论耕地保护用途管制的法权基础——以管制性征收和公共地役权的组合为路径  

On the Legal Basis of Use Control Cultivated in Farmland Protection——Take the Combination of Regulatory Expropriation and Public Easement as the Path

作　　者：王玉 吴昭军 Wang Yu;Wu Zhaojun

机构地区：[1]中国农业大学土地科学与技术学院

出　　处：《中国不动产法研究》2022年第1期53-67,共15页Research on Real Estate Law of China

基　　金：国家社会科学基金青年项目“农村土地权利运行中行政行为的民法意义研究”(20CFX040)的阶段性成果。

摘　　要：在法律上建立耕地保护用途管制的法权基础,进而对权利受限的农民进行经济补偿,实现公共利益和个人私益之间的平衡状态,是落实用途管制制度、保障我国粮食安全、提高农户种粮积极性的前提条件。管制性征收制度和公共地役权制度均可以通过不变更土地所有权,仅仅限制使用权的方式,对耕地进行用途管制,平衡公共利益和私人利益。管制性征收能够实现刚性的管制效果,但是强制色彩浓厚,无法课以承包农户一定的积极作为义务,例如种植粮食作物;公共地役权虽然在制度的柔性以及主体的平等性和参与度等方面较前者优越,但难以通过对现有法律进行解释而建立,需要依托特别法的规定正式确立该制度。通过对两种制度的优劣比较,在我国耕地保护中采取两种制度协同互补的组合方式更为合理,可以根据管制强度进行区分,对于永久基本农田适用管制性征收,对于一般耕地则适用公共地役权,从而对土地用途进行管制,并依此对土地权利人进行补偿。Establishing the legal basis of farmland protection and use control in law,then making economic compensation to farmers with limited rights and realizing the balance between public interests and personal interests are the preconditions for implementing the use control system,ensuring China’s food security and improving farmers’enthusiasm for growing grain.Both the regulatory expropriation system and the public easement system can regulate the use of farmland by not changing the land ownership and only restricting the use right,so as to balance the public interests and private interests.Regulatory expropriation can achieve rigid regulatory effect,but it has a strong sense of compulsion,which cannot make the contracted farmers undertake certain positive obligations,such as planting food crops;Although the public easement is superior to the former in the flexibility of the system and the equality and participation of the subject,it is difficult to establish through the interpretation of the existing law,and the system needs to be formally established by relying on the provisions of the special law.By comparing the advantages and disadvantages of the two systems,it is more reasonable to adopt the cooperative and complementary combination of the two systems in China’s farmland protection,which can be distinguished according to the control intensity.The regulatory expropriation is applicable to the permanent basic farmland,and the public easement is applicable to the general farmland,so as to limit the land use and compensate the land obligee accordingly.

关 键 词：管制性征收 公共地役权 永久基本农田 用途管制 

分 类 号：D923[政治法律—民商法学] D922.3[政治法律—法学]