policy-oriented finance is an important part of the entire rural financial service system and plays an irreplaceable role. In order to construct the rural financial service system of "perfect function, reasonable labor division, clear property rights and effective supervision", the resultant forces combining commercial finance, rural cooperative finance and policy-oriented finance must be fully exerted. However, policy-oriented finance function of supporting agriculture is not fully exploited because of the problems in function positioning, service means, management system etc. Therefore, it has become an urgent issue and of great theoretical and practical significance how to deepen the reform of agricultural policy-oriented finance, improve the functions, perfect the mechanism and support agricultural and rural economic development.This thesis makes a more comprehensive study on the problem of agricultural policy-oriented finance, on the basis of existing research results, summing up and learning from foreign experience and using empirical analysis, normative analysis, comparative analysis, game analysis etc. The main framework and contents of this thesis are: First, to represent the basic issues such as related theory of agricultural policy-oriented finance, concept definition, the state of domestic and foreign research etc.; Second, to study the current problems of agricultural policy-oriented finance and analyze the reasons, on the basis of review on historical change of China’s agricultural policy-oriented finance; Third, study agricultural policy-oriented finance systems all over the world and their operating state, to be the reference for further development of China’s agricultural policy-oriented finance reform; Fourth, to further deepen the knowledge of agricultural policy-oriented finance, put forward the general principles and objective mode as well as the complementary measures for China’s agricultural policy-oriented finance reform.The main viewpoints and conclusion are as follows:1. This thesis considers that, agricultural policy-oriented finance is a kind of special financial activity, taking the main task of implementing the national industrial policy-oriented and regional policy-oriented and owning the unique features of supporting, controlling, sparkpluging and counseling. Agricultural policy-oriented finance has a profound theoretical and practical basis and is a necessary complement to market economy. The function of agricultural policy-oriented finance will exist for a long time, because agricultural inherent weakness and market economy inherent flaw will not disappear in foreseeable period.2. There are many problems with China’s agricultural policy-oriented finance and its function of supporting agriculture is influenced: (1)The function positioning of agricultural policy-oriented finance is unclear, the distinction between policy-oriented and commerce-based finance is unclear and the resultant forces of agricultural policy-oriented finance, commercial finance and cooperative finance have not been formed. (2) Agricultural policy-oriented finance system is absent and the scope of agricultural issuingtransaction is limited. At the same time, the sparkpluging and counseling functions of agricultural policy-oriented finance are. not applied. (3) Financing mechanism is distempered and interest compensation mechanism is imperfect. (4) The operating mechanism is imperfect and the internal management level and financial service capacity need to be improved; agencies layout is not quite reasonable and personnel quality is lower. The reasons of the above problems mainly are that, there is inherent contradiction of agricultural policy-oriented finance because of its special feature; the awareness of agricultural policy-oriented finance is not in place and government support is not strong enough; legal and regulation protection is lacked; effective monitoring, evaluation and coordination systems are not formed; and that policy-oriented factors affect asset quality. 3. Comparing with the management mode, ownership form, organization form, institutional characteristics, fund sources and operation, functional application and external environment of foreign agricultural policy-oriented finance mechanism and combing with the current state of China’s agricultural policy-oriented finance, this thesis considered that at least the following five points deserve to be learned by us: (1) Agricultural policy-oriented finance exists in both developing countries and developed countries. China should reinforce policy-oriented finance function of supporting agriculture as a developing country. (2) Policy-oriented protection function should be in prudent use to prevent the dependence because of over-protection. (3) Development is of overriding importance. Policy-oriented-base bank, as a bank, is also required to develop constantly so as to exert the finance function of supporting agriculture stably in a long term. (4) We must improve the complementary measures of China’s agricultural policy-oriented finance. (5) We should reform the internal management system and improve operating structure of agricultural policy-oriented bank according to the requirements of modern banks.4. In the view of existing problems and requirements of new situation, China’s agricultural policy-oriented finance should be one of the basic platforms to guide the allocation of agricultural and rural resources under the condition of market economy. It should play the backbone and pillar role in agricultural finance and support agriculture all-round. Therefore, we should deepen China’s agricultural policy-oriented finance reform according to the principles of coordinated development among financial, policy-oriented and commercial finance, the principles of dynamic adjustment of business and regional differences and the principles of implementing all-round functions.5. This thesis put forward the following ideas and viewpoints to solve the problems: (1) We should clarify the policy-oriented and commercial finance business, instead of dividing the financial business simply into two parts: policy-oriented business and commercial business. We should divide the financial business into at least four levels: strong policy-oriented business, weak policy-oriented business, prospective policy-oriented business and commercial business. The state should clarify the nature and level of finance business aperiodically according to different demands of different periods and make out different management, supervision, compensation and preferential methods. (2) The goals and means of agricultural policy-oriented finance belong to different levels. Commercial operation is just a means, not the essential difference between policy-oriented bank and commercial bank. The nature of policy-oriented bank should be manifested mainly in the industrial orientation of loan and function implementation, not in operation mode of loan. (3) We should further construct agricultural policy-oriented finance system and allow appropriate competition among the main bodies of agricultural policy-oriented finance business. We should enlarge the business scope of agricultural issuingtransaction and allow it to run all agricultural financial business (including policy-oriented business), but not necessarily. The state should make a mandatory regulation on the proportion of policy-oriented business. (4) We should distinguish the agricultural policy-oriented finance business with different nature, types and areas, deepen the cooperative mechanism of financial, policy-oriented and commercial finance, innovate the operation mode of agricultural policy-oriented finance business, attach the importance to the bottleneck areas of new rural construction such as the purchase, sale and reservation business of grain, cotton, oil, fertilizer and sugar, middle and long term construction projects, small agricultural enterprise projects etc and strengthen the financial support to weak parts.(5) We should accelerate the internal comprehensive reform, improve the management level and financial service capacity and build modern agricultural policy-oriented banks, according to the requirements of modern banks.(6)We should improve the complementary measures of agricultural policy-oriented finance including establishing a long-term and stable financing and compensation mechanism, strengthen the legal status and security of agricultural policy-oriented finance, exploit a new supervision mode and optimize the financial ecological environment.更多还原