依据政策范式理论，结合中央政府政策发布脉络以及高标准农田建设目标定位的演变，以1988年国务院决定设立土地开发建设基金为政策起点，将高标准农田建设政策变迁历程划分为初步探索、转型发展、规范实施和全面建设等四个阶段，并分析其特征，同时构建“政策问题-政策目标-政策工具”的分析框架探讨其内在逻辑。结果表明，高标准农田建设政策变迁与国家整体发展进程之间存在显著的耦合关联与协同演进特征，政策问题从人地矛盾向产需结构性矛盾转变，政策目标从农业增效向农业高质量发展转变，政策工具从动员群众向激励社会转变，最终实现了政策绩效由强基扩面到提质赋能的转变。

Based on the policy paradigm theory, combined with the release context of the central government policies and the evolution of the target orientation of high-standard farmland construction, the characteristics of the policy evolution process of high-standard farmland construction have been analyzed, with the State Council’s land development and construction fund in 1988 taken as the starting point. The evolution of high-standard farmland construction policy is divided into four stages: initial exploration, transitional development, standardized implementation, and comprehensive construction. Additionally, an analytical framework of “policy problems-policy objectives-policy tools” has been constructed to explore its internal logic. The results show that there exists a significant coupling correlation and synergistic evolution between the evolution of high-standard farmland construction policy and the overall national development process. The policy focus has shifted from addressing the human-land contradiction to tackling the structural contradiction between production and demand; the policy objectives have transformed from boosting agricultural efficiency to pursuing high-quality agricultural development; and the policy instruments have transitioned from mobilizing the public to incentivizing societal participation. Ultimately, all these shifts result in the transformation in policy performance from consolidating foundations and expanding scale to improving quality and enhancing capacity.

F323.211

湖南省农业农村厅项目（JHD-CG-2025-088）；湖南省研究生科研创新项目资助（CX20240677）