據國(guo)務院法(fa)制辦公(gong)室(shi)網站消息(xi)，保監會起草的《農業保險條例(li)（征求意見(jian)稿）》及其說明4日(ri)全文公(gong)布，征求社會各界意見(jian)：

關于《農業保險條(tiao)例（征求(qiu)意見稿）》的說明

一、立法的必要性

農業(ye)(ye)保(bao)險作為一種(zhong)風險管理工具(ju)和國(guo)家農業(ye)(ye)支持(chi)保(bao)護體(ti)系的組成(cheng)部分，對(dui)提高農業(ye)(ye)抗風險能力(li)、保(bao)障糧食(shi)生產(chan)安(an)全(quan)具(ju)有(you)重要(yao)意義。十六屆(jie)三中全(quan)會、2004年至2010年的中央一號文件、《國(guo)務(wu)院關于(yu)保(bao)險業(ye)(ye)改革發展的若(ruo)干意見》等都對(dui)發展農業(ye)(ye)保(bao)險提出了明確要(yao)求。

近(jin)年來(lai)，我國農業(ye)保險(xian)發展迅速，目(mu)前已覆蓋全國所有省、自治區和直轄市。但農業(ye)保險(xian)法律制(zhi)度尚不完善，還存在一些比較突出的(de)問題：農業(ye)保險(xian)缺乏穩定持續的(de)政策支持；農業(ye)保險(xian)當事(shi)人的(de)權(quan)利義務關(guan)系缺乏規范(fan)；農村基層機(ji)構參與農業(ye)保險(xian)存在法律障礙；政府部門職(zhi)責分(fen)工(gong)不明等。為(wei)了從制(zhi)度上(shang)解決(jue)上(shang)述問題，推(tui)動農業(ye)保險(xian)健康發展，有必要制(zhi)定農業(ye)保險(xian)條例。

二、主要內容

（一）關(guan)于農業(ye)保(bao)險(xian)的定位。

隨(sui)著農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)試(shi)點(dian)(dian)工(gong)作(zuo)(zuo)的(de)(de)(de)不斷(duan)推進(jin)，農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)逐步(bu)發(fa)展成為“政(zheng)府(fu)引導、市(shi)場運(yun)作(zuo)(zuo)、自(zi)主自(zi)愿、協(xie)同(tong)推進(jin)”的(de)(de)(de)保險(xian)(xian)(xian)活動，既充分(fen)發(fa)揮(hui)市(shi)場配置資源的(de)(de)(de)作(zuo)(zuo)用，又發(fa)揮(hui)了(le)(le)政(zheng)府(fu)和(he)商(shang)(shang)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)公司(si)兩方面的(de)(de)(de)優勢。目(mu)前(qian)的(de)(de)(de)農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)不具有國(guo)家兜底和(he)強制性的(de)(de)(de)特點(dian)(dian)，因此，將其定位(wei)為有國(guo)家補貼的(de)(de)(de)商(shang)(shang)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)。征求(qiu)意見稿(gao)規(gui)定，農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)實行政(zheng)府(fu)引導、政(zheng)策支(zhi)(zhi)持(chi)、市(shi)場運(yun)作(zuo)(zuo)、自(zi)主自(zi)愿和(he)協(xie)同(tong)推進(jin)的(de)(de)(de)原(yuan)則(ze)。征求(qiu)意見稿(gao)規(gui)定國(guo)家對農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)給予財(cai)稅政(zheng)策支(zhi)(zhi)持(chi)，明(ming)確了(le)(le)各級政(zheng)府(fu)及相關部門在農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)工(gong)作(zuo)(zuo)中的(de)(de)(de)職(zhi)責分(fen)工(gong)；明(ming)確了(le)(le)保險(xian)(xian)(xian)公司(si)經營(ying)農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)的(de)(de)(de)原(yuan)則(ze)；根據(ju)農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)的(de)(de)(de)潛在風(feng)險(xian)(xian)(xian)、業(ye)(ye)(ye)(ye)務操作(zuo)(zuo)及經營(ying)結果等方面的(de)(de)(de)特殊性，規(gui)定了(le)(le)農(nong)業(ye)(ye)(ye)(ye)保險(xian)(xian)(xian)的(de)(de)(de)經營(ying)規(gui)則(ze)。

