耕地保护制度的转型与对策研究 ——构建以经济激励为核心的耕地保护

STUDY ON THE TRANSFORMATION AND COUNTERMEASURES OF CULTIVATED LAND PROTECTION SYSTEM ———CONSTRUCTION OF THE INCENTIVE SYSTEM OF PROTECTION OF CULTIVATED LAND

关键词:  耕地保护 行政手段 经济激励

Key words:  farmland protection  administrative means  economic incentive

摘要:

传统的行政命令式耕地保护模式过分依赖行政力量推动，僵硬死板的制度无法应对灵活多变的市 场，且耕地保护制度在某些地方执行中出现偏差，中央政府保护耕地的政令在与市场、农民、地方政府磨 合中产生了一系列现实问题。严格的耕地保护政策虽然在一定程度上遏制了耕地流失，但并未根本扭转我 国耕地数量减少。耕地质量下降的严峻形势，耕地保护效果欠佳，急需向以经济激励为核心的耕地保护制 度转型。通过构建市场化的建设用地指标交易、深化农村土地产权制度改革、构建粮食补贴成本社会分摊 机制和建立基本农田保护补偿制度等手段，调动耕地保护中各方主体维护自己耕地权利的热情，解决耕地 保护的外部性问题，降低耕地保护成本，建立耕地保护长效机制，完成土地要素由计划配置向市场配置的 转变，保证经济运行和土地资源双重可持续发展，实现耕地保护的目标。

Abstract:

Traditional mode of administrative imperative farmland protection is too dependent on administrative power to adapt the flexible market，and the guiding ideology of land protection system has a little wrong tendency in local government resulting in a lots of problems among central government， market， farmers， and local govern- ments. The protection policy some extent curbs the arable land loss，but has not been reversed the situation of the decrease in the cultivated lands. Therefore， the cultivated land protection policy needs to be reformed to the eco- nomic incentive of arable land protection system. Then， it put forward some countermeasures， such as construction of marketization construction land trading system，deepening the reform of the rural land property rights system， building the cost social sharing mechanism and farmland compensation system to stimulate farmer's passions on the protection of cultivated land， solving the problem of externalities of cultivated land protection， reducing the cost， establishing long-term effective mechanism of cultivated land protection，completing the land elements transforma- tion from planning allocation to market allocation，and ensuring the economic operation and land resources sustain- able development to realize the goal of protecting arable land.