摘要
研究目的:厘清条块分割行政体制下耕地保护多头治理现实问题,揭示“多田套合”的概念内涵与目标定位,探讨其促进耕地保护协同治理的理论逻辑与实施路径。研究方法:文献资料法和归纳演绎法。研究结果:(1)当前永久基本农田、高标准农田、粮食生产功能区“三块田”存在空间错位、制度目标偏离和治理逻辑偏差,使得耕地保护效能受到严重制约;(2)“多田套合”旨在通过空间套合、制度协同和目标耦合实现耕地保护与利用系统治理,但仍面临政策、管理、经济显著现实阻力;(3)可以整体性治理理论“逆部门化”与“协同整合”的核心主张为理论基础,通过政策保障体系顶层设计、跨部门目标耦合与资源联动机制建立,推进耕地保护由“分头管理”走向“数量—质量—功能”系统治理。研究结论:通过分析当前耕地保护存在的现实挑战与“多头治理”难题,厘清“多田套合”促进耕地保护与利用的理论逻辑与实施路径,提升耕地保护成效,促进国土空间治理能力现代化,实现耕地“数量—质量—功能”系统治理,支撑耕地保护与粮食安全。
The purposes of this study are to examine the fragmented governance of cultivated land protection under the block-style administrative system in China,to clarify the conceptual connotation and target orientation of the multi-field integration policy,and to explore its theoretical logic and implementation pathways for promoting collaborative governance.The research methods include literature review and inductive analysis.The research results show that:1)under the current institutional framework,the“three fields”—permanent basic farmland,high-standard farmland and food production functional areas—exhibit spatial misalignment,institutional goal divergence,and fragmented governance logic,severely constraining the effectiveness of cultivated land protection.2)The multi-field integration policy seeks to achieve systematic governance of cultivated land through spatial alignment,institutional coordination and goal coupling,yet still faces significant challenges in terms of policy inconsistency,administrative segmentation and financial constraints.3)Drawing on the holistic governance theory—particularly its emphasis on“inverse sectoralization”and“synergistic integration”—this study proposes enhancing top-level policy design,fostering cross-departmental goal coordination,and establishing integrated resource allocation mechanisms to facilitate the transition from fragmented management to a governance system centered on the quantity,quality,and function of cultivated land.In conclusion,by addressing the core challenges of multi-agency governance and clarifying the theoretical and practical logic of multi-field integration,this study provides a preliminary policy reference for enhancing cultivated land governance effectiveness and advancing the modernization of territorial space governance to safeguard food security.
作者
吴格菲
卢威仁
肖武
申琪
董占杰
程姌
WU Gefei;LU Weiren;XIAO Wu;SHEN Qi;DONG Zhanjie;CHENG Ran(School of Public Affairs,Zhejiang University,Hangzhou 310058,China;Observation and Research Station of Land Consolidation in Hilly Region of Southeast China,Ministry of Natural Resources,Fuzhou 350001,China;Fujian Cultivated Land Protection Center,Fuzhou 350001,China;Jinhua Land Consolidation and Rehabilitation Center,Jinhua 310026,China)
出处
《中国土地科学》
北大核心
2025年第9期26-35,共10页
China Land Science
基金
福建省自然资源科技创新项目(KY-030000-04-2024-029)。
关键词
耕地保护
协同治理
“多田套合”
cultivated land protection
collaborative governance
“multi-field integration policy”
