Enhancing the Marketization and Globalization Response Capacity of Policies: Evolution of China’s Seed Industry Policies Since the 21st Century

Abstract

In the face of marketization and globalization of agricultural product trade, ensuring food security through effective seed industry policies has become a vital objective for many nations, especially for developing countries striving toward this goal. The evolution of seed industry policies to meet the challenges of marketization and globalization has not been extensively examined. This study seeks to answer how China’s seed industry policies have been continuously adjusted since the 21st century to ensure seed security and food security amidst marketization and globalization. Focusing on 96 national-level seed policies issued between 2000 and 2024, we employ methods such as co-word analysis, social network analysis (SNA), cluster analysis, and content analysis to explore policy evolution from five perspectives: policy stakeholders, policy issues, objectives, discourse, and tools. The key findings are: (1) China’s seed policies have largely aligned with the country’s marketization and globalization processes, progressing through three stages: seed industry marketization, response to globalization, and modernization and self-strengthening, forming a comprehensive policy framework. (2) The scale of cooperation networks among policy issuers has expanded, shifting toward a loose-centralized structure, with the Ministry of Agriculture and Rural Affairs as the core and coordinated involvement of other departments such as the Ministry of Industry and Information Technology and the State Administration for Market Regulation. (3) The policy discourse shifted from fostering a market-oriented environment to emphasizing seed industry innovation, reinforcing basic R&D capabilities, addressing innovation challenges, and promoting industrialization. (4) The policy paradigm transitioned from an initial phase of adjusting to market-oriented transformation to a comprehensive phase of modernization and self-reliance, with policy focus moving from incomplete market mechanisms and regulatory shortcomings toward issues like seed source bottlenecks, and objectives from reforming seed management to achieving technological independence. (5) The logic of policy evolution shows notable differences in attention focus related to management concepts, support for technological innovation, and promotion of quality seed breeding—shifting from regulation to service emphasis, from focusing on key projects to diversified innovation, and from importing superior varieties to breakthroughs in new breeds and technologies. These findings offer valuable insights for developing countries facing food security challenges.