四、未來展望與政策主張
IV. Prospects and Policies

當(dāng)前，中國糧食連年豐收、庫存充裕、供應(yīng)充足、市場穩(wěn)定，糧食安全形勢持續(xù)向好。展望未來，中國有條件、有能力、有信心依靠自身力量筑牢國家糧食安全防線。國家糧食安全保障政策體系基本成型，全面實(shí)施國家糧食安全戰(zhàn)略，依靠自己保口糧，集中國內(nèi)資源保重點(diǎn)，使糧食之基更牢靠、發(fā)展之基更深厚、社會之基更穩(wěn)定。農(nóng)業(yè)供給側(cè)結(jié)構(gòu)性改革尚有很大空間，糧食科技進(jìn)步、單產(chǎn)提高、減少損失浪費(fèi)、利用非糧食食物等方面還有較大潛力可供挖掘。充足的糧食儲備可以保障糧食市場供應(yīng)和市場基本穩(wěn)定，現(xiàn)代化的糧食倉儲物流體系可以防止出現(xiàn)區(qū)域性階段性糧食供給緊張問題，市場機(jī)制充分發(fā)揮作用能夠解決品種結(jié)構(gòu)矛盾。
China has recently enjoyed a run of good harvests. There are adequate grain supplies and reserves, and a stable grain market, which are indicators of increasing food security. Looking to the future, China has the conditions, capabilities and confidence to enhance food security relying on its own efforts. A national system of food security guarantee policies is in place. China's food strategy in the new era consists of ensuring security of food through food self-sufficiency, pooling domestic resources to ensure key links in food security, and securing food supply as a foundation for national development and social stability. There is plenty of space for supply-side structural reform in China's agriculture industry; there is plenty of room for progress in China's agro-technology, in terms of increasing per unit area yield, reducing food waste, and developing non-grain foods. Adequate grain reserves help ensure market supply and a basically stable market; a modernized grain storage and logistics system helps prevent regional or provisional food supply crises; market mechanisms in full play help improve the structure of grain varieties.

從中長期看，中國的糧食產(chǎn)需仍將維持緊平衡態(tài)勢，確保國家糧食安全這根弦一刻也不能放松。從需求形勢看，隨著經(jīng)濟(jì)社會發(fā)展，人均口糧消費(fèi)將穩(wěn)中略降，飼料和工業(yè)轉(zhuǎn)化用糧消費(fèi)繼續(xù)增加，糧食消費(fèi)總量剛性增長，糧食消費(fèi)結(jié)構(gòu)不斷升級。從生產(chǎn)形勢看，農(nóng)業(yè)生產(chǎn)成本仍在攀升，資源環(huán)境承載能力趨緊，農(nóng)業(yè)基礎(chǔ)設(shè)施相對薄弱，抗災(zāi)減災(zāi)能力有待提升，在確保綠色發(fā)展和資源永續(xù)利用的同時(shí)，穩(wěn)定發(fā)展糧食生產(chǎn)壓力較大。從流通形勢看，糧食生產(chǎn)將繼續(xù)向核心產(chǎn)區(qū)集中，跨區(qū)域糧食流通量將進(jìn)一步增加，糧食市場大幅波動的風(fēng)險(xiǎn)依然存在。
In the medium to long term, China's grain production and demand will remain closely aligned, which means China must not slacken its efforts to ensure food security. Per capita grain consumption and demand will drop slightly with social and economic development; the consumption of grain as feed for livestock and grain used for industrial purposes will continue to rise; total grain consumption will increase and pursue higher quality. In terms of grain production, agricultural costs are still rising, and resource and environmental carrying capacity (RECC) is broaching its limit. Agricultural infrastructure is comparatively weak, and capacity for disaster prevention and relief must be improved. China will find itself under considerable pressure to maintain steady grain production while ensuring green development and sustainable resource use. In terms of grain circulation, grain production will continue to be concentrated in core production areas. Transregional grain flows will increase, and there is still the risk of dramatic fluctuations in the grain market.

