耕地种植用途管控的法理阐释、实践困境与制度构造  

The Legal Interpretation,Practical Dilemma and System Construction of Cultivated Land Cultivation Use Control

作　　者：李冰强[1] 杨越[1] Li Bingqiang;Yang Yue

机构地区：[1]山西大学法学院

出　　处：《中国不动产法研究》2024年第2期221-238,316,317,共20页Research on Real Estate Law of China

基　　金：国家社科基金一般项目“国土空间用途管制制度研究”(20BFX159)的阶段性成果。

摘　　要：耕地种植用途管控的价值目标是维护国家粮食安全,同时兼顾耕地财产权益、生态利益等多元价值需求。构建耕地种植用途管控制度的关键在于协调国家耕地管制权与农业生产经营自主权的利益冲突。目前,耕地种植用途管控在法治保障方面主要存在耕地种植法律制度与管控的适配性不足、耕地种植调控手段与管控的针对性欠缺、耕地种植条件损害与司法救济的缺位等问题。对此,耕地种植用途管控的法治化路径要实现事前规范、事中调控、事后救济三个环节的全流程法治保障。立法制度层面应当重点建立耕地种植的分类管控制度、差别化的利益补偿制度、进出转用审批制度;行政调控层面要坚持政府管控和市场调节相结合的法治化手段,加强对耕地种植类型的引导和监管,建立耕地种粮的激励性补偿实施机制;司法救济层面要积极利用环境司法手段保障受损耕地生态恢复,为耕地非粮种植行为引发的耕地种植条件破坏提供救济路径。The value goal of cultivated land cultivation use control aims to maintain the grain security of our nation,at the same time,multiple value demands such as the property interest in cultivated land and ecological benefit are also taken into account.The key to establish the system of cultivated land use control is that coordinate the conflict between the national control and the right of cultivated land planting subject.At present,the main problems in the legal guarantee of cultivated land cultivation use control are the underfit of cultivated land cultivation legal system and control,the means of regulation and control lack pertinence,the ecological damage caused by non-grain cultivation and the absence of judicial relief.In this regard,the legal path of cultivated land cultivation use control should focus on the three parts of pre-regulation,in-process regulation and post-relief to realize the whole process of legal guarantee.At the level of legislative system,we should focus on the establishment of classified control system of cultivated land cultivation,differentiated benefit compensation system,and approval system of import and export conversion and so on.At the administrative control level,we should adhere to the legal means of combining government regulation and market regulation,strengthen the guidance and supervision of cultivated land planting types,and establish an incentive compensation implementation mechanism for cultivated land growing grain.At the judicial relief level,we should actively use environmental judicial means to repair the damaged cultivated land ecology,and provide relief paths for the cultivated land ecological destruction caused by non-grain planting behavior.

关 键 词：耕地种植 用途管控 非粮化 粮食安全 

分 类 号：D922.3[政治法律—法学]