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关于加快农业保险高质量发展的指导意见

2019-10-15 08:46:27 来源:农业农村部 阅读量:19195 评论

导读:农业保险作为分散农业生产经营风险的重要手段,对推进现代农业发展、促进乡村产业振兴、改进农村社会治理、保障农民收益等具有重要作用。近年来,在党中央、国务院正确领导下,各地区、各有关部门积极推动农业保险发展,不断健全农业保险政策体系,取得了明显成效。但农业保险发展仍面临一些困难和问题,与服务“三农”的实际需求相比仍有较大差距。为加快农业保险高质量发展,现提出以下意见。

  【农机网 政策导读】农业保险作为分散农业生产经营风险的重要手段,对推进现代农业发展、促进乡村产业振兴、改进农村社会治理、保障农民收益等具有重要作用。近年来,在党中央、国务院正确领导下,各地区、各有关部门积极推动农业保险发展,不断健全农业保险政策体系,取得了明显成效。但农业保险发展仍面临一些困难和问题,与服务“三农”的实际需求相比仍有较大差距。为加快农业保险高质量发展,现提出以下意见。
 
  一、总体要求
 
  (一)指导思想。以习近平新时代中国特色社会主义思想为指导,全面贯彻党的十九大和十九届二中、三中全会精神,按照党中央、国务院决策部署,紧紧围绕实施乡村振兴战略和打赢脱贫攻坚战,立足深化农业供给侧结构性改革,按照适应世贸组织规则、保护农民利益、支持农业发展和“扩面、增品、提标”的要求,进一步完善农业保险政策,提高农业保险服务能力,优化农业保险运行机制,推动农业保险高质量发展,更好地满足“三农”领域日益增长的风险保障需求。
 
  (二)基本原则。
 
  政府引导。更好发挥政府引导和推动作用,通过加大政策扶持力度,强化业务监管,规范市场秩序,为农业保险发展营造良好环境。
 
  市场运作。与农业保险发展内在规律相适应,充分发挥市场在资源配置中的决定性作用,坚持以需求为导向,强化创新,发挥好保险机构在农业保险经营中的自主性和创造性。
 
  自主自愿。充分尊重农民和农业生产经营组织意愿,不得强迫、限制其参加农业保险。结合实际探索符合不同地区特点的农业保险经营模式,充分调动农业保险各参与方的积极性。
 
  协同推进。加强协同配合,统筹兼顾新型农业经营主体和小农户,既充分发挥农业保险经济补偿和风险管理功能,又注重融入农村社会治理,共同推进农业保险工作。
 
  (三)主要目标。
 
  到2022年,基本建成功能完善、运行规范、基础完备,与农业农村现代化发展阶段相适应、与农户风险保障需求相契合、中央与地方分工负责的多层次农业保险体系。稻谷、小麦、玉米3大主粮作物农业保险覆盖率达到70%以上,收入保险成为我国农业保险的重要险种,农业保险深度(保费/产业增加值)达到1%,农业保险密度(保费/农业从业人口)达到500元/人。
 
  到2030年,农业保险持续提质增效、转型升级,总体发展基本达到先进水平,实现补贴有效率、产业有保障、农民得实惠、机构可持续的多赢格局。
 
  二、提高农业保险服务能力
 
  (四)扩大农业保险覆盖面。推进政策性农业保险改革试点,在增强农业保险产品内在吸引力的基础上,结合实施重要农产品保障战略,稳步扩大关系国计民生和国家粮食安全的大宗农产品保险覆盖面,提高小农户农业保险投保率,实现愿保尽保。探索依托养殖企业和规模养殖场(户)创新养殖保险模式和财政支持方式,提高保险机构开展养殖保险的积极性。鼓励各地因地制宜开展优势特色农产品保险,逐步提高其占农业保险的比重。适时调整完善森林和草原保险制度,制定相关管理办法。
 
  (五)提高农业保险保障水平。结合农业产业结构调整和生产成本变动,建立农业保险保障水平动态调整机制,在覆盖农业生产直接物化成本的基础上,扩大农业大灾保险试点,逐步提高保障水平。推进稻谷、小麦、玉米完全成本保险和收入保险试点,推动农业保险“保价格、保收入”,防范自然灾害和市场变动双重风险。稳妥有序推进收入保险,促进农户收入稳定。
 
  (六)拓宽农业保险服务领域。满足多元化的风险保障需求,探索构建涵盖财政补贴基本险、商业险和附加险等的农业保险产品体系。稳步推广指数保险、区域产量保险、涉农保险,探索开展一揽子综合险,将农机大棚、农房仓库等农业生产设施设备纳入保障范围。开发满足新型农业经营主体需求的保险产品。创新开展环境污染责任险、农产品质量险。支持开展农民短期意外伤害险。鼓励保险机构为农业对外合作提供更好的保险服务。将农业保险纳入农业灾害事故防范救助体系,充分发挥保险在事前风险防预、事中风险控制、事后理赔服务等方面的功能作用。
 
  (七)落实便民惠民举措。落实国家强农惠农富农政策,切实维护投保农民和农业生产经营组织利益,充分保障其知情权,推动农业保险条款通俗化、标准化。保险机构要做到惠农政策、承保情况、理赔结果、服务标准、监管要求“五公开”,做到定损到户、理赔到户,不惜赔、不拖赔,切实提高承保理赔效率,健全科学的查勘定损机制。鼓励各地因地制宜建立损失核定委员会,鼓励保险机构实行无赔款优待政策。
 