展望世界糧食安全形勢，國際糧農(nóng)機(jī)構(gòu)全球糧食安全治理效果逐步顯現(xiàn)，各國促進(jìn)國際糧食市場有序流通、維護(hù)世界糧食市場總體穩(wěn)定的愿望增強(qiáng)，貧困缺糧國家糧食生產(chǎn)得到發(fā)展，能夠減輕國際市場波動對國內(nèi)市場帶來的不利影響，為中國和世界糧食安全營造良好環(huán)境。與此同時(shí)，當(dāng)今世界糧食安全挑戰(zhàn)依然嚴(yán)峻，仍有8億多饑餓人口，國際糧食貿(mào)易面臨著保護(hù)主義和單邊主義的干擾，不穩(wěn)定因素增加，實(shí)現(xiàn)相關(guān)可持續(xù)發(fā)展目標(biāo)任重道遠(yuǎn)。
In global terms, international institutions for food and agriculture have achieved outcomes in improving global food security governance. All countries have an increasing will to facilitate orderly circulation in the international food market and overall stability. Progress has been made in grain production in low-income food-deficit countries, which will mitigate the negative impact of international market fluctuations upon domestic markets, and create a sound environment for China's and for global food security.At the same time, today's world is still facing severe food security challenges. There are still over 800 million people suffering from hunger, while international food trade is being disrupted by protectionism and unilateralism, and showing increasing instability. These challenges mean that the world has a long way to go in reaching its sustainable development goals.

立足國內(nèi)，放眼全球，中國將繼續(xù)堅(jiān)定不移地走中國特色糧食安全之路，全面貫徹新發(fā)展理念，全面實(shí)施國家糧食安全戰(zhàn)略和鄉(xiāng)村振興戰(zhàn)略，全面落實(shí)“藏糧于地、藏糧于技”戰(zhàn)略，推動從糧食生產(chǎn)大國向糧食產(chǎn)業(yè)強(qiáng)國邁進(jìn)，把飯碗牢牢端在自己手上，在確保國家糧食安全的同時(shí)，與世界各國攜手應(yīng)對全球饑餓問題，繼續(xù)在南南合作框架下為其他發(fā)展中國家提供力所能及的幫助，共同推進(jìn)全球糧食事業(yè)健康發(fā)展。
In view of domestic and global food security, China will forge ahead along its own path. Pursuing a new development philosophy, China will implement its national strategies for food security and rural vitalization through sustainable farmland use and agricultural technology innovation to increase farmland productivity. China will advance from a large grain producer to a food industry power, holding firm its "rice bowl". While ensuring domestic food security, China will join the global fight against hunger. China will continue to provide assistance to the best of its ability to other developing countries within the framework of South-South cooperation, and promote the sound development of the global food industry.

（一）提高糧食生產(chǎn)能力
1. Enhancing food productivity

——堅(jiān)守耕地保護(hù)紅線，節(jié)約和高效利用水資源。到2020年，落實(shí)12436萬公頃耕地保有量、10307萬公頃永久基本農(nóng)田、4072萬公頃建設(shè)用地總規(guī)模約束性指標(biāo)，確保建成5333萬公頃高標(biāo)準(zhǔn)農(nóng)田，全面完成糧食生產(chǎn)功能區(qū)和重要農(nóng)產(chǎn)品生產(chǎn)保護(hù)區(qū)建設(shè)，糧食種植面積穩(wěn)定在1.1億公頃以上，糧食綜合生產(chǎn)能力穩(wěn)定在6億噸以上。不斷提高耕地質(zhì)量，到2022年，確保建成6667萬公頃高標(biāo)準(zhǔn)農(nóng)田。到2035年，糧食種植面積保持總體穩(wěn)定。加快推進(jìn)節(jié)水供水重大水利工程建設(shè)，不斷完善農(nóng)田水利設(shè)施，提高水資源利用效率。
- Keeping to the red line for the protection of cultivated land and saving and utilizing water resources efficiently. By 2020, China will implement the following mandatory indexes and achieve the following targets:

-124 million ha of cultivated land,

-103 million ha of permanent basic farmland,

-no more than 40.7 million ha of land for construction,

-53.3 million ha of high-standard farmland,

-complete functional areas for grain production and protected areas for the production of important agricultural products,

-maintain a grain planting area of above 110 million ha, and

-maintain a comprehensive grain production capacity of above 600 million tons.