此外，考(kao)慮到除農(nong)業(ye)保(bao)險(xian)(xian)以外，國家給予政策支持、為農(nong)民(min)提供保(bao)險(xian)(xian)保(bao)障的(de)(de)保(bao)險(xian)(xian)（包括農(nong)房、農(nong)機具等財產保(bao)險(xian)(xian)，涉及農(nong)民(min)的(de)(de)生命和(he)身體等的(de)(de)短期意外傷害保(bao)險(xian)(xian)和(he)短期健康保(bao)險(xian)(xian)），也需要明確適(shi)(shi)用的(de)(de)規則，征求意見稿規定，保(bao)險(xian)(xian)公(gong)司經營涉農(nong)保(bao)險(xian)(xian)業(ye)務，參(can)照適(shi)(shi)用本條例。

（二）關于各級人民政府(fu)及相關部門職責。

農(nong)(nong)業(ye)(ye)保(bao)險(xian)經營運作(zuo)涉及多個部(bu)(bu)(bu)門(men)(men)，需要各相(xiang)關(guan)(guan)部(bu)(bu)(bu)門(men)(men)協(xie)同推(tui)進。目前，農(nong)(nong)業(ye)(ye)保(bao)險(xian)試(shi)點工作(zuo)在部(bu)(bu)(bu)門(men)(men)分工配(pei)合、協(xie)同推(tui)進方面(mian)積累了許(xu)多有(you)益經驗(yan)，在條例中明確中央及地方相(xiang)關(guan)(guan)部(bu)(bu)(bu)門(men)(men)職(zhi)責，有(you)利于農(nong)(nong)業(ye)(ye)保(bao)險(xian)各項制(zhi)度(du)的有(you)效運行。征求意見稿規定(ding)，國務院建立(li)由發展改革、民政(zheng)(zheng)(zheng)、財政(zheng)(zheng)(zheng)、稅務、水(shui)利、農(nong)(nong)業(ye)(ye)、林業(ye)(ye)、氣象和保(bao)險(xian)監管等部(bu)(bu)(bu)門(men)(men)參加的農(nong)(nong)業(ye)(ye)保(bao)險(xian)工作(zuo)協(xie)調機制(zhi)，指導(dao)和協(xie)調全國農(nong)(nong)業(ye)(ye)保(bao)險(xian)工作(zuo)。各相(xiang)關(guan)(guan)部(bu)(bu)(bu)門(men)(men)根據職(zhi)責分工負責農(nong)(nong)業(ye)(ye)保(bao)險(xian)的相(xiang)關(guan)(guan)工作(zuo)。征求意見稿還規定(ding)，縣(xian)級以上(shang)地方各級人民政(zheng)(zheng)(zheng)府統一領(ling)導(dao)、組(zu)織、協(xie)調本行政(zheng)(zheng)(zheng)區域農(nong)(nong)業(ye)(ye)保(bao)險(xian)事業(ye)(ye)的發展管理工作(zuo)，建立(li)健全推(tui)進農(nong)(nong)業(ye)(ye)保(bao)險(xian)事業(ye)(ye)發展的工作(zuo)機制(zhi)。

