Taking Y Town, J District, Z City, where more than 90% of the cultivated land is “non-grainization”, as a case, this paper studies the influence of policy fragmentation on the “non-grainization” of cultivated land and its countermeasures. The study shows that the land expropriation and demolition policy of “individual soldiers”, the grain subsidy policy of “weakening effectiveness” and the “contradictory” local industrial policy are all important factors affecting the “non-grainization” of cultivated land. It is suggested that from the holistic perspective, some countermeasures should be taken, such as constructing a holistic government administrative mechanism to restore the farmland system, changing the subsidy policy from “growing grain” to “harvesting grain”, and strengthening systematic governance to balance industrial development and cultivated land protection, so as to effectively solve the problem of “non-grainization” of cultivated land.