?耕地“非糧化”治理的困境與對策研究

摘 要：以浙江省新昌縣為例，分析了目前其墾造耕地區所面臨的“非糧化”整治困境，如整治阻力大、財政壓力大、可持續性差等，得出困境源于糧油作物收益偏低、地理條件制約較多、農村勞動力流失嚴重、市場需求結構調整、茶葉種植極具前景等。在厘清農戶耕地經營決策邏輯的基礎上，采用對比實驗法研究新昌縣墾造耕地區最為典型的“非糧化”利用方式——種植茶葉對耕地質量的影響，并以耕地質量不下降為前提提出相應的耕地“非糧化”治理路徑和對策：堅持因地制宜，實施差異整治；統一耕地流轉，完善經營制度；搭建交易平臺，暢通銷售渠道；進行財政補助，助力“消薄”增收；堅持藏糧于技，加強科技創新；監測耕地質量，指導種植利用。

關鍵詞：“非糧化”；墾造耕地；耕地質量

中圖分類號：F323.21 文獻標識碼：A 文章編號：1006-060X（2023）05-00888-06

Abstract：Taking Xinchang County of Zhejiang Province as an example， the analysis finds that the governance of the \"non-grain\" of its farmland reclamation area falls into a dilemma of high resistance to remediation， great financial pressure， and poor sustainability. The dilemma stems from low income of growing grain and oil crops， geographical constraints， serious loss of rural labor， structural adjustment of market demand， and great prospect of tea cultivation. On the basis of clarifying the decision-making logic of farmers' farmland management， the study uses a comparative experimental method to study the impact of tea cultivation， the most typical \"non-grain\" utilization mode in the farmland reclamation area of Xinchang County， on the quality of farmland. Furthermore， on the premise of ensuring the farmland quality， it proposes corresponding paths and countermeasures for governing the \"non-grain\" of farmland： insisting on the implementation of differentiated remediation according to local conditions; unifying farmland circulation and improving the management system; building a trading platform to make sales channels smooth; providing financial subsidies to help villages \"improve weak collective economy\" and increase farmers' income; implementing the food crop production strategy based on technological application and strengthening scientific and technological innovation; monitoring the farmland quality to guide the planting and utilization.

Key words： \"non-grain\"; farmland reclamation; farmland quality

糧食安全作為國家戰略，事關民生福祉。耕地作為糧食安全的重要保障，近幾年卻呈現出不同程度的減少態勢。造成耕地減少的原因除了建設占用外，更多的是“非糧化”利用方式導致的耕地流出，這主要是因為耕地“非糧化”利用能夠帶來更高的經濟收益。糧食安全和經濟收入難以齊頭并進，耕地的“趨糧化”利用和“非糧化”利用之間產生了一定的矛盾[1]。

由于耕地“非糧化”對糧食安全的影響表現為耕地“非糧化”減少種糧面積從而直接減少當年度糧食產量或對耕地質量產生負影響從而間接減少未來的糧食產量，學者們研究了耕地“非糧化”對耕地質量、區域環境等的影響。……