国家耕地保护责任制度的功能轮廓与政策规制——基于制度语法学工具的分析

The Functional Outline and Policy Regulation of China's Farmland Protection Responsibility System——An Analysis Based on Institutional Grammar Tools

粮食安全事关民生,是人民生活的根本命脉。虽然中国实行最严格的耕地保护责任制度,但耕地面积和耕地质量问题一直存在,厘清国家耕地保护责任制度的功能轮廓和政策规制,是解决耕地保护问题的前置性基础。运用扎根理论和制度语法工具对国家耕地保护责任制度的政策文本进行分析发现,在政策规制中柔性策略秩序使用最多,中性规范秩序和刚性规则秩序使用较少。政策过程中缺乏与自然资源管理部门的合作,报酬规则中激励与惩罚条款模糊,以上因素造成国家耕地保护责任制度的规制程度不高。国家耕地保护责任制度应强化中性规范秩序和刚性规则秩序的使用,在集体选择层次和操作层次中加强与粮食、土地、农业和林业等部门的合作,细化报酬规则中激励与惩罚条款。

Food security is closely related to people's livelihoods and it is the fundamental lifeline of their lives.The responsibility system for farmland protection is the institutional guarantee for achieving the strategy of"storing grain in the land".Despite China implementing the strictest farmland protection responsibility system,there have always been issues with the area and quality of farmland.Clarifying the functional outline and policy regulations of the national farmland protection responsibility system is a prerequisite for solving the problem of farmland protection.By using institutional grammar tools to analyze the policy text of the national farmland protection responsibility system,it was found that in policy regulation,flexible strategic order is the most commonly used,while neutral normative order and rigid rule order are less commonly used.There is a lack of cooperation with natural resource management departments,and the incentive and punishment clauses in the compensation rules are vague.These factors have led to a low level of regulation of the national farmland protection responsibility system.It is suggested to increase the use of neutral normative order and rigid rule-based order,strengthen cooperation with departments such as food,land,agriculture,and forestry at the collective choice and operational levels,and refine the incentive and punishment clauses in the compensation rules.