| Lessons From EU Sugar Policy Reform Effort借鉴欧盟食糖政策改革努力 |  |  |  |
| Posted by Ross Korves 发布者罗斯Korves |
| Thursday, 28 June 2007星期四， 2007年6月28 |
As the US awaits further WTO actions on the Brazilian cotton case, the EU is already struggling with its sugar policy reforms resulting from a 2004 WTO ruling limiting EU sugar exports to 1.37 million metric tons (mmt) per year, down from 4-5 mmt per year before the WTO ruling.随着美国有待进一步世贸组织的行动对巴西棉花案中，欧盟已经是苦苦挣扎的糖业政策改革造成的2004年世贸组织裁决欧盟限制食糖出口1.37万吨（万吨） ，每年从4-5万吨一年前，世贸组织的裁决。 The EU reform program has a complex set of moving parts that hinges on incentives to sugar processors to reduce production.欧盟的改革计划已经一套复杂的移动部分取决于奖励糖处理器，以减少生产。 This is the first major WTO driven agricultural policy reform in developed countries and is not likely to be the last one.这是第一次重大推动世贸组织农业政策改革在发达国家和可能不会是最后一次。
The EU effort has the right economic policy goals of reducing overall production and shifting remaining production to the most economically efficient areas.欧盟的努力，正确的经济政策目标，降低整体生产和转移剩余生产最经济有效的地区。 According to analysis in the June 4, 2007 Sugar and Sweeteners Outlook of the Economic Research Service of USDA, the temperate climate of Northern Europe is the optimal region for EU sugar beet production.据分析，在2007六月4 糖和甜味剂观经济研究局的美国农业部的温带气候的北欧是最佳地区为欧盟甜菜生产。 Only Ireland, Latvia and Slovenia renounced all their sugar quotas, and Italy renounced the most quotas at almost 800,000 metric tons (mt).只有爱尔兰，拉脱维亚和斯洛文尼亚宣布放弃所有的糖配额，意大利放弃了大部分配额近80.0万吨（山） 。 France, Germany, the UK, Poland, the Netherlands, Belgium and Austria added quota under a program allowing companies to add quota for a one time payment of $985/ mt (current exchange rate of $1.35 per Euro).法国，德国，英国，波兰，荷兰，比利时和奥地利增加配额的程序下允许企业增加配额一次性支付985美元/吨（目前汇率为1.35美元每欧元） 。
The $985/ mt for new quota was the same as the one-time payment that current quota holders received to renounce quota in the first two years of the program, marketing years 06/07 and 07/08.该九百八十五美元/吨的新配额是一样的一次性付款，目前的配额持有人收到放弃配额的头两年中的程序，市场营销年6月7日和7月8日。 The payment declines to $844/ mt for quota renounced in 08/09 and $702/ mt for 09/10.支付拒绝八百四十四美元/吨的配额放弃在08/09和七百○二美元/吨的九月10号。 Over the four years, the reference price for white sugar is being cut by 36 percent.过去的四年里，参考价格白糖正在减少百分之三十六。 According to the April 10, 2007 US Agricultural Attaché annual EU sugar report, member states renounced 1.5 mmt of quota for 06/07 and less than 0.7 mmt for 07/08.根据2007四月10美国农业随员年度欧盟食糖的报告，会员国放弃了1.5万吨的配额为06/07和小于0.7万吨为07/08 。 The two year total of 2.2 mmt is short of the 3.0 mmt goal for the first two years to achieve a total of 6.0 mmt renouncement of quota over four years.两年共2.2万吨，是短暂的3.0亿吨目标的头两年实现共6.0万吨，放弃配额超过四年。 The higher payments for renouncements in the first two year were designed to achieve rapid progress early in the program, but that has not happened.较高的支付renouncements在第一为期两年的目的是为了迅速取得进展在项目早期，但并没有发生。 The ERS Outlook notes that an additional payment of $321/ mt renounced in 2008/09 is being considered.地球资源卫星展望指出，额外支付321美元/吨在2008/09年放弃正在考虑。
The slow movement on reducing quotas resulted in a temporary, mandatory quota cut of 1.8 mmt for the 06/07 marketing year and 2.0 mmt cut for 07/08.缓慢运动减少配额造成了暂时性的，强制性的配额削减180万吨的06/07市场年度和2.0万吨，削减为07/08 。 These cuts applied to all production regions, with regions that have made the largest renouncement of quota receiving the lowest percentage reductions.这些削减适用于所有的生产区域，地区，取得了最大的放弃配额接受的最低百分比的削减。 This is directly counter to the EU goal of moving the sugar beet industry to the most economically efficient areas.这是直接对欧盟的目标推动甜菜产业经济最有效的领域。 The EU is concerned that without mandatory, temporary quota cuts carryover stocks would build to burdensome levels and requires further measures to move surplus stocks.欧盟关注的是强制性的，暂时的配额削减结转库存将建立以沉重的负担水平，并要求进一步采取措施，将过剩的库存。
