论耕地保护法中的惩罚性赔偿制度  

On the Punitive Damages Regime in China’s Legal System for Arable Land Protection

作　　者：刘玖林 LIU Jiulin(Law School of Chongqing University,Chongqing 400044,China)

机构地区：[1]重庆大学法学院,重庆400044

出　　处：《现代法学》2025年第1期25-40,共16页Modern Law Science

基　　金：国家社科基金青年项目“公私法交融视域下生态环境侵权惩罚性赔偿制度的解构与续造研究”(22CFX042)。

摘　　要：我国耕地保护存在耕地面积持续递减、地力严重退化、环境风险越发严峻等突出问题,其核心原因在于,违法成本过低、激励机制不足及制度体系逻辑失衡。《耕地保护法(草案)》(征求意见稿)第70条规定的惩罚性赔偿制度具有推进耕地损害赔偿均衡化、贯彻最严格耕地保护政策、构筑耕地保护多元共治机制的整合功能,是破解耕地保护实践困境的有效方案。但惩罚性赔偿非属常态责任形式,耕地侵权惩罚性赔偿制度的法律化应从主、客观方面作出严格限制。在责任构成方面,行为要件宜为违反法律规定而非违反国家规定,过错要件宜限于故意而不含重大过失,因果要件宜采证明责任正置而非倒置,结果要件宜限于造成严重后果而非情节严重。在数额认定方面,惩罚数额计算模式宜采单一倍率限制模式,惩罚基准应以受害人实际损失数额但不含精神损害赔偿金为据,惩罚倍数宜限定为二倍以下,量定因素可综合考虑罚款或罚金。China’s arable land protection is faced with significant challenges,including persistent decline in arable land area,severe degradation of soil fertility,and increasingly grave environmental risks,which principally stem from inadequate deterrence against violations of law,deficient incentive mechanisms and imbalance in institutional logic.The punitive damages regime stipulated under Article 70 of the Law of the People’s Republic of China on the Protection of Arable Land(Draft for Public Comment)serves as an effective solution for these dilemmas in arable land protection,which is integrated with functions that promote balanced compensation for arable land damage,implement the strictest arable land protection policies,and establish a diversified co-governance mechanism for arable land protection.However,given the exceptional nature of punitive damages as a liability instrument,the legalization of punitive damages necessitates stringent constraints on both objective and subjective dimensions.Regarding constitutive elements of liability,the behavior element should be restricted to statutory violations rather than administrative regulations;the fault requirement must be confined to intentional misconduct,excluding gross negligence;for the causation element,the normal standard of burden of proof,rather than the reversed standard,should be adopted(i.e.,the burden of proof should be placed with the plaintiff rather than defendant)and the result element should be limited to material harm rather than circumstantial severity.In quantifying damages,a single multiplier limitation model should be adopted;the damages baseline should reflect the actual loss suffered by the victim,excluding compensation for mental damage;the punitive multiplier should be capped at 200%of compensatory damages,and judicial discretion may incorporate administrative fines or criminal penalties as mitigating factors.

关 键 词：耕地保护法 惩罚性赔偿 土地管理法 法律责任 粮食安全 

分 类 号：DF45[政治法律—经济法学]