China will continue to improve farmland quality. By 2022, it will complete the construction of 66.67 million ha of high-standard farmland, and by 2035, it will keep its grain planting area generally steady. It will implement major hydro construction projects for water conservation and supply, improve farmland hydro facilities, and increase water resource utilization efficiency.

——推進(jìn)種植結(jié)構(gòu)調(diào)整，增加綠色優(yōu)質(zhì)糧油產(chǎn)品供給。穩(wěn)定谷物種植面積，因地制宜發(fā)展薯類、豆類、雜糧等作物。大力發(fā)展強(qiáng)筋弱筋小麥、優(yōu)質(zhì)稻谷、青貯及專用玉米、高油高蛋白大豆等，通過優(yōu)質(zhì)優(yōu)價(jià)促進(jìn)農(nóng)民增收。繼續(xù)實(shí)施優(yōu)質(zhì)糧食工程和“中國好糧油”行動計(jì)劃，服務(wù)綠色農(nóng)業(yè)發(fā)展和“健康中國”建設(shè)，大力增加綠色優(yōu)質(zhì)糧油產(chǎn)品供給。
- Adjusting the crop planting structure and increasing the supply of green and high-quality grain and edible oil. China will keep its grain planting area steady, and develop tuber crops, legume crops, and miscellaneous grain crops in accordance with local conditions. Crop varieties will include strong gluten wheat, weak gluten wheat, high-quality rice, silage corn, special corn, and high-oleic and high-protein soybean. Farmers' incomes will increase by selling high-quality produce at higher prices. China will continue implementing the Quality Food Project and the Healthy Grain and Edible Oil Action Plan, facilitate green agricultural development and the Healthy China initiative, and increase the supply of green and high-quality grain and edible oil.

——創(chuàng)新體制機(jī)制，提高糧食生產(chǎn)組織化程度。推動農(nóng)村承包土地所有權(quán)、承包權(quán)、經(jīng)營權(quán)“三權(quán)分置”有序?qū)嵤?，培育新型?jīng)營主體和服務(wù)主體，發(fā)展土地流轉(zhuǎn)型和服務(wù)引領(lǐng)型規(guī)模經(jīng)營，促進(jìn)小規(guī)模、分散經(jīng)營向適度規(guī)模、主體多元轉(zhuǎn)變。加強(qiáng)新型職業(yè)農(nóng)民培訓(xùn)，支持農(nóng)民通過股份制、股份合作制等多種形式參與規(guī)模化、產(chǎn)業(yè)化經(jīng)營。完善針對小農(nóng)戶的扶持政策，把小農(nóng)戶引入現(xiàn)代農(nóng)業(yè)發(fā)展軌道。
- Upgrading institutions and mechanisms for better organized grain production. China will separate the ownership, contracting right and management right of rural contracted land in an orderly manner. It will foster new types of operating and service entities, promote moderate-scale management oriented by land transfer and service, and transform small-scale, decentralized management into moderate-scale, multi-entity management. A new generation of professional farmers will benefit from better technical training, who will be encouraged to participate in large-scale, industrialized management through shareholding and shareholding cooperative systems. China will improve policies to support small agricultural households, and help them adapt to modern agricultural development.

——增強(qiáng)農(nóng)業(yè)科技創(chuàng)新能力，提高糧食生產(chǎn)水平。強(qiáng)化農(nóng)業(yè)基礎(chǔ)研究，全面升級節(jié)水灌溉、農(nóng)機(jī)裝備、農(nóng)藥研制、肥料開發(fā)、加工儲運(yùn)、循環(huán)農(nóng)業(yè)等應(yīng)用技術(shù)。強(qiáng)化種業(yè)科技創(chuàng)新，突破種質(zhì)創(chuàng)新、新品種選育、高效繁育和加工流通等核心技術(shù)。強(qiáng)化技術(shù)集成創(chuàng)新，攻克影響作物單產(chǎn)提高、品質(zhì)提升、效益增加、環(huán)境改善的技術(shù)瓶頸。推進(jìn)農(nóng)業(yè)機(jī)械化和農(nóng)機(jī)裝備產(chǎn)業(yè)轉(zhuǎn)型升級，依靠科技手段和農(nóng)藝農(nóng)技應(yīng)用，增加糧食供給，提升糧食品質(zhì)。
- Enhancing agro-technological innovation and improving grain production capacity. China will promote basic agricultural research and upgrade technologies in water conservation and irritation, and focus on agricultural machinery, pesticide R&D, fertilizer development, the processing, storage and transport of grain, and circular agriculture. China will continue to innovate in the seed industry, making breakthroughs in core technologies such as germ plasm improvement, and the creation, efficient cultivation, processing, and circulation of new crop varieties. China will enhance integrated technological innovation, breaking logjams in improving per unit area yield, crop quality, economic benefits, and the environment. China will promote mechanization in agriculture and transform and upgrade the agricultural machinery industry, increasing grain supply and improving grain quality through the application of agronomy and agro-techniques.

