| Since China’s economic development has entered into a new normality in the process of agricultural modernization, the dependency to financial services in all sectors has gradually increased. Improving the security level and quality of agricultural insurance continuously has become one of the important means to promote agricultural modernization. Meanwhile, the agricultural insurance, a international practice of moderately protect for agriculture, is not only an important part in agriculture security system, but also becomes one of the most important tool of non-price agricultural protection. Because of the profound changes in agriculture environment, achieving agricultural modernization is not only the major task in economic reform, but also the fundamental direction of the development in rural economy.Agricultural insurance is a market-based risk and social management tools. China has become the world’s second largest market of agricultural insurance, which has covered the whole country and covered farmers nearly 200 million times. Agricultural insurance has played an important role in disaster, reducing the impact of disaster, and protecting national grain production security, transforming the way of agricultural development, improving the rural financial system and innovating the way of management in the rural.However, we must clearly recognize that during the process in construction of new industrialization, informalization, urbanization and agricultural modernization, the modernization of agriculture has far more behind, it has become a short board compared with the progress in other fields. The development of rural area is restricted not only by the insufficient financial investment of the country or local government, but also the unbalanced development in different region. There are many problem need to be solved on the issue of rural construction, such as industry-nurturing-agriculture is still in the initial stage, agriculture construction has not solve the problem of "built for whom, build by whom" fundamentally. At the present, the system deficiencies of farmer cooperative organization resulting rural economy relatively fall behind. Under the pressure of agricultural disaster and the flows in the risk dispersion mechanism of agriculture, the safeguard function of agriculture has been not fully exploited, even in some area, insurance market becomes to shrink. To make a further develop of agricultural insurance, it should promote the function of agricultural to modernization, constantly adjust, improve and optimize the agricultural insurance system, then to solve various problems. Agricultural insurance needs step into times of standardization, diversification and refinement, and constantly improve the management system, optimize the operational mechanism, strengthen product innovation, so as to provide a strong basis for the protection of agricultural modernization.At the beginning of the 13th Five-year Plan, the central government has put forward that we must always adhere to solve the "Problems about Agriculture, Rural areas and Peasantry" issues as a top priority of the party’s work, and rely on reforming to have more power to running the country, to speed up agricultural modernization with Chinese characteristics. Therefore, a system analysis to agricultural insurance of the government behavior, benefit gambling, and promoting the reform and innovation of the agricultural insurance system are significant in theoretical and practical value for enhancing food production capacity, advancing the quality and efficiency of agricultural production, increasing farmers’welfare.This paper studied from the perspective of the behavior of the government, stakeholders, change of institutional and economic welfare to analyze the evolution of agriculture insurance mode under the unbalanced development of insurance market, and the depth reasons which exert an influence on the progress of agriculture insurance development. This paper also researched the relationship of the benefit gambling related to the subject of agricultural insurance, and the relationship between financial subsides and the growth of farmers’incomes, therefore put forward sustainable, full-utilized suggestion to perfect the government’s system on agriculture insurance. The author has discussed these problems from following aspects.First, based on the failure status of agricultural insurance quasi-public goods and positive externalities, with applying the government economic theory, game theory and the basic economic system, to analyze agricultural insurance stakeholders’interest orientation, build a game theory of equilibrium model to explore the maximum benefit of social welfare in equilibrium interests of governance mechanisms. The paper also considered from the externality of social welfare and government regulation, rising that it must through the inductivity of transform on system, to develop the mode and system of mutual cooperation and insurance supervision, thus building a healthy and sustainable development of the agricultural insurance market.Second, combined with the development of agricultural insurance practice in Hubei province case, through government subsidies and farmers’ income, premium income of regression, to analysis the impact of government subsidies for agricultural insurance income of farmers; research has been found that government subsidies for farmers have a positive function, and also find the reasonable boundaries of agricultural insurance in development model of government action. By analyzing the plights in Hubei Agricultural Insurance Practice and its cause, it has been reasonably settled a practical base for the behavior of government in agriculture insurance market.Third, to consider from the reality of China’s rural economic development, proposed the developmental pattern of agricultural insurance in mutual cooperation way, implemented the. mechanism of cooperation and supervision system and the balanced interests system. Combining the current situation of economical development in China, and the specificity of (he regional differences in the structure of agricultural production needs, to propose measures for further develop in the level of operability of agriculture insurance.The main innovations of this paper include the following aspects.(1)By using of game theory in broad sense, this paper deduces the equilibrium mode of the benefits gambling between stakeholders in the market, demonstrating the role of government in the balance of the interests of agricultural insurance, proposed to establish the balance of interests mechanisms;(2) Applying the basic theory of welfare economics, to scientific evaluation on the results of government behavior in agricultural insurance. This paper bases on (he case of agricultural insurance practice in Hubei Province which has been analyzed, discussed the reasonable position and role of government behavior in the agricultural insurance market.(3) From the perspective of social welfare and government regulation of externalities, promoting an open establishment must be made through the induced institutional change, the development of mutual cooperation and development model of insurance supervision cooperation mechanism.
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