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大食物观下耕地“三位一体”保护:逻辑转换、协同路径与政策优化

Cultivated land protection integrating quantity, quality, and ecology under the Greater Food Approach: logical transformation, coordinated pathways, and policy optimization

  • 摘要: 大食物观是我国食物安全治理理念由粮食数量保障向多元供给、营养改善与生态安全统筹转型的重要体现,也对耕地数量、质量、生态“三位一体”保护提出了新的制度要求。本文基于耕地多功能理论与人地系统理论,构建大食物观下耕地“三位一体”保护分析框架,阐释数量、质量与生态耦合形成耕地综合食物保障能力的内在机理,并据此分析耕地保护由单一生产功能向综合支撑功能转变、由单一增产利用向结构适配与分类利用转变、由刚性约束治理向约束激励协同治理的逻辑转换及现实困境。研究认为,大食物观下推进耕地“三位一体”保护,关键在于处理好多元化食物供给与耕地保护之间的协同关系,应以统筹数量与质量关系、协调生产与生态关系、平衡政府与市场关系和优化局部与总体关系为基本原则。在此基础上,应优化用途管制规则,增强作物结构适配能力;完善质量产能评价,提升耕地综合承载效能;健全主体激励机制,增强耕地保护内生动力;规范设施农业用地,拓展耕地复合利用空间,推动耕地保护由单一面积管控转向支撑国家食物安全的综合功能治理。

     

    Abstract: The Greater Food Approach reflects China’s transition in food security governance from a emphasis on grain quantity toward the coordinated pursuit of a diversified food supply, improved nutrition, and ecological security. This transition places new institutional demands on the “three-in-one” protection of cultivated land in terms of quantity, quality, and ecology. Drawing on the theories of cultivated land multifunctionality and human–land systems, this study develops an analytical framework for “three-in-one” cultivated land protection under the Greater Food Approach. It explains how the quantity, quality, and ecological condition of cultivated land interact to determine its comprehensive capacity to safeguard food security. It also examines three major transformations in cultivated land protection: from emphasizing a single production function to providing comprehensive support, from output-oriented utilization to structural adaptation and differentiated use, and from rigid regulation to governance that combines constraints with incentives. The practical challenges arising from these transformations are also analyzed. The study argues that “three-in-one” cultivated land protection should follow four fundamental principles: coordinating quantity with quality, reconciling agricultural production with ecological protection, balancing government regulation with market mechanisms, and coordinating local and national interests. On this basis, policy efforts should focus on optimizing land-use regulation, improving systems for assessing cultivated land quality and production capacity, strengthen incentive mechanisms, regulating the use of cultivated land for facility agriculture, and expanding opportunities for its multifunctional use. These measures would facilitate a shift from area-based control toward comprehensive functional governance capable of supporting national food security.

     

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