（三）關于農業保險合(he)同。

農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)具(ju)有(you)不同(tong)(tong)(tong)于(yu)一般財產(chan)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)的(de)(de)(de)特殊(shu)性(xing)，《保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)法》關(guan)于(yu)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)當事(shi)(shi)(shi)人(ren)的(de)(de)(de)權利(li)義務以(yi)(yi)及投(tou)保(bao)(bao)(bao)(bao)(bao)、理賠(pei)等(deng)方面的(de)(de)(de)規定(ding)，與(yu)(yu)農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)的(de)(de)(de)客觀(guan)情況不相適應。為解(jie)決(jue)上述(shu)問(wen)題，確保(bao)(bao)(bao)(bao)(bao)與(yu)(yu)《保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)法》做好(hao)銜(xian)接，征求(qiu)意見稿針對農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)的(de)(de)(de)特殊(shu)性(xing)，對農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)作了以(yi)(yi)下規定(ding)：一是農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)訂立(li)時，投(tou)保(bao)(bao)(bao)(bao)(bao)人(ren)與(yu)(yu)被(bei)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)人(ren)應為同(tong)(tong)(tong)一人(ren)；二是農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)的(de)(de)(de)被(bei)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)人(ren)在合(he)(he)同(tong)(tong)(tong)訂立(li)和保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)事(shi)(shi)(shi)故(gu)發生時，應當對保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)標(biao)的(de)(de)(de)具(ju)有(you)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)利(li)益；三是對農(nong)(nong)業(ye)生產(chan)組織(zhi)、村委(wei)會等(deng)單位(wei)組織(zhi)農(nong)(nong)戶集體投(tou)保(bao)(bao)(bao)(bao)(bao)的(de)(de)(de)程(cheng)序(xu)和理賠(pei)環節進行了規范，強化(hua)了公開相關(guan)信息的(de)(de)(de)要求(qiu)；四是為了保(bao)(bao)(bao)(bao)(bao)持(chi)農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)的(de)(de)(de)穩定(ding)性(xing)，規定(ding)農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)當事(shi)(shi)(shi)人(ren)在合(he)(he)同(tong)(tong)(tong)生效(xiao)期間不得(de)因保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)標(biao)的(de)(de)(de)危險(xian)(xian)(xian)程(cheng)度的(de)(de)(de)變化(hua)而增加(jia)、減少保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)費(fei)，也不得(de)解(jie)除保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)合(he)(he)同(tong)(tong)(tong)；五(wu)是明(ming)確農(nong)(nong)業(ye)保(bao)(bao)(bao)(bao)(bao)險(xian)(xian)(xian)可以(yi)(yi)采用抽樣(yang)方式定(ding)損等(deng)。

由于農(nong)業保險(xian)發展尚處于初級階段，對農(nong)業保險(xian)合同所具(ju)有(you)的其他特殊(shu)性，尚缺乏統一、清晰的認識，征求意見稿規(gui)(gui)定，有(you)關農(nong)業保險(xian)合同的規(gui)(gui)范，條例(li)未作規(gui)(gui)定的，參照(zhao)適(shi)用(yong)《保險(xian)法》有(you)關保險(xian)合同的規(gui)(gui)定。

（四）關于農(nong)業保險的(de)業務規則。

農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)具有一定(ding)的(de)(de)(de)(de)政(zheng)策性(xing)，涉及(ji)廣大農(nong)民(min)的(de)(de)(de)(de)切身利益，客觀上(shang)需(xu)(xu)要更為規范(fan)、有序(xu)、健康的(de)(de)(de)(de)市場(chang)環境。為此(ci)，征(zheng)求意見(jian)稿根(gen)據(ju)農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)的(de)(de)(de)(de)業(ye)(ye)務(wu)(wu)特(te)點和監(jian)管(guan)(guan)經驗，明確了保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)公(gong)司(si)經營農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)應當遵循的(de)(de)(de)(de)特(te)殊(shu)規則(ze)(ze)，主要包括：一是(shi)確立(li)了經營農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)的(de)(de)(de)(de)市場(chang)準入(ru)機制(zhi)，明確了農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)條款和費率的(de)(de)(de)(de)管(guan)(guan)理機制(zhi)；二(er)是(shi)明確了保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)公(gong)司(si)經營農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)自(zi)主經營、自(zi)負(fu)盈虧的(de)(de)(de)(de)基本(ben)原則(ze)(ze)，規定(ding)農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)業(ye)(ye)務(wu)(wu)應當與其他(ta)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)業(ye)(ye)務(wu)(wu)分(fen)開管(guan)(guan)理，單獨核(he)算損益；三是(shi)農(nong)業(ye)(ye)保(bao)(bao)險(xian)(xian)(xian)(xian)(xian)的(de)(de)(de)(de)準備金(jin)評估、償付能力(li)報(bao)告(gao)編制(zhi)、相(xiang)關(guan)的(de)(de)(de)(de)財(cai)務(wu)(wu)管(guan)(guan)理和會計核(he)算，需(xu)(xu)要采取(qu)特(te)殊(shu)原則(ze)(ze)和方(fang)法的(de)(de)(de)(de)，應當由相(xiang)關(guan)部(bu)門分(fen)別(bie)制(zhi)定(ding)具體規則(ze)(ze)。此(ci)外，征(zheng)求意見(jian)稿還(huan)針對實踐中(zhong)存在的(de)(de)(de)(de)以弄虛作(zuo)假方(fang)式騙取(qu)財(cai)政(zheng)補貼(tie)的(de)(de)(de)(de)問(wen)題，規定(ding)了禁止(zhi)性(xing)行為及(ji)相(xiang)應的(de)(de)(de)(de)法律責任。

