耕地“非粮化”管控及其补偿的法治化  

Rule of law for the regulation and compensation of"non-grain conversion"of cultivated land

作　　者：房昀玮 FANG Yun-wei(Research Department of Political and Legal Education,Party School of the Central Committee of C.P.C(National Academy of Governance),Beijing 100091,China)

机构地区：[1]中央党校/国家行政学院政治和法律教研部,北京100091

出　　处：《自然资源学报》2025年第3期767-785,共19页Journal of Natural Resources

基　　金：国家社会科学基金项目(20VHJ002)。

摘　　要：《中华人民共和国粮食安全保障法》规定了耕地种植用途管控制度及其法律责任,体现法律强化耕地“非粮化”管控的导向。为了推动“非粮化”管控的法治化进程,有必要完善“非粮化”管控的理论和法律体系,明确管控内涵,分析管控正当性,明晰管控限度,优化管控补偿。狭义的“非粮化”管控是对“粮改非”以及“非耕地化”行为的禁止或限制性管制。“非粮化”管控限制耕地权利人自主经营权具有正当性,但这一限制应当把握限度,即“粮改非”禁止性管控限定在粮食生产功能区内,“非耕地化”禁止性管控限定在永久基本农田内,高标准农田视情况动态调整,一般耕地则限制“非耕地化”。政府应对管控给耕地所有权人、承包经营权人和经营权人带来的机会损失进行补偿。研究结果可为“非粮化”管控立法的完善提供参考。The Food Security Law of the PCR stipulates the system of regulating the planting structure of cultivated land and its legal responsibilities,reflecting the legal guidance of strengthening the control of"non-grain conversion"of cultivated land and ensuring food security in China.In order to promote the legalization process of"non-grain conversion"regulation,it is necessary to improve the theoretical and legal system of"non-grain conversion"regulation by illustrating the meaning of the regulation,analyzing the legitimacy of the control,clarifying its limits and improving compensation mechanism for the regulation.Regulation of"non-grain conversion"of cultivated land can be narrowly defined as the prohibitive or restrictive control of"grain to non-grain conversion"and"non-cultivated-land conversion"of cultivated land.The control of"non-grain conversion"of cultivated land for land social obligation against specific economic and social backgrounds is justified in restricting the autonomous cultivation rights of cultivated land rights holders,but this restriction should be limited to certain areas.That is,the prohibition of"grain to non-grain conversion"should be limited to the grain production functional zone.The ban on"non-cultivated-land conversion"or"non-edible-crop conversion"restriction should be confined to permanent basic farmland.The regulation on the high standard farmland can be adjusted according to different situations.While the general cultivated land apart from the permanent basic farmland should be restricted only by"non-cultivated-land conversion".In view of the theory of natural resource rights restriction,the government should compensate for the opportunity losses caused to cultivated land owners,cultivated land contracted management rights holders,and cultivated land management rights holders through direct and indirect means.The regulation is supervised and implemented by the natural resources authority through the spatial planning system,and the implementation and compensation of the control are u

关 键 词：种植用途管控 土地社会义务 比例原则 粮食生产功能区 直接补偿 

分 类 号：D922.4[政治法律—法学]