改革开放40年来中国耕地保护政策演变及优化路径

The Evolution of Farmland Protection Policy and Optimization Path from 1978 to 2018

耕地保护是关系国计民生的头等大事,耕地保护政策在耕地保护中发挥着重要的保障作用。本文综合运用统计分析法和比较分析法对改革开放40年来中国耕地资源变化情况和耕地保护政策演变历程展开分析,探索耕地保护政策优化方向和路径。研究发现:改革开放40年来中国耕地数量阶段性增减交替,耕地质量下降明显;中国耕地保护政策演变过程可以以《土地管理法》的颁布、历次修订和《关于提升耕地保护水平全面加强耕地质量建设与管理的通知》的制定为关键节点,划分为概念性政策提出阶段、体系化政策探索阶段、体系化政策初建阶段、体系化政策完善阶段和"三位一体"政策强化阶段等5个阶段;在耕地保护政策演变过程中,耕地保护逐步实现了从政府意识到国家意志转变,从单一治标向体系治本转变,从政府主体向多元共治转变;耕地保护政策在体系完善、政策创新和执行到位等方面仍有改进的空间。对此,本文提出:耕地保护主体应从政府向农民转变,形成政府引导、农民主体和企业参与的耕地保护模式;推进耕地保护政策与利用政策有机统一;建立监测指标口径一致的耕地资源大数据管理平台;设立耕地保护专项基金。

Cultivated land protection matters to national well-being and people's livelihood. Farmland protection policies can play an important role in land protection. This article comprehensively uses statistical and comparative methods to analyze the change in cultivated land resources and the evolution of cultivated land protection policies. It finds that the evolution of farmland protection policies can be divided into five stages in the evolution of farmland protection policy, based on the issuance and revision of The Law of Land Administration and the formulation of the Notice on Improving the protection level and Enhancing Construction and Management Quality of Farmland. It has gradually achieved the transformation from government awareness to national will, from single