代表性国家和地区耕地休耕补助政策及其对中国的启示

Subsidy policies on fallow of cultivated land in selected countries and regions and their enlightenment to China

为保证耕地休耕制度的顺利实施和成效的长久保持,中国近年来不断探索制定科学合理的耕地休耕补助政策。美国、日本、欧盟、中国台湾等国家和地区已经具有多年的休耕实践经验,且都十分重视对休耕农民的补助问题。该文采用文献资料法、对比分析法及归纳总结法,在分析美国、日本、欧盟、中国台湾等代表性国家和地区休耕补助实践的基础上,对休耕补助目的、实施模式、补助形式、补助依据及资金来源等进行了梳理和归纳。针对中国休耕补助政策中可能存在的问题,提出今后应从补助目的动态化、补助效益最大化、补助类型差异化、资金来源多样化、配套措施制度化等方面完善补助政策的改进建议,并尝试构建了中国耕地休耕补助政策的初步框架。

In order to ensure the successful smooth implementation of cultivated land fallow project and long-term preservation of its effectiveness, China has been developing reasonable subsidy policy of cultivated land fallow in recent years. Excessive agricultural intensification and chemical agricultural production has caused a series of problems in China, such as soil productivity deterioration pressure, soil pollution, soil degradation etc.. These problems restrict the farmland sustainable use and agricultural sustainable development. At the same time, the overall supply of China＆#39;s grain is relatively abundant, and there is a phenomenon of price inversion in the international grain market. Farmland fallow refers to the measures taken by land owners or users to replace crops or not to farm in a certain period for the purpose of improving farming efficiency and promote sustainable use of land. It is important to select some area as a pilot area in China, and implement cultivated land fallow project, because this not only can maintain the sustainable development, the restoration of soil fertility, and improve the quality of cultivated land, but also can balance the grain supply and demand contradiction to ensure food security and stable income of farmers. In this article, we selected the United States, Japan, the European Union, China Taiwan and other countries and regions as the study areas. It is mainly because these areas have many years of experience in fallow practice, and have developed the policy of subsidy to the farmers. The agricultural development in the United States and the European Union have a large scale farm, which is characterized by large scale of operation, high degree of mechanization and professional farmers. But the characteristics of farm in Japan and China are small both in size and economic scale, which is known for low mechanization, high specialization of agricultural management, and scattered farmers. In this paper, we reviewed the literature and used comparative analysis and induction to analyze the practice of fallow subsidy in these countries and regions, then summarized the purpose of the fallow subsidy, the model of implementation, the form of subsidies （the basis of subsidy and the fund of subsidy）. In addition, China has practiced a pilot project in fallow of cultivating arable land for one year. During that time, there are a few areas in fallowing, they are mainly in the areas of groundwater funnel, heavy metal pollution, serious ecological degradation, continuous cropping and other ecological environment. Overall, the cultivated land fallow system pilot area has achieved good results, food production capacity has improved, ecological environment has also been improved. However, since the fallow system in China is only in the exploratory stage, the implementation of the fallow subsidy policy may also have many potential problems, including the insufficient motivation of compensation subject, the lack of flexibility in the subsidy standard, the single source of subsidy funds and the weakness of subsidy systems. Finally, in view of these problems in the subsidy policy of cultivated land fallow in China, in this paper, we put forward some suggestions on how to improve the subsidy policy in the future, those include developing dynamic goals, maximizing the subsidy benefit, making different types of subsidy, and diversifying the source of funds. According to the principle of differentiation and diversification, we also attempted to construct the conceived framework of China＇s fallow subsidy policy in order to provide reference for the establishment of the subsidy policy framework of cultivated land fallowing in China.