  三、优化农业保险运行机制
 
  (八)明晰政府与市场边界。地方各级政府不参与农业保险的具体经营。在充分尊重保险机构产品开发、精算定价、承保理赔等经营自主权的基础上,通过给予必要的保费补贴、大灾赔付、提供信息数据等支持,调动市场主体积极性。基层政府部门和相关单位可以按照有关规定,协助办理农业保险业务。
 
  (九)完善大灾风险分散机制。加快建立财政支持的多方参与、风险共担、多层分散的农业保险大灾风险分散机制。落实农业保险大灾风险准备金制度,增强保险机构应对农业大灾风险能力。增加农业再保险供给,扩大农业再保险承保能力,完善再保险体系和分保机制。合理界定保险机构与再保险机构的市场定位,明确划分中央和地方各自承担的责任与义务。
 
  (十)清理规范农业保险市场。加强财政补贴资金监管,对骗取财政补贴资金的保险机构,依法予以处理,实行失信联合惩戒。进一步规范农业保险市场秩序,降低农业保险运行成本,加大对保险机构资本不实、大灾风险安排不足、虚假承保、虚假理赔等处罚力度,对未达到基本经营要求、存在重大违规行为和重大风险隐患的保险机构,坚决依法清退出农业保险市场。
 
  (十一)鼓励探索开展“农业保险+”。建立健全保险机构与灾害预报、农业农村、林业草原等部门的合作机制,加强农业保险赔付资金与政府救灾资金的协同运用。推进农业保险与信贷、担保、期货(权)等金融工具联动,扩大“保险+期货”试点,探索“订单农业+保险+期货(权)”试点。建立健全农村信用体系,通过农业保险的增信功能,提高农户信用等级,缓解农户“贷款难、贷款贵”问题。
 
  四、加强农业保险基础设施建设
 
  (十二)完善保险条款和费率拟订机制。加强农业保险风险区划研究,构建农业生产风险地图,发布农业保险纯风险损失费率,研究制定主要农作物、主要牲畜、重要“菜蓝子”品种和森林草原保险示范性条款,为保险机构产品开发、费率调整提供技术支持。建立科学的保险费率拟订和动态调整机制,实现基于地区风险的差异化定价,真实反映农业生产风险状况。
 
  (十三)加强农业保险信息共享。加大投入力度,不断提升农业保险信息化水平。逐步整合财政、农业农村、保险监督管理、林业草原等部门以及保险机构的涉农数据和信息,动态掌握参保农民和农业生产经营组织相关情况,从源头上防止弄虚作假和骗取财政补贴资金等行为。
 
  (十四)优化保险机构布局。支持保险机构建立健全基层服务体系,切实改善保险服务。经营政策性农业保险业务的保险机构,应当在县级区域内设立分支机构。制定全国统一的农业保险招投标办法,加强对保险机构的规范管理。各地要结合本地区实际,建立以服务能力为导向的保险机构招投标和动态考评制度。依法设立的农业互助保险等保险组织可按规定开展农业保险业务。
 
  (十五)完善风险防范机制。强化保险机构防范风险的主体责任,坚持审慎经营,提升风险预警、识别、管控能力,加大预防投入,健全风险防范和应急处置机制。督促保险机构严守财务会计规则和金融监管要求,强化偿付能力管理,保证充足的风险吸收能力。加强保险机构公司治理,细化完善内控体系,有效防范和化解各类风险。
 
  五、做好组织实施工作
 
  (十六)强化协同配合。各地区、各有关部门要高度重视加快农业保险高质量发展工作,加强沟通协调,形成工作合力。财政部会同中央农办、农业农村部、银保监会、国家林草局等部门成立农业保险工作小组,统筹规划、协同推进农业保险工作。有关部门要抓紧制定相关配套措施,确保各项政策落实到位。各省级党委和政府要组织制定工作方案,成立由财政部门牵头,农业农村、保险监管和林业草原等部门参与的农业保险工作小组, 确定本地区农业保险财政支持政策和重点,统筹推进农业保险工作。
 
  (十七)加大政策扶持。优化农业保险财政支持政策,探索完善农业保险补贴方式,加强农业保险与相关财政补贴政策的统筹衔接。中央财政农业保险保费补贴重点支持粮食生产功能区和重要农产品生产保护区以及深度贫困地区,并逐步向保障市场风险倾斜。对地方优势特色农产品保险,中央财政实施以奖代补予以支持。农业农村、林业草原等部门在制定行业规划和相关政策时,要注重引导和扶持农业保险发展,促进保险机构开展农业保险产品创新,鼓励和引导农户和农业生产经营组织参保,帮助保险机构有效识别防范农业风险。
 
  (十八)营造良好市场环境。深化农业保险领域“放管服”改革,健全农业保险法规政策体系。研究设立农业保险宣传教育培训计划。发挥保险行业协会等自律组织作用。加大农业保险领域监督检查力度,建立常态化检查机制,充分利用银保监会派出机构资源,加强基层保险监管,严厉查处违法违规行为,对滥用职权、玩忽职守、徇私舞弊、查处不力的,严格追究有关部门和相关人员责任,构成犯罪的,坚决依法追究刑事责任。
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