（二）加強(qiáng)儲備應(yīng)急管理
2. Improving the management of emergency grain reserves

——加強(qiáng)糧食儲備管理。以服務(wù)宏觀調(diào)控、調(diào)節(jié)穩(wěn)定市場、應(yīng)對突發(fā)事件和提升國家安全能力為目標(biāo)，科學(xué)確定糧食儲備功能和規(guī)模，改革完善糧食儲備管理體制，健全糧食儲備運(yùn)行機(jī)制，強(qiáng)化內(nèi)控管理和外部監(jiān)督，加快構(gòu)建更高層次、更高質(zhì)量、更有效率、更可持續(xù)的糧食安全保障體系。
- Improving the management of grain reserves. To facilitate macroregulation, a steady market, sound emergency response, and national security, China will apply scientific rationale in designing the functions and scale of grain reserves. It will reform and complete its management mechanisms, improve its operating mechanisms, and strengthen internal management and external supervision. The goal is to build a food security guarantee system which is more advanced, effective, efficient and sustainable.

——健全糧食應(yīng)急保供體系。優(yōu)化糧食應(yīng)急供應(yīng)、配送、加工網(wǎng)點(diǎn)的布局，建成一批規(guī)范化糧油配送中心、糧油應(yīng)急加工企業(yè)和應(yīng)急供應(yīng)網(wǎng)點(diǎn)，形成布局合理、設(shè)施完備、運(yùn)轉(zhuǎn)高效、保障有力的糧食應(yīng)急供應(yīng)保障體系，強(qiáng)化應(yīng)急處置功能，提升應(yīng)急供應(yīng)保障水平。
- Improving the emergency grain supply guarantee system. China will establish a network for the supply, delivery and processing of grain for emergency use. A number of standardized delivery centers, emergency processing enterprises, and emergency supply centers for grain and edible oil. China will form an emergency grain supply guarantee system with well-distributed shops and complete equipment that runs efficiently and provides solid support. China will enhance emergency response functions and guarantee emergency supplies.

——完善糧情預(yù)警監(jiān)測體系。強(qiáng)化糧油市場預(yù)警機(jī)制，加快建立健全涵蓋國家、省、市、縣四級的監(jiān)測預(yù)警體系，依托信息技術(shù)準(zhǔn)確把握國內(nèi)外糧食形勢，健全糧油市場監(jiān)測網(wǎng)絡(luò)，提供及時(shí)、準(zhǔn)確、全面的市場信息服務(wù)，防范市場異常波動風(fēng)險(xiǎn)。
- Improving the grain monitoring and pre-warning system. China will improve the pre-warning mechanisms for the grain and edible oil market by establishing a national monitoring and pre-warning system at the state, provincial, municipal and county levels. China will accurately follow domestic and international grain developments through IT application. China will improve the monitoring network for the grain and edible oil market, to provide timely, accurate and all-faceted market information services, and to guard against abnormal market fluctuations.

——倡導(dǎo)節(jié)糧減損。大力開展宣傳教育活動，增強(qiáng)愛糧節(jié)糧意識，抑制不合理消費(fèi)需求，減少“餐桌上的浪費(fèi)”，形成科學(xué)消費(fèi)、健康消費(fèi)、文明消費(fèi)的良好風(fēng)尚。普及推廣經(jīng)濟(jì)、適用、防蟲、防霉儲糧新裝具、新技術(shù)，幫助農(nóng)民減少產(chǎn)后損失。示范推廣綠色、環(huán)保、智能糧食儲藏設(shè)施設(shè)備，鼓勵適度加工，提高物流效率，減少糧食流通環(huán)節(jié)的損失損耗。
- Encouraging grain conservation and reducing losses. China will launch publicity and education activities to enhance public awareness of food conservation, contain unnecessary consumption, reduce food waste, and to foster rational, healthy and civilized consumption. China will popularize new equipment and technologies for grain storage that are economical, effective, insect-resistant and mildew-proof, to reduce farmers' postproduction losses. China will popularize green, eco-friendly and smart equipment and facilities for grain storage, encourage moderate processing, raise logistics efficiency, and reduce circulation losses and spoilage.

