“非粮化”治理视角下的耕地用途管制:应对逻辑与体系构建

Cultivated land use control from the perspective of"non-grain"governance:Response logic and framework construction

保障国家粮食安全的根本在耕地。在国土空间用途管制的大背景下,对耕地数量的单一管控已转向落实“藏粮于地”战略,“大食物观”也赋予粮食安全新的内涵,“非粮化”治理亟需探索新时期耕地用途管制的应对逻辑并构建理论框架体系。通过对“非粮化”治理的政策回溯和困境揭示,提出应对逻辑要着眼于底线管控、动态发展和价值实现三个不同维度的治理视角,深入辨析安全与效率、供给与需求、资源与资产的关系。理论框架需参照多层级规划目标、精细化分区管理、全生命周期流程和差别化规则体系的原则,围绕管制基础、管制模式、管制环节和管制手段四个核心内容构建用途管制体系。研究结果可为防止耕地“非粮化”、完善耕地保护制度提供参考。

The fundamental guarantee of national food security lies in cultivated land.In thebackground of territorial and spatial use control,the single control of cultivated land quantityfrom the past has turned to the implementation of"storing grain in the land"strategy nowadays,and the"integrated food security thought"has also given a new connotation to the national foodsecurity strategy.The governance of"non-grain"in the new era needs to explore the responselogic of cultivated land use control and thus construct a theoretical framework system.By re‐viewing the implementation of"non-grain"governance policies and the current dilemma be‐tween public goods and autonomous management,standard identification and policy implemen‐tation,consumption transformation and social service,this paper points out that the responselogic of cultivated land use control should be focused on the three different dimensions of gov‐ernance perspectives,namely bottom-line control,dynamic development and value realization.Aiming at each perspective,analysis of relationships should focus on the following aspects,pro‐tecting national and personal interests from the perspective of security and efficiency coordina‐tion,dealing with the self-sufficiency of rations and the upgrading of consumption from the per‐spective of supply and demand matching,realizing the priority and versatility of cultivated landutilization from the perspective of resource and asset transformation.The theoretical frame‐work should refer to the principles of multi-level planning targets,refined zoning management,life cycle process and differentiated rule system.Further,the establishment of the use controlframework consists of four core contents,regulation basis,pattern,section and methods.Theregulation basis should refine the rules of"transfer-in"and"transfer-out"of cultivated land,which is helpful to improve the rule of law.The regulation pattern should make good use of thecombination of partition,element and behavior,and carry out differentiated control measuresmainly according to"three areas and three lines".The regulation section should highlight the"non-grain"governance of life cycle process,which needs to strengthen the role of use controlin all aspects of investigation,registration,planning,restoration,utilization and supervision.The regulation methods should focus on innovation in aspects of administrative,social,eco‐nomic and technical fields.In conclusion,this study can provide reference for the policy designof preventing"non-grain"and improving China's most stringent system of cultivated land pro‐tection.