新时期耕地保护规划的内在逻辑与战略构想  

The internal logic and strategic conception of cultivated land protection planning in the new period

作　　者：王世磊 金晓斌[1,2,3] 洪步庭 罗秀丽 刘晶 周寅康 WANG Shilei;JIN Xiaobin;HONG Buting;LUO Xiuli;LIU Jing;ZHOU Yinkang(School of Geography and Ocean Science,Nanjing University,Nanjing 210023,China;Key Laboratory of Coastal Zone Exploitation and Protection,Ministry of Natural Resources,Nanjing 210023,China;Jiangsu Provincial Land Consolidation and Ecological Restoration Engineering Research Center,Nanjing 210023,China;School of Public Policy and Management,China University of Mining and Technology,Xuzhou 221116,Jiangsu,China)

机构地区：[1]南京大学地理与海洋科学学院,南京210023 [2]自然资源部海岸带开发与保护重点实验室,南京210023 [3]江苏省国土整治与生态修复工程研究中心,南京210023 [4]中国矿业大学公共管理学院,徐州221116

出　　处：《地理研究》2025年第3期638-655,共18页Geographical Research

基　　金：国家自然科学基金项目(42271259、42371284、42201269);自然资源部海岸带开发与保护重点实验室开放基金项目(2023CZEPK03);江苏省社会科学基金项目(24EYB004)。

摘　　要：耕地保护规划作为新时期国土空间规划体系的重要专项规划,对深化耕地保护机制创新和管理实践具有重要意义。本文按照“趋势研判—内涵解析—问题诊断—路径优化”的逻辑主线,梳理耕地保护规划的支撑体系及其与相关规划之间的内在关联,在阐述耕地保护规划科学内涵基础上明晰其现实挑战和基本逻辑,进而提出耕地保护规划的战略框架和实施保障。主要结论如下:(1)耕地保护规划支撑体系以《土地管理法》为根本并兼顾耕地保护制度和政策演进过程,发展规划、国土规划和农业规划分别对耕地保护规划起到了战略引导、组织架构和建设方向的驱动作用。(2)耕地保护规划统筹了资源可持续利用和耕地综合生产能力的双重目标,资源结构冲突、作物结构冲突和功能结构冲突以及需求衍生逻辑、层级传导逻辑和效应耦合逻辑分别构成了耕地保护规划的现实挑战和基本遵循。(3)耕地保护规划战略框架的核心内容为空间协同—供需平衡—作物兼容的多维耦合以及自下而上和自上而下的传导路径,构建空间管控的建设机制、功能适配的调节机制和作物生产的优化机制是实现耕地资源利用和管理可持续性的关键环节。As an important special plan of the territorial space planning system in the new era,cultivated land protection planning is of great significance to deepen the innovation of cultivated land protection mechanism and management practice.According to the logical main line of"trend judgment-connotation analysis-problem diagnosis-path optimization",this paper combs the support system of cultivated land protection planning and its relationship with related planning,clarifies its realistic challenges and basic logic on the basis of expounding the scientific connotation of cultivated land protection planning,and then puts forward the strategic framework and implementation guarantee of cultivated land protection planning.The main conclusions are as follows:(1)Currently,the framework of cultivated land protection planning has evolved from an embedded component to an independent process.Cultivated land protection planning serves as a vital policy tool for the utilization,protection,development,and governance of cultivated land resources,established based on the“land management law”and the evolution of the cultivated land protection system and policies.Differences exist among development planning,territorial planning,and agricultural planning in their respective roles in shaping the mechanisms of cultivated land protection planning.These roles include providing strategic guidance,establishing organizational structures,and directing construction efforts.(2)Cultivated land protection planning,as a key component of territorial spatial planning in the new era,not only reflects the elemental guarantees and spatial governance inherent in land spatial planning but also incorporates the problem-driven and goal-guided characteristics unique to cultivated land protection.This approach establishes a comprehensive framework that considers planning forms,pathways,principles,tools,and goals,with the core objective of promoting the sustainable use of resources and enhancing the comprehensive production capacity of cultivated land.Resou

关 键 词：国土空间规划体系 耕地保护规划 形成机制 内在逻辑 战略框架 

分 类 号：F323.211[经济管理—产业经济]