（三）建設(shè)現(xiàn)代糧食流通體系
3. Building a modern grain circulation system

——加快建設(shè)現(xiàn)代糧食市場體系。堅(jiān)持市場化改革取向與保護(hù)農(nóng)民利益并重，以確?？诩Z絕對安全、防止“谷賤傷農(nóng)”為底線，適應(yīng)世界貿(mào)易組織規(guī)則，積極穩(wěn)妥推進(jìn)糧食收儲制度和價(jià)格形成機(jī)制改革，充分發(fā)揮市場配置糧食資源的決定性作用，更好發(fā)揮政府作用，使糧價(jià)更好地反映市場供求，激發(fā)市場活力，促進(jìn)供需平衡，加快形成統(tǒng)一開放、競爭有序的現(xiàn)代糧食市場體系。
- Stepping up efforts to build a modern grain market system. China places equal importance on market-oriented reform and protecting farmers' interests. Upholding its red line of absolute security of staple food and zero risk to farmers from low grain prices, China will adapt itself to the WTO rules, actively and steadily reform its grain purchase and storage systems and pricing mechanisms, giving full play to the decisive role of market in allocating grain resources, and letting the government play its role better. Through these measures, China hopes that grain prices can better reflect market demand and supply, that market vitality will be boosted, and a balance between demand and supply can be achieved, to form a unified and open modern grain market system with orderly competition.

——切實(shí)加強(qiáng)糧食倉儲物流建設(shè)。圍繞優(yōu)化布局、調(diào)整結(jié)構(gòu)、提升功能，鼓勵合理改建、擴(kuò)建和新建糧食倉儲物流設(shè)施，持續(xù)推進(jìn)糧庫智能化升級，增強(qiáng)安全運(yùn)行保障能力。優(yōu)化大型糧食物流園區(qū)布局，構(gòu)建一批糧食進(jìn)出口物流通道和重要節(jié)點(diǎn)，提升糧食物流重點(diǎn)線路流通效率。
- Improving grain storage and logistics. Focusing on improving distribution, structure and functions, China will encourage rational reconstruction, expansion and construction of grain storage and logistics facilities, to advance the smart management of grain depots and guarantee their safe operation. China will improve the distribution of large grain logistics parks, and build logistics passageways and major junctions for grain imports and exports, to increase efficient circulation on major grain logistics routes.

——著力構(gòu)建現(xiàn)代化糧食產(chǎn)業(yè)體系。堅(jiān)持高質(zhì)量發(fā)展要求，倡導(dǎo)推廣糧食循環(huán)經(jīng)濟(jì)模式。發(fā)展糧食精深加工與轉(zhuǎn)化，大力推進(jìn)主食產(chǎn)業(yè)化，不斷增加綠色優(yōu)質(zhì)和特色糧油產(chǎn)品供給。著力推動優(yōu)糧優(yōu)產(chǎn)、優(yōu)糧優(yōu)購、優(yōu)糧優(yōu)儲、優(yōu)糧優(yōu)加、優(yōu)糧優(yōu)銷，加快構(gòu)建現(xiàn)代化糧食產(chǎn)業(yè)體系。
- Building a modernized grain industry system. Pursuing high-quality development, China encourages a circular food economy. China will develop deep and intensive processing and conversion of grain, industrialize the processing of staple food, and increase the supply of green, high-quality and specialty grains and edible oils. China will boost the production of high-quality grain, purchase it at higher prices, and prioritize its storage, processing and sales. China will move faster to build a modernized grain industry system.

