基本农田保护制度应优先于耕地总量动态平衡制度  

Basic Farmland Protection System should be Priority in Dynamic Balance System of Total Arable Land

作　　者：郭珍[1] 吴宇哲[1] 

机构地区：[1]浙江大学公共管理学院,浙江杭州310058

出　　处：《湖南财政经济学院学报》2016年第2期54-62,共9页Journal of Hunan University of Finance and Economics

基　　金：国家自然科学基金项目"主体功能区战略引导下的城市增长边界管理策略差异响应研究"(项目编号:71373231)

摘　　要：耕地是粮食生产的载体,是粮食安全的根本保障,耕地的数量与质量从根本上决定粮食的单产和总量水平。从制度设计上看,耕地总量动态平衡制度侧重于保护耕地数量,是发展性规划,基本农田保护制度重点保护耕地质量,是控制性规划,两种制度是互补的,两者互相配合能有效保护耕地。但在制度执行过程中,耕地总量动态乎衡制度一定程度上替代了基本农田保护制度,本应是控制性规划的基本农田保护变成了发展性规划,致使优质耕地不断被侵占,耕地质量没有得到有效保护。要实现耕地数量、质量、生态"三位一体"保护,应处理好各项制度之同的关系,将永久基本农田作为耕地保护的核心制度安排,实施严格的控制性规划;永久基本农田之外的基本农田进行分级保护,严格限制转用;同时弱化耕地总量动态平衡在耕地保护制度中的地位,将耕地总量动态平衡制度置于从属地位。Cultivated land is the carrier of grain production and the important guarantee of food security in China.The quantity and quality of cultivated land are closely related to national food security.From the system design point of view,dynamic balance system focuses on protecting the quantity of cultivated land and prime farmland zoning focuses on protecting the quality of cultivated land.Dynamic balance system belongs to the plan pattern of development and prime farmland zoning belongs to the plan pattern of control.The two complement each other can effectively protect the cultivated land.However,to a certain extent,prime farmland zoning has been replaced by dynamic balance system and prime farmland zoning has transformed into plan pattern of development in the implementation process,which leaded to high quality of cultivated land occupied and the quality of cultivated land has not been effectively protected.In order to protect the quantity,quality and ecosystem of cultivated land,we should deal with the relationship between the systems,such as arranging permanent prime farmland as the core institutional arrangements for cultivated land protection,practicing a system of grade protection on prime farmland to strictly limit prime farmland to construction land and weakening dynamic balance system.

关 键 词：耕地数量 耕地质量 发展性规划 控制性规划 永久基本农田 

分 类 号：F323.211[经济管理—产业经济] TU984[建筑科学—城市规划与设计]