耕地“非粮化”管控路径梳理与展望

Review and Prospect of Management and Control Path for “Non-grain” Cultivated Land

  • 摘要: 梳理“非粮化”管控措施,探讨未来“非粮化”管控的重点方向,可以为“非粮化”管控体系的完善提供参考。基于文献分析法和归纳演绎法,总结“非粮化”的概念、类型、现状、原因、影响以及治理措施。结果表明:当前对“非粮化”的概念与类型尚未达成一致,我国“非粮化”现象呈扩大趋势且经济发达地区与南方地区“非粮化”率较大,“非粮化”原因主要包括种粮经济效益低、地区发展水平差异、耕地资源多宜性、政策执行偏差、农户自身因素;不同的耕地“非粮化”行为对耕地质量的影响存在较明显差异。针对“非粮化”问题所采取或建议的措施,包括法规措施、经济措施、破坏鉴定措施、规划措施,但是目前关于利用差别管控措施治理“非粮化”的研究数量与深度尚且不足。针对当前管控存在的法理说服力较弱与治理隐患性较大的问题,建议今后在耕地保护法律中设立相应条款,并依据国土空间规划在县级划定粮用单元、食用单元、农用单元,制定各管控单元的生产经营活动范围与差别管控办法。

     

    Abstract: Summarizing the “non-grain” control measures and discussing the key direction of “non-grain” control in the future can provide reference for the improvement of the “non-grain” control system. Based on literature analysis and inductive reasoning, this paper summarizes the concept, types, current situation, causes, impacts and control measures of “non-grain”. The results showed that current researches have not yet reached a consensus on the concept and types of “non-grain”. The phenomenon of “non-grain” was expanding in China and the rate of “non-grain” was higher in economically developed regions and southern regions. The causes of “non-grain” mainly include low economic efficiency of grain cultivation, differences in regional development, multi-suitability of arable land resources, deviations in policy implementation, and other factors related to farmers. The impact of different types of “non-grain” on the quality of arable land changed significantly. The measures taken and suggested for the problem of “non-grain” included regulatory measures, economic measures, damage identification measures, and planning measures. At present, the amount and depth of research on making different control measures for cultivated lands are insufficient. In view of the current problems of weak legal persuasion and great hidden dangers in management and control, the suggestions on the corresponding provisions should been in the farmland protection Laws in the future, and the grain units, edible units and agricultural units should be demarcated at county level according to territorial spatial planning, and the scope of production, operation activities, and differential control methods of each control unit should be formulated.

     

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