2001年-世界发展银行全球_Sugar_Policy_and_Reform_58页_3mb

Sugar Policy and Reform Summary

Core Content

This paper, Sugar Policy and Reform, by Donald F. Larson and Brent Borrell, examines the role of government interventions in sugar markets across different countries and discusses the implications of these policies on market efficiency, domestic welfare, and international trade. The authors highlight the long-standing nature of sugar policies and their lasting impact due to path dependence, where past interventions influence current and future market structures.

Main Viewpoints

• Government Interventions and Market Displacement: Long-term government interventions in sugar markets often displace the market mechanisms and institutions necessary for efficient outcomes. These interventions are driven by historical trade arrangements, fears of shortages, and conflicting interests between growers and mills.

• Path Dependency: Once established, policies create a dependency on them among households and firms, making it costly to reverse. This results in a legacy of path-dependent policies that shape the feasibility and direction of future reforms.

• Global Influence on Domestic Policies: The policies of large sugar-producing and -consuming countries significantly influence smaller economies. This is due to the existence of special access arrangements and the prevalence of preferential trade policies that shape domestic sugar industries.

• Impact of Trade Agreements: Trade agreements such as the Uruguay Round, NAFTA, and the Lomé Convention have played a role in shaping sugar policies. These agreements have led to the preservation or reduction of trade barriers, affecting both international and domestic markets.

• Market Volatility and Policy Effects: Policies such as export subsidies and import quotas have been shown to lower international sugar prices and increase price volatility. The effects of these policies can be long-lasting, especially when they are embedded in capital and factor markets.

• Special Access Arrangements: These arrangements, such as those under the Lomé Convention, provide certain countries with preferential access to protected markets, which can have significant economic impacts, both positive and negative.

• Reforms and Their Outcomes: Many countries have initiated market reforms, including the privatization of sugar mills and estates. However, the effectiveness of these reforms varies, and the paper suggests that the success of reforms depends on the existing policy and market structures.

Key Information

• Sugar Production and Trade: Sugar is produced in 133 countries and accounts for 26% of annual production in international trade. A few large countries dominate both production and consumption.

• Producer and Consumer Subsidies: The paper introduces the concept of Producer Subsidy Equivalent (PSE) and Consumer Subsidy Equivalent (CSE) to quantify the effects of sugar policies. For example, in OECD countries, producer subsidies averaged 49% of the world price from 1993 to 1995, while consumer subsidies were a negative 46%.

• Examples of Policy Impact:

  • Australia: Dismantled trade barriers after 1995.
  • Brazil: Estimated annual costs of policy interventions reached $2.5 billion before reforms.
  • India: Estimated annual costs of continuing existing policies could reach $2 billion by 2004.
  • Fiji and Mauritius: Relied heavily on export earnings from protected markets, contributing significantly to national incomes and government revenues.

• Regional Trade Agreements (RTAs):

  • NAFTA: Led to a phased reduction in tariffs between the U.S. and Mexico, affecting the sugar industry in both countries.
  • Lomé Convention: Gave preferential access to the EU market for ACP countries, including Fiji and Mauritius.
  • ASEAN, MERCOSUR, and other RTAs: Often propagate protectionist policies, influencing smaller economies.

• Cuban Sugar Industry: A case study showing how sugar policies and trade relationships can lead to long-term economic and social consequences. The U.S. embargo and the Cuban Revolution significantly altered the industry's structure and economic outcomes.

• Philippine Quedan System: Demonstrates how special access arrangements can lead to domestic controls and affect the distribution of benefits among producers and consumers.

Conclusion

The paper emphasizes the importance of understanding the historical and political context of sugar policies when designing reforms. It suggests that successful reforms require not only the elimination of failed policies but also the creation of sustainable market mechanisms. The role of international trade agreements and the impact of policy changes on factor markets and domestic welfare are central to the discussion.

Policy Recommendations

• Reform Pathways: Reforms should be based on a thorough understanding of the existing policy and market structures.
• Market Mechanisms: Encourage the development of efficient market mechanisms and institutions.
• International Cooperation: Engage in international cooperation to align trade policies and reduce distortions.
• Factor Market Reforms: Address the allocation of resources in factor markets to support sustainable and equitable development.

References

The paper references several studies and reports, including those by Valdés, Borrell and Duncan, and the World Bank, to support its analysis of sugar policies and their impacts. It also includes data from the Food and Agricultural Organization (FAO) and the Organization for Economic Cooperation and Development (OECD).