耕地保护补偿制度的定位反思与规范重构  

Reflection and Reformation of the Positioning of Farmland Protection Compensation Mechanism

作　　者：李冰强[1] 张小康 LI Bingqiang;ZHANG Xiaokang(School of Law,Shanxi University,Taiyuan 030006,China)

机构地区：[1]山西大学法学院,山西太原030006

出　　处：《中国土地科学》2024年第3期10-17,70,共9页China Land Science

基　　金：国家社会科学基金一般项目“国土空间用途管制制度研究”(20BFX159);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)。

摘　　要：研究目的:探析耕地保护补偿制度的立法定位,准确把握耕地保护补偿制度的调整范畴,为正在制定的《耕地保护法》关于“国家建立耕地保护补偿制度”提供具体的立法建议。研究方法:规范分析法和制度目标分析法。研究结果:(1)耕地保护补偿制度在认识论层面,耕地权利设限与补偿的法权基础模糊;在本体论层面,耕地保护补偿的内涵外延尚存争议;在价值论层面,生态供益与增益的激励属性无从彰显。(2)耕地具有资源利益和生态利益一体两面共存的属性,《耕地保护法(草案)》相关条款仍是在“资源—管制”立法理念下的产物,存在显著构造缺陷。(3)以补偿目的为基准,该制度涵盖耕地资源存续补偿与耕地生态保护补偿;以补偿属性为基准,该制度包括耕地保护填平补偿与耕地保护奖励补助。研究结论:建议通过“一般规定+具体制度群”的立法模式在《耕地保护法》中完善耕地保护补偿制度,从而实现该制度维护粮食安全和生态安全的目标定位、价值导向和功能预设。The purposes of this study are to explore the goal orientation of farmland protection compensation system,to accurately grasp the adjustment scope of farmland protection compensation system,and to provide references for establishing a scientific farmland protection compensation system under the Farmland Protection Law.The research methods include normative analysis and institutional goal analysis.The results show that at the epistemological level,the jurisprudential basis for limiting farmland rights and compensation is blurred;at the ontological level,there are still controversies over the attributes of the complex category of farmland protection compensation;at the axiological level,the incentive attributes of ecological benefits and gains are not manifested.Farmland has the coexisting attributes of resource interests and ecological interests.The relevant clauses in the Draft Farmland Protection Law are still products under the legislative concept of“resources-regulation”with significant structural defects.With the purpose of compensation as the benchmark,the system covers the compensation for the continuation of farmland resources and the compensation for the ecological protection of farmland.With the attributes of compensation as the benchmark,the system includes compensation for farmland protection leveling and incentives and subsidies for farmland protection.In conclusion,it is recommended to embed the farmland protection compensation system in the Farmland Protection Law through the“general provisions+specific system group”model,to achieve the goal orientation,value guidance and functional preset of the system to maintain food security and ecological security.

关 键 词：耕地保护补偿 耕地资源存续补偿 耕地生态保护补偿 耕地发展权 生态价值 

分 类 号：D922.3[政治法律—法学]