粮食安全目标下《基本农田保护条例》的缺失与补救  

Deficiencies and Remedies of the Basic Farmland Protection Regulations under the Goal of Food Security

作　　者：王江[1] 唐艺芸 WANG Jiang;TANG Yiyun(Western Environmental Resources Legal Construction Research Center,Chongqing University,Chongqing 400045,China;Law School,Chongqing University,Chongqing 400045,China)

机构地区：[1]重庆大学西部环境资源法制建设研究中心,重庆400045 [2]重庆大学法学院,重庆400045

出　　处：《中国土地科学》2023年第2期43-50,共8页China Land Science

基　　金：国家社科基金重大项目“生态文明视野下自然资源资产产权法律制度研究”(21ZDA091);中央高校基本科研业务费项目人文社科专项“安全降碳的法律机制研究暨战略性关键矿产资源安全监管的法律研究”(2022CDJSKJC34)。

摘　　要：研究目的:在粮食安全目标引领下,审视现行《基本农田保护条例》的缺失,提出补救举措。研究方法:规范分析法和文献研究法。研究结果:为因应保障粮食安全战略的现实急盼,现行《基本农田保护条例》亟待修订。现行《基本农田保护条例》存在如下缺失:一是其目的条款在内容上存在偏误与缺失,无法充分承载保障粮食安全的法律初衷;二是其基础性法律概念未与粮食安全法律体系内的概念保持一致;三是其制度设计未能充分体现“特殊保护”的立法要求。研究结论:上述缺失亟需通过法律修订予以补救。具体举措包括:应以促进粮食生产为直接目的、以保障粮食安全为间接目的,增列生态可持续发展为间接目的,以此重构立法目的条款;应统一“永久基本农田”的规范表达,并据此统一话语体系;应废除永久基本农田的占补制度、确立村级“田长制”的特殊监管职责、建立与地力等级挂钩的梯度补贴制度,优化特殊保护的制度体系。The purposes of this paper are to examine the deficiencies of the existing Basic Farmland Protection Regulations(hereafter Regulations)and to propose remedial measures in the context of food security.The research methods include normative analysis and literature review.The results show that:to meet the urgent needs of food security strategy,the existing Regulations need to be revised.The existing Regulations has the following deficiencies:first,its purpose clause has errors and biases in content,which cannot fully reflect the original intention of the law to ensure food security;second,its basic legal concepts are not consistent with those in the legal system of food security;third,the system design fails to fully reflect the legislative requirements of“special protection”.In conclusion,the above deficiencies need to be remedied by law amendment.Specific measures include promoting food production as the direct purpose,ensuring food security as the indirect purpose,and adding ecological sustainable development as the indirect purpose,to reconstruct the legislative purpose clause.Moreover,the standard expression of“permanent basic farmland”should be unified,and the discourse system should be unified accordingly.The system of occupation and compensation of permanent basic farmland should be abolished.The special supervision responsibility of the“field head system”at the village level and the gradient subsidy system linked to the land soil fertility level should be established.The special protection system is expected to be optimized.

关 键 词：土地法学 粮食安全 耕地保护 永久基本农田 立法目的 

分 类 号：D922.3[政治法律—法学]