耕地保护何以难:目标、实践及对策——来自西部粮食主产区的观察

Why Is It Difficult to Protect Arable Land:Objectives,Problems and Countermeasures——Observation from the Main Grain-producing Areas in the West

党的十八大以来,耕地保护的政策目标清晰地呈现出从注重数量保障到强调质量提升、再到强化载体建设的“由显到隐”内涵要求逐步提升的从严逻辑。地方落实中央部署,多措并举保面积并提质量。但是在实践中,政策落实与政策目标发生偏离:在耕地腾退和使用方面,非农非粮用地腾退成本高与手段缺乏,复合种植在兼顾收入的同时不可避免造成“减粮化”;在高标准农田建设方面,缺乏主体沟通导致建设效果欠佳,重显轻隐、前后衔接差的问题突出;在资金预算和使用方面,未区分地类造成实际落实难,补贴对象错位不利于耕地保护;在法律支撑和农民配合方面,“非粮化”管控的硬措施缺乏相关法律依据,农户参与积极性不高。在此基础上提出了弥合地方实践与政策目标偏离的政策建议。

Since the 18th CPC National Congress,the policy objectives of arable land protection clearly show the strict logic of gradually improving the connotation requirements of"from obvious to implicit"from focusing on quantity guarantee to emphasizing quality improvement,and then to strengthening carrier construction.The local government implemented the central deployment,took multiple measures to ensure the area and improve the quality.However,the outstanding problems exposed in practice are the true reflection of the deviation between the policy implementation and the policy objectives.It is shown in the following aspects:In terms of arable land release and use,the cost of releasing non-agricultural and non-grain land is high and the means are lacking,compound planting will inevitably lead to"grain reduction"while balancing income.In terms of construction of high-standard farmland,the lack of communication between the main bodies leads to poor construction results,and the problems of emphasis on the visible rather than the hidden and poor backward and forward linkage are prominent.In terms of budget and use of funds,the lack of differentiation of land types makes the actual implementation difficult,and the misalignment of subsidy targets is not conducive to arable land protection.In terms of legal support and farmers'cooperation,the hard measures of"non-grain"control lack relevant legal basis,and farmers are not highly motivated to participate.On the basis of this,policy recommendations are proposed to bridge the gap between local practice and policy objectives.