2001年-世界发展银行全球_Turkmenistan___An_Assessment_of____________Leasehold-based_Farm_Restructuring_92页_6mb

Turkmenistan: An Assessment of Leasehold-Based Farm Restructuring

Core Content

This document provides an in-depth analysis of Turkmenistan's land reform and farm restructuring policies, focusing on the leasehold-based system that has been implemented as a unique approach compared to other former Soviet republics. The study is based on a 1998 farm survey conducted in three provinces: Akhal, Lebap, and Mary, involving 42 managers and 840 leaseholders. It aims to assess the impact of the reform on large-scale farms and rural households, and to support policy discussions with the Turkmenistan government.

Main Points

• Land Reform Model: Turkmenistan has adopted a leasehold-based system where former collective land is divided into plots leased to families, while retaining the collective structure and state ownership of all agricultural land.
• Lease Duration and Privatization: Leaseholders may eventually privatize their land if they maintain a satisfactory performance record for at least two years.
• Sectoral Context:
  • Agriculture remains the main source of employment and livelihood for the majority of the rural population.
  • The country's harsh desert climate necessitates continuous investment in soil quality, irrigation, and infrastructure.
  • The reform aims to encourage private investment by rural households to sustain agricultural productivity.
• Survey Overview:
  • Conducted in 1998, the survey provided empirical data on the effects of the reform on agricultural production and rural incomes.
  • It helped fill gaps in official statistics and provided a basis for policy dialogue and donor coordination.
• Legal and Institutional Background:
  • The legal framework for land reform is still evolving.
  • The concept of private ownership is not fully established, and the state continues to play a central role in managing land and agricultural production.

Key Findings

Shift to Individual Farming

• Over 75% of arable land has been leased to individual households or small groups.
• Most leaseholders believe they have a rightful claim to the land and expect to retain it, either as private owners or through lease extension.
• The average landholding size for leaseholders is 6 hectares.

Administrative Constraints

• Individual production is heavily restricted by state orders and central planning.
• Lease contracts mandate the production of specific crops (mostly cotton or wheat) and set low delivery prices to the state, significantly below international market levels.
• These state orders limit the autonomy of leaseholders and prevent them from making independent managerial decisions.

Financial Limitations

• Leaseholders are restricted to using only officially designated banks (Daikhan Bank) for financial transactions.
• Financial autonomy is limited, and access to credit is through special government programs.
• Despite increased access to bank accounts, leaseholders face financial constraints due to the state's control over pricing and input supply.

Economic Implications

• The average family income is reported at around $1,300 per year, or $215 per person (at the official exchange rate).
• The income needed to maintain a "normal" standard of living is estimated at $3,500 per year, or $600 per person, which is 2.7 times higher than the actual income.
• This indicates significant price distortions due to government intervention, which have kept family incomes low.
• Subsidies for inputs and water do not offset the cost of implicit taxes imposed by the state.

State Orders and Tax Burden

• State orders have extracted between 40% and 60% of the international value of cotton and wheat over the past three years.
• The reallocation of these profits has affected the budget, consumers, and other unspecified activities.
• Budget constraints prevent adequate investment in infrastructure maintenance and development.

Conclusion

The leasehold-based land reform in Turkmenistan has shifted agricultural production towards individual households and small groups, but it remains constrained by state control and administrative regulations. While the reform has been welcomed by both managers and leaseholders, the persistence of state orders and price distortions continues to limit the economic potential of rural households. The study highlights the need for further reforms, including the abolition of state orders, privatization of land, and removal of constraints on individual choice, to achieve more sustainable and efficient agricultural development.

Key Information

• Survey Scope: 42 managers and 840 leaseholders in three provinces (Akhal, Lebap, Mary).
• Survey Conductors: Ministry of Agriculture and Water of Turkmenistan, Academy of Agricultural Sciences, and World Bank.
• Exchange Rate: Official rate at the time of the survey was 5,200 manat per dollar, with a depreciation of about 25% from 1997.
• Main Crops: Cotton (70%) and wheat (20%) dominate the lease contracts, with other products like vegetables, fruits, milk, and meat produced by a smaller proportion of leaseholders.
• Income Levels: Rural families earn significantly less than what is considered a "normal" standard of living in international terms, indicating a need for structural economic reforms.
• Recommendations: The report suggests that future reforms should focus on enhancing financial autonomy, removing state orders, and promoting free market access to improve the economic viability of family farms.

References

The report draws on data from the World Bank's agricultural sector missions from 1995 to 1998, as well as background reports and official statistics. It also references a compilation of legal documents on land reform in Turkmenistan and includes insights from previous studies on land reform in other post-Soviet countries.