（四）積極維護(hù)世界糧食安全
4. Safeguarding global food security

——繼續(xù)深入推進(jìn)南南合作，為實(shí)現(xiàn)聯(lián)合國2030年可持續(xù)發(fā)展目標(biāo)中的“消除饑餓，實(shí)現(xiàn)糧食安全，改善營養(yǎng)狀況和促進(jìn)可持續(xù)農(nóng)業(yè)”作出積極努力。
- Advancing South-South cooperation. China will work hard to achieve the goals set in the United Nations 2030 Agenda for Sustainable Development: "End hunger, achieve food security and improved nutrition and promote sustainable agriculture."

——深化與共建“一帶一路”國家的糧食經(jīng)貿(mào)合作關(guān)系，共同打造國際糧食合作新平臺，促進(jìn)沿線國家的農(nóng)業(yè)資源要素有序自由流動、市場深度融合。
- Enhancing grain trade cooperation with the countries along the routes of the Belt and Road. Together, we will establish a new international platform for grain cooperation, to facilitate the free and orderly flow of agricultural resources and deep integration of markets in the Belt and Road countries.

——積極支持糧食企業(yè)“走出去”“引進(jìn)來”，開展國際合作，合理利用國際國內(nèi)兩個市場、兩種資源。優(yōu)化糧食進(jìn)口渠道，拓展多元化糧食來源市場，促進(jìn)全球范圍內(nèi)糧食資源合理高效配置。
- Supporting Chinese grain enterprises in "going global" and "bringing in". China will make rational use of both domestic and international markets and resources. China will improve grain import channels, expand diversified food resource markets, and promote rational and efficient allocation of global grain resources.

——積極參與全球和區(qū)域糧食安全治理，積極探索國際糧食合作新模式，開展全方位、高水平糧食對外合作，維護(hù)世界貿(mào)易組織規(guī)則，促進(jìn)形成更加安全、穩(wěn)定、合理的國際糧食安全新局面，更好地維護(hù)世界糧食安全。
- Engaging in global and regional food security governance. China will explore new modes of international food cooperation, and conduct multifaceted and advanced cooperation with other countries. Observing WTO rules, China will do all it can to make international food security more secure, stable and rational in order to better safeguard food security of our world.

結(jié)束語
Conclusion

凡益之道，與時(shí)偕行。進(jìn)入新時(shí)代，中國人民更加關(guān)注食物的營養(yǎng)與健康，既要“吃得飽”，更要“吃得好”“吃得放心”。初心不忘，人民至上。中國將在習(xí)近平新時(shí)代中國特色社會主義思想指引下，始終以人民對美好生活的向往為奮斗目標(biāo)，牢固樹立總體國家安全觀，深入實(shí)施國家糧食安全戰(zhàn)略和鄉(xiāng)村振興戰(zhàn)略，進(jìn)一步加強(qiáng)糧食生產(chǎn)能力、儲備能力、流通能力建設(shè)，推動糧食產(chǎn)業(yè)高質(zhì)量發(fā)展，提高國家糧食安全保障能力，為人民獲得更多福祉奠定堅(jiān)實(shí)根基。
There is an ancient Chinese teaching: All good principles should adapt to changing times to remain relevant. In the new era, the Chinese people are more concerned with their nutrition and health, from having enough food to eat to eating well and safely. The people's needs are the highest responsibility of the Chinese government. In line with Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, China will see that the people are able to realize their expectations for a better life. Pursuing a holistic approach to national security, China will further implement its national strategies for food security and rural vitalization. As a foundation for providing greater well-being for the people, China will increase food productivity, boost grain reserves, and improve grain circulation, to facilitate the high-quality development of its grain industries and strengthen the food security guarantee.

確保糧食安全，中國與世界命運(yùn)休戚與共。中國將繼續(xù)遵循開放包容、平等互利、合作共贏的原則，努力構(gòu)建糧食對外開放新格局，與世界各國一道，加強(qiáng)合作，共同發(fā)展，為維護(hù)世界糧食安全作出不懈努力，為推動構(gòu)建人類命運(yùn)共同體作出新的貢獻(xiàn)。
China has allied itself with the global effort to ensure food security. Under the principle of openness, inclusiveness, equality, mutual benefit, and win-win cooperation, China will be embracing a new situation of opening up with regard to food issues. In pursuit of common development, China is enhancing cooperation with all other countries to safeguard global food security, as a contribution to building a global community of shared future.