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50 ans après l’indépendance… : Le secteur agricole préserve son rôle stratégique - Algerie360
Durant un demi-siècle d’indépendance, l’Algérie a vu plusieurs politiques agricoles, qui n’ont pas toutes été couronnées de succès, mais qui sont venues confirmer l’importance du secteur agricole dans l’économie nationale et les défis majeurs restant à relever. Après le recouvrement de son indépendance, l’Algérie a entamé un long processus de réformes agricoles en tenant compte d’un environnement politique, économique et social en constante évolution.
Après le départ massif des colons en 1962, le jeune Etat algérien a récupéré les exploitations les plus riches du pays pour les céder aux ex-ouvriers agricoles, appelés «Khamassines» puisqu’ils ne gagnent que le un cinquième de la récolte, qui deviennent autogestionnaires. Le système d’autogestion était perçu comme étant un devoir historique d’équité et de justice sociale à l’égard des ex-employés des colons et de leurs familles. L’orientation socialiste imprimée à l’économie agricole durant cette période postindépendance s’est confirmée par la révolution agraire (1971-1979) à travers la nationalisation des grandes propriétés privées et des terres non exploitées en imposant aux exploitants un mode de gestion collectif. La nationalisation des unités industrielles a permis aussi à l’Etat de lancer un vaste programme d’investissements agro- industriels basés sur l’importation des matières premières en encourageant l’accès aux produits de base par le soutien de leurs prix à la consommation. Cette période a été marquée aussi par la création de nouvelles institutions de recherche, d’information et de vulgarisation agricole ainsi que le développement d’infrastructures et d’équipement de base en milieu rural qui constituent aujourd’hui l’un des atouts du secteur. Néanmoins, le fameux slogan qui a accompagné cette politique : «la terre à celui qui la travaille» n’a pas eu l’effet révolutionnaire attendu à savoir, la transformation du monde agricole et rural et son intégration au processus de développement économique.
Des réformes sur fond de crises
Le monopole imposé par l’Etat sur toute la chaîne agroalimentaire a emboîté le pas à la modernisation de l’agriculture et l’enthousiasme de la révolution agraire s’est progressivement estompé au fur et à mesure de la baisse de la production agricole, de la hausse de la facture alimentaire tirée par une démographie galopante. L’extraversion de l’industrie agroalimentaire engendrée par le modèle agro importateur adopté depuis 1963 s’est accentuée durant la période (1979-1999), qui a vu le défilement de réformes dont la transformation des Domaines agricoles socialistes (DAS) en Exploitations agricoles collectives et individuelles gérées par un droit de jouissance perpétuelle. Ces réformes se sont amplifiées durant les années 1990 à la suite des crises pétrolière et financière qu’a connues le pays et l’adoption des mesures d’ajustement structurel orienté vers l’économie de marché. Ceci a entraîné notamment la création des chambres d’agriculture, le démantèlement de certaines entreprises publiques de valorisation des produits agricoles, des offices d’approvisionnement, du système des coopératives de service, une chute libre des investissements agricoles et une multiplication des transactions informelles des terres agricoles. La crise sécuritaire qui s’est installée à cette époque n’a fait qu’aggraver la situation des agriculteurs. Une consultation nationale regroupant tous les acteurs, experts et universitaires fut alors organisée en 1992. Cette conférence a souligné, pour la première fois, la nécessité de recentrer le rôle de l’administration de l’agriculture sur ses missions régaliennes de réglementation, de régulation, de contrôle et d’appui aux créateurs de richesse. Mais, ces recommandations n’ont pas pu aboutir à cause des contraintes liées à la crise financière que traversait l’Algérie durant les années 1990. Le retour progressif de la sécurité dans le pays à partir de 1999, le rétablissement des finances publiques et la clôture du programme d’ajustement structurel, ont permis au gouvernement de l’époque de lancer le Plan national de développement agricole et rural (2000-2008). Ce plan a bénéficié de fonds importants orientés vers le soutien de l’investissement privé dans les exploitations agricoles et les zones intérieures (sud, hauts plateaux, montagnes). Il a été conforté en suite (2004), par la stratégie de développement rural durable. Cette dernière entendait la revitalisation des territoires ruraux par des activités économiques et la valorisation des ressources naturelles et l’instauration de nouvelles relations entre le public et le privé.
Nouvelle manière de gouverner
Cette période a connu les premières expériences de décentralisation administrative illustrée par les Projets de proximité de développement rural intégré (PPDRI) dont la conception est basée sur une démarche ascendante, participative et intégrée. Cette approche a été perpétuée par la politique actuelle, le Renouveau agricole et rural (RAR), dont les fondements ont été posés par le discours du Chef de l’Etat en février 2009 à Biskra lors de la tenue des états généraux du secteur. En réaffirmant l’objectif fondamental des politiques agricoles antérieures, à savoir, le renforcement durable de la sécurité alimentaire, le RAR prône une nouvelle gouvernance du secteur agricole et rural basée sur un recentrage du rôle de l’Etat sur ses fonctions régaliennes et une participation responsable, effective et interactive de tous les acteurs. S’appuyant sur trois piliers : le Renouveau agricole, le Renouveau rural et le Programme de renforcement des capacités humaines et d’assistance technique, cette nouvelle politique a bénéficié d’un cadre incitatif fort d’un budget de 1.000 milliards DA sur cinq ans (2009-2014).
L’épineuse question du foncier résolue
Cette enveloppe est destinée à la modernisation de l’administration, au soutien de la production nationale et au soutien des prix des produits de première nécessité comme le pain, le lait… Le règlement de l’épineuse question du foncier, et avec elle celle du financement agricole, serait l’une des réalisations remarquables de cette politique. La loi d’orientation agricole adoptée en 2008 a consacré la concession comme mode exclusif d’exploitation des terres du domaine privé de l’Etat en remplacement du droit de jouissance perpétuelle, introduit en 1987. D’autres mesures encourageant la création de nouvelles exploitations agricoles et d’élevage sur des terres appartenant aux particuliers, comme la mise en place de crédits bonifiés, ont été introduites en 2011.
Ce nouveau dispositif législatif, qui devrait améliorer la visibilité nécessaire à tout projet d’investissement, a été accompagné par l’opérationnalisation de l’Office national des terres agricole, gelé depuis 1996.
Filières stratégiques
L’approche filière qui a été confirmée par le RAR est venue recentrer les nombreuses actions de soutien aux investissements pour intensifier et moderniser la production dans les exploitations en vue de créer une croissance internalisée et soutenue. Près d’une vingtaine de filières ont été placées stratégiques (céréales et légumes secs, lait, viandes rouges et blanches, pomme de terre …) au vu de leur rôle dans l’amélioration de la sécurité alimentaire et les atouts dont elles disposent pour créer de la valeur ajoutée. Pour assurer la pérennité de ces filières, deux actions spécifiques ont été prises par le renouveau agricole. La première concerne le système de régulation, visant notamment la sécurisation des agriculteurs et la deuxième porte sur la modernisation et l’adaptation du financement et des assurances agricoles.
Fatma Hamouche