地方政府参与耕地流转“非粮化”的逻辑及其治理——基于耕地种树绿化的案例研究

The Logic and Governance of Local Government’s Participation in the“Non-Grain”Transfer of Cultivated Land:A Case Study Based on Planting and Greening of Cultivated Land

研究目的:以博弈论为基础建立双层博弈分析框架,选取耕地流转种树绿化典型案例,复盘地方政府参与耕地流转“非粮化”的博弈过程并揭示各方利益相关者的决策动机和行为逻辑,为国家治理耕地流转“非粮化”问题提供科学依据和政策建议。研究方法:质性分析法和案例分析法。研究结果:耕地流转“非粮化”问题能否得到有效抑制具有明显的情境依赖特征,即各参与主体间的利益博弈是耕地流转“趋粮化”和“非粮化”选择的本质。因此,无论对各级政府还是对种粮主体而言,在国家层面对耕地保护实施“辅之以义、辅之以利”又“辅之以法”的“三辅”并治机制才是防治耕地流转“非粮化”的良策。研究结论:为有效防治地方政府参与耕地流转“非粮化”,提升国家粮食安全治理能力,应在“三辅”并治的基础上以层层设防的策略来遏制耕地流转“非粮化”的不良趋势,即以“中央政府的奖惩、地方政府的规制、社会媒体的监督和种粮主体的抵抗”这4道防线来筑牢粮食安全的“堤坝”。

The purposes of this paper are to establish a two-layer game analysis framework based on game theory,to select a typical case of planting and greening of cultivated land transfer,to review the game process of local governments participating in the“non-grain”transfer of cultivated land and to reveal the decision-making motivation and behavioral logic of the stakeholders,to provide scientific basis and policy recommendations for the state’s governance concerning the“non-grain”problem of cultivated land transfer.The research methods include qualitative analysis and case analysis.The research results show that whether the“non-grain”problem of cultivated land transfer can be effectively suppressed has obvious context-dependent characteristics,that is,the game of interests among the participating subjects is the essence of the choice between“grain-oriented”and“non-grain-oriented”cultivated land transfer.Therefore,both for governments at all levels and for grain-growing entities,the“three-supplement”mechanism for cultivated land protection at the national level,which is“supplemented by justice”,“supplemented by benefits”and“supplemented by law”,is a good strategy to prevent the“non-grain”transfer of cultivated land.In conclusion,to effectively prevent local governments from participating in the“non-grain”transfer of cultivated land and enhance the national food security governance capacity,it is expected to use the strategy of fortification at layers on the basis of“three-supplement”to curb the unfavorable trend of“non-grain”transfer of cultivated land.The four lines of defense of“rewards and punishments by the central government,regulation by the local government,supervision by social media,and resistance by the main body of grain growers”are used to build a“dam”of food security.