农地流转、耕地“非粮化”与粮食安全——兼论“谁来种粮”问题

Agricultural Land Transfer,“Non-grain Conversion”of Cultivated Land and Food Security——Also Discussing the Issue of“Who Will Grow Food”?

维护粮食安全是中国式现代化的物质保障,而耕地“非粮化”制约着中国粮食安全。基于农地流转再利用的资本逐利视域,立足不同区域的实证案例,发现耕地“非粮化”现象广泛地存在于农地流转中,农地经营户在流转耕地上偏好种植果木等经济作物,而非粮食作物。究其原因,农地流转本质上是资本下乡对耕地利用的再造,而资本下乡秉承着逐利性原则。受限于市场经济内生机制、政府干预形式和力度缺陷、公共政策执行存在偏差及农地流转合同未规定耕地使用方式等因素影响,农地经营户种植粮食作物的比较效益偏低,难以满足资本逐利需要。当前,囿于农村劳动力空心化及老龄化、土地承包期限延长至30年政策等条件制约,不应盲目地将农村流转耕地收回重新分配给农民耕种,而应遵循农地流转再利用的资本逐利逻辑。在农地流转基础上,选择区域实施商业化种粮政策,同时通过优化政府干预形式和力度,确保公共政策精准执行及利用协商治理调整合同内容方式来提升农地经营户种粮积极性,从而推动耕地“非粮化”朝着“种粮化”转向。

Maintaining food security is the material guarantee for Chinese modernization,but the“non-grain”of cultivated land restricts China’s food security.Based on the perspective of capital interests in farmland transfer and reuse,and based on empirical cases in different regions,the article finds that the phenomenon of“non-grainification”of cultivated land exists in the transfer of farmland.Farmland operators plant fruit trees and other economic plants on the transferred farmland rather than food crops.The reason is that the transfer of farmland is essentially a re-creation of the use of cultivated land by capital going to the countryside.Capital going to the countryside adheres to the principle of profit seeking and is limited by the endogenous mechanism of the market economy,defects in the form of government intervention,and deviations in the implementation of public policies.Affected by factors such as the agricultural land transfer contract not stipulating the use of cultivated land,the comparative economic benefits of agricultural land operators planting food crops are low,making it difficult to meet the capital’s profitseeking needs.Currently,due to constraints such as the hollowing out and aging of the rural labor force and the policy of extending the land contract period to 30 years,rural farmland should not be blindly taken back and redistributed to farmers for farming.Instead,the logic of farmland transfer and reuse should be followed.On the basis of agricultural land transfer,we select regions to implement commercial grain growing policies.At the same time,we optimize the form and intensity of government intervention,ensure the precise implementation of public policies,and use negotiation and governance to properly resolve transfer contracts to increase the enthusiasm of agricultural land management households to grow grain,so as to promote the transformation of cultivated land from“non-grain”to“grain growing”.