近日，中国农业大学全球食物经济与政策研究院（AGFEP）成员龙文进讲师和院长樊胜根教授在China Daily发文谈用大食物观来重新思考耕地“非粮化”治理。

SHI YU/CHINA DAILY

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耕地非粮化一般是指在耕地上种植蔬菜、水果等非粮食作物的行为。一般用非粮作物播种面积占作物总播种面积的比例来衡量耕地非粮化。按照这一标准，近年来我国耕地非粮化有所上升。针对耕地非粮化问题，中央出台了一系列政策。但是，尽管这些政策在保护耕地和巩固粮食生产方面发挥了关键作用，但也产生了一些负面影响，例如：减少了农业主体（包括农民）的收入，限制了农业生产的多样化，在一定程度上损害了农民和地方政府的利益。

因此，迫切需要重新思考耕地非粮化治理。

粮食生产收益相对较低是耕地非粮化的根本原因。劳动力从农业向非农业部门不断转移，导致农业劳动力成本上升，种子、化肥、农机等产品价格也在上涨。与此同时，农地经营规模和地形会影响农民的种植决策，耕地的碎片化往往导致非粮化。此外，食物安全变得更加重要。传统上，保障粮食安全意味着确保谷物供应顺畅。但随着人口下降、人口老龄化和人们饮食习惯的改变，对谷物的需求也将稳步下降。因此，粮食需求增长将主要来自饲料粮，辅以粮食的工业用途。

目前，粮食安全不再仅仅是口粮安全问题，而是更广泛定义的食物安全，包括确保水果、蔬菜和肉类的供应。相应地，耕地非粮化治理应超越传统的“以粮为主”的安全观，要以包括营养健康安全、环境可持续性和共同富裕的大食物观为指引。

一是耕地利用在优先保证主食供应的同时，也要保证蔬菜、水果、肉类、水产品等食物的正常供应，通过生产多样化更好地满足人民群众日益多样化的食物消费需求。基本农田和高标准农田应主要用于粮食生产，特别是水稻、小麦、玉米。此外，应促进大规模机械化、灌溉和交通，使农民可以通过种植粮食获得可观的收入。但无论农民生产什么类型的作物，耕地都不应用于其他目的，也不应改变土壤性质，同时应采取措施确保可耕地在紧急情况下可用于种植粮食。

二是多渠道全方位利用国内外资源，增加粮食供应的多样性和韧性。出于健康和环境原因，还需要促进人们的多样化饮食习惯。为了更好地保护生态环境，食物生产不仅要增加可耕地资源，还要利用所有土地资源，包括草原、森林、水体和替代蛋白质资源。还需要合理利用全球市场，通过多样化和适度的进口来缩小国内食物供需之间的差距。从比较优势和贸易角度看，进口土地密集型粮食比进口劳动密集型非粮食类食物对中国更有利。

第三，应实施更多政策，增加农业劳动力收入，并鼓励各类主体增加粮食产量。新的政策重点应包括支持职业农民、发展适度规模经营、提升农业技术和扩展农业价值链。

以下为英文原文：

The "non-grainization" of cultivable land generally refers to the act of growing vegetables, fruits and other non-food crops on farmlands. The proportion of cultivable land used to grow non-food crops to the total sown area of crops can be used as a yardstick for measuring "non-grainization" of cultivable land.

Using this yardstick, we can say the area used to grow non-grain crops in China has increased slightly in recent years. The proportion of the area used for grain production (cereals, beans, tubers) in the total sown area declined from 71 percent in 2015 to 69.7 percent in 2021, and the proportion of area used to grow cereals (rice, wheat, corn) in the total sown area for crops declined from 61 percent in 2015 to 59 percent in 2021.

However, the trend of per capita grain production is basically in line with the non-food conversion of cultivable land. And while China's per capita grain production reached 479 kilograms in 2015, only in 2021 did the amount surpass the 2015 level to reach 483 kg.

Concerned over the "non-grainization" of cultivable land, the central government has issued a series of policies. But despite playing a key role in protecting cultivable land and consolidating grain production, the policies have had some negative effects such as reducing the income of agricultural entities (farmers included) and curtailing the diversification of agricultural production, harming the interests of farmers and local governments to a certain extent.

Hence, a rethink on the policies is urgently needed.

The relatively low returns on grain production is the fundamental reason for the "non-grainization" of cultivable land, and the contradiction between the rising cost of and low income on grain production is difficult to reconcile. Besides, the continuous shift of laborers from agriculture to non-agricultural sectors has led to a rise in agricultural labor cost, and the prices of products such as seeds, fertilizers and farm machinery have also increased. Data show that without subsidies, the average net profit of growing rice, wheat or corn is often negative.

In addition, the size and topography of farms influence farmers' planting decisions. For example, in plain areas that are suitable for mechanical farming, farmers will increase mechanized farming for grain crops. And since mountain and hill slopes are not suitable for large-scale mechanical farming, farmers in such places will cultivate more cash crops. This fragmentation of cultivable land often leads to "non-grain conversion".

At the same time, food security has become even more important. Traditionally, safeguarding food security meant ensuring smooth grain supply. But with China's population set to decline, and given the rise in the aging population and change in people's dietary habits, the demand for grains too will decline steadily. Growth, therefore, will mainly come from feed grains, supplemented by the industrial use of grains.

Today, food security is no longer just a matter of grain security, but a more broadly defined food security which includes securing the supply of fruits, vegetables and meat. Correspondingly, the management of non-grain cultivable land should go beyond the traditional "grain-based" security to include nutrition and health security, environmental sustainability and common prosperity by using a big food approach.

First, the priority of cultivable land use should be to ensure regular supply of vegetables, fruits, meat, aquatic products and other types of foods while securing the supply of staples, and better meeting the increasingly diversified food consumption needs of the people through production diversification.

Basic farmlands and high-standard farmlands should be used to increase grain production, especially rice, wheat and corn production. Also, large-scale mechanization, irrigation and connectivity should be promoted, so farmers can earn a decent income by growing grains.

But no matter what type of crop farmers produce, cultivable land should not be used for other purposes nor should soil properties be changed, while measures should be taken to ensure cultivable land can be used to grow food grains in times of emergency.

Second, both domestic and foreign resources should be used in an all-round way using multiple channels to increase the diversity and resilience of food supply. It is also necessary to promote diverse dietary habits among the people for both health and environmental reasons by, for instance, helping lower the demand for red meat and thereby feed grains, and correspondingly reduce import dependence.

To better protect the ecological environment, food production should be boosted by not only increasing cultivable land resources but also using all land resources, including grasslands, forests, water bodies and alternative protein resources. There is also a need to make rational use of the global market and reduce the gap between domestic food supply and demand through diversified and moderate imports. From the perspective of comparative advantage and trade, importing land-intensive food is more beneficial to China than importing labor-intensive non-food products.

And third, more policies should be implemented to increase the income of people engaged in agriculture and encourage all kinds of entities to help increase food production. And new policy priorities should include supporting professional farmers, developing moderate-scale operations, upgrading agricultural technology and extending the value chains.

（本文系中文简单翻译，完整版请参照英文原文；翻译者：成思敏）

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