Towards Collaborative Governance for Agricultural Security and Development: Policy Instrument Evolution and Governance Logic of China's Agricultural Insurance under a Public Value Orientation

Abstract

This study, grounded in public value theory, proposes a conceptual framework integrating value appeals, instrument design, and governance logic to examine the evolution of agricultural insurance policy in China. The findings reveal a phased progression: from cost-based to income-based, then index-based, followed by green agricultural insurance, culminating in a unified ‘agricultural insurance +’ concept. This trajectory reflects ongoing governmental innovation to address expanding public values, shifting focus from safeguarding basic agricultural output to stabilizing farmers’ incomes, promoting green transformation, and supporting rural revitalization. As public values expand from producer relief to other areas, China's role in agricultural policy has transitioned from 'relief provider' to 'stabilizer,' 'navigator' and 'collaborative partner' and the governance has shifted from survival-oriented to developmentally and precision-driven. Three critical structural challenges are identified: (i) trade-offs between equity and efficiency, (ii) data infrastructure, and (iii) fiscal sustainability. To address these issues, future agricultural insurance policies are to be anchored based on the principles of public value by clearly defining value objectives in terms of income security and ecological transformation, building a multi-tiered policy menu and improving data management capabilities. Such reforms would help bring about a paradigm shift from risk compensation towards empowerment for sustainable development.