中国耕地保护治理转型:供给、管制与赋能

Governance Transformation for Cultivated Land Protection in China:Provision,Regulation and Enabling

研究目的:从国家治理转型的高度,剖析耕地保护制度的初心与使命,为实现生态文明、粮食安全与乡村振兴的协同发展提供借鉴。研究方法:文献研究法,综合分析法。研究结果:在中国耕地保护治理的转型中,政府、市场、社会三类行动主体相互嵌入形成动力机制和制衡机制。政府和市场主导的供给治理导向的耕地总量动态平衡制度虽然规定了框架规制,但地方政府的执行偏差、社会公众的参与缺位造成了“占优补劣”的后果。政府和社会主导的管制治理导向的永久基本农田保护制度严格保护了优质耕地,维持粮食生产能力不减弱。政府、市场和社会共同主导的赋能治理导向的耕地休养生息制度完善了“占补平衡”的政策目标,加强了生态修复,建立了市场化、多元化生态补偿机制。通过供给治理、管制治理与赋能治理的协同组合可以实现耕地数量、质量、生态“三位一体”保护的多重平衡。研究结论:建立政府、市场与社会多主体参与的互动性连结,供给治理导向的耕地总量动态平衡与管制治理导向的永久基本农田保护奠定了耕地保护治理的基石,赋能治理导向的耕地休养生息制度是在改进的耕地占补平衡和加强的永久基本农田保护基础上的嵌入性治理,与前两者形成合力,高效推进中国耕地保护治理转型。

The purposes of the study are to analyze the original intention and mission of the cultivated land protection system from the height of national governance transformation,in order to provide the reference for the realization of the coordinated development of ecological civilization,food security and rural revitalization.The research methods include literature review and comprehensive analysis.The results show that the government,the market and the society are interacting with each other in the transformation process of cultivated land protection governance in China,forming the dynamic mechanism and the balance mechanism consequently.Although the provision-oriented total dynamic balance of cultivated land led by government and market has laid the framework,“occupying the cultivated land of good quality while reclaiming it of the bad quality”is still caused by execution deviation of the local government and the insufficient participation of the social public.The regulation-oriented permanent basic farmland protection,led by the government and the society,has strictly protected the high-quality cultivated land and maintained the undiminished grain production capacity.The enabling-oriented cultivated land fallow has improved the policy objective of“balancing cultivated land occupation and reclamation”,strengthened the ecological restoration,and established a diversified ecological compensation mechanism led by the government,the market and the society jointly.Through the cooperative combination of governing through provision,regulation and enabling,the multiple balance of the quantity,quality and ecology of cultivated land protection can be achieved.In conclusion,established by the interactive joint of the government,the market and the social participation,provision-oriented total dynamic balance of cultivated land and regulation-oriented permanent basic farmland protection laid the cornerstone of the cultivated land protection management.Moreover,enabling-oriented cultivated land fallow to recuperate is an embedded governance based on promoting total dynamic balance of cultivated land and strengthening permanent basic farmland protection,which can promote the transformation of cultivated land protection governance in China efficiently.