The EU’s efforts are complicated by its Everything But Arms program with the world’s 50 poorest countries to phase out tariffs on raw sugar by 2009.欧盟的努力变得复杂了除武器之外的一切程序与世界上50个最贫穷国家逐步取消关税，原糖，到2009年。 The EU is also working with 77 African, Caribbean and Pacific (ACP) countries that have had preferential tariff access to the EU to reduce tariffs to zero by 2015.欧盟也正在与77非洲，加勒比和太平洋（非加太）国家有优惠关税进入欧盟降低关税为零，到2015年。 The ERS Outlook notes that EU analysts believe some of those countries will increase exports to the EU as tariffs decline.地球资源卫星展望指出，欧盟分析家认为，一些国家将增加对欧盟出口的关税下降。 The ACP countries are limited to 1.3 mmt of exports through 2009 and to 3.5 mmt after 2015.非加太国家是有限的1.3万吨的出口到2009年和3.5万吨， 2015年后。
The only bright spot in sugar policy reform is the growth in biofuels output.唯一的亮点糖业政策改革是发展生物燃料产量。 The ERS analysts explain that rapeseed is the most likely alternative crop to sugar.地球资源卫星分析师解释说，油菜是最有可能的替代作物，以糖。 Rapeseed oil is the preferred feedstock for biodiesel production, and EU requirements for biodiesel use will continue to increase.菜籽油是首选原料生产生物柴油，并要求欧盟使用生物柴油将继续增加。 The US Agricultural Attaché projects that 1.0 mmt of sugar will be used for ethanol in 07/08 compared to 24,000 mt two years earlier.美国农业随员项目， 1.0万吨食糖将被用于乙醇07/08相比二万四山早两年。 The EU Commission projects that 2.2 mmt of sugar beets could be used in ethanol by 2013.欧盟委员会项目， 2.2万吨的甜菜可用于乙醇的2013年。 Sugar beets have a higher yield of ethanol per acre than feedstocks like wheat.甜菜有较高的乙醇产量为每英亩以上的原料小麦一样。 Ethanol is about 20 percent of current biofuels production.乙醇约百分之二十当前的生物燃料生产。
The EU experience is a wake-up call for all developed countries facing the possibility of reforms due to WTO actions and to developing countries who expect quick changes in long-standing domestic farm policies in developed countries.欧盟的经验是敲响了警钟为所有发达国家所面临的可能性，由于改革世贸组织的行动和向发展中国家谁指望迅速改变长期存在的国内农业政策在发达国家。 A few insights can be gained from the experience.有几个见解可以得到的经验。
First, don’t try to do too much.首先，不要做太多。 Reforming domestic policies is hard enough.国内政策改革很难不够的。 Making changes in the ACP preference programs and implementing the Everything But Arms program may simply be too much too fast.决策变化的非加太国家优惠计划和实施除武器之外的一切计划可能只是太多太快了。 The distortions caused by past policies have developed over decades and cannot be changed in just a few years.该所造成的扭曲过去的政策已经开发了几十年，不能改变在短短几年内。
Second, estimate a big number for upfront costs and then add a big factor to it.其次，估计是一个巨大的数字为预付费用，然后添加一个重要因素它。 Achieving rapid changes in production practices requires big incentives.实现快速变化的生产实践，需要大的奖励。 The more generous the upfront payments are the easier it may be to maintain political support when additional policy changes are needed.更慷慨的前期付款是比较容易可以保持政治上的支持时，额外的政策改变是必要的。
Third, all quotas could have been reduced an automatic, uncompensated 10 percent even in the most efficient growing areas.第三，所有配额本来可以减少自动，无偿百分之十甚至在最有效的种植区。 While that would have hurt the goal of shifting sugar beet production to the best areas, it could have reduced the up front costs and recognized that change is not pain free.虽然这将伤害的目标转向甜菜生产的最佳地区，它可以减少了前期成本，并认识到变化是不疼痛。
Fourth, alternative land use options need to be readily available.第四，土地使用替代选择需要现成的。 While biodiesel production has been active for years in the EU, ethanol production is a much more recent addition.虽然生物柴油生产一直积极多年来在欧盟，生产乙醇是一个更近此外。 Readily available alternative uses for land may reduce the up front costs of policy.现成的替代用途的土地可减少了费用，面前的政策。
Finally, gradual policy reforms may not be possible.最后，渐进的政策改革可能是不可能的。 Too many special interest groups may make a balanced, market driven program unachievable.太多的特殊利益集团可能使一个平衡的，市场驱动程序无法实现。 The only choice then is to adopt a program that entirely frees the market over two or three years without compensation programs.唯一的选择就是通过一项计划，完全释放市场的两年或三年没有得到补偿程序。
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