（五）關于基(ji)層(ceng)涉農(nong)機構協助辦理農(nong)業保(bao)險。

農(nong)(nong)業保(bao)(bao)險(xian)(xian)(xian)的(de)實踐(jian)證明，僅依靠保(bao)(bao)險(xian)(xian)(xian)公司現有的(de)機(ji)構(gou)體系，難(nan)以(yi)為地域分散、數量眾多(duo)的(de)投保(bao)(bao)人提供有效(xiao)的(de)承(cheng)保(bao)(bao)、定損和(he)理賠服務(wu)。目前，保(bao)(bao)險(xian)(xian)(xian)公司的(de)許多(duo)農(nong)(nong)業保(bao)(bao)險(xian)(xian)(xian)業務(wu)都需(xu)要(yao)在農(nong)(nong)村(cun)基層(ceng)機(ji)構(gou)的(de)協助(zhu)下完成。因此，征求(qiu)意見稿規定，保(bao)(bao)險(xian)(xian)(xian)公司可以(yi)委托農(nong)(nong)經、農(nong)(nong)技、農(nong)(nong)機(ji)等鄉鎮(zhen)級以(yi)及(ji)鄉鎮(zhen)級以(yi)下基層(ceng)涉(she)農(nong)(nong)機(ji)構(gou)協助(zhu)辦理農(nong)(nong)業保(bao)(bao)險(xian)(xian)(xian)業務(wu)。

同(tong)時(shi)，為(wei)規范基層(ceng)涉農(nong)(nong)(nong)機(ji)構(gou)協(xie)助辦(ban)理(li)農(nong)(nong)(nong)業(ye)(ye)保(bao)險(xian)(xian)業(ye)(ye)務(wu)的(de)行為(wei)，強(qiang)化保(bao)險(xian)(xian)公(gong)司(si)的(de)管理(li)責任(ren)，征(zheng)求意(yi)見(jian)稿規定(ding)，保(bao)險(xian)(xian)公(gong)司(si)應當與協(xie)助辦(ban)理(li)農(nong)(nong)(nong)業(ye)(ye)保(bao)險(xian)(xian)業(ye)(ye)務(wu)的(de)基層(ceng)涉農(nong)(nong)(nong)機(ji)構(gou)簽訂書面合(he)同(tong)，明確雙方權利義務(wu)，并在合(he)同(tong)中約(yue)定(ding)相(xiang)關費用(yong)的(de)支付；保(bao)險(xian)(xian)公(gong)司(si)應當加強(qiang)對(dui)協(xie)助辦(ban)理(li)農(nong)(nong)(nong)業(ye)(ye)保(bao)險(xian)(xian)業(ye)(ye)務(wu)的(de)基層(ceng)涉農(nong)(nong)(nong)機(ji)構(gou)的(de)業(ye)(ye)務(wu)指導(dao)，制定(ding)合(he)法、科學、有效的(de)業(ye)(ye)務(wu)管理(li)制度。

（六）關于互(hu)助合(he)作(zuo)保險組織。

為防范互助(zhu)保(bao)(bao)(bao)險(xian)(xian)組織運(yun)營(ying)(ying)中(zhong)存在的(de)監管(guan)風險(xian)(xian)，征求意見稿規(gui)定(ding)，國務院保(bao)(bao)(bao)險(xian)(xian)監督(du)管(guan)理(li)機構批準(zhun)設立的(de)其(qi)(qi)他(ta)保(bao)(bao)(bao)險(xian)(xian)組織經(jing)營(ying)(ying)農業(ye)保(bao)(bao)(bao)險(xian)(xian)業(ye)務的(de)，適用本(ben)條例(li)；本(ben)條例(li)施行(xing)前，已經(jing)營(ying)(ying)農業(ye)保(bao)(bao)(bao)險(xian)(xian)業(ye)務的(de)保(bao)(bao)(bao)險(xian)(xian)公司(si)以外的(de)其(qi)(qi)他(ta)保(bao)(bao)(bao)險(xian)(xian)組織，自本(ben)條例(li)施行(xing)之日(ri)起2年內(nei)，符合國務院保(bao)(bao)(bao)險(xian)(xian)監督(du)管(guan)理(li)機構規(gui)定(ding)條件的(de)，可繼(ji)續經(jing)營(ying)(ying)農業(ye)保(bao)(bao)(bao)險(xian)(xian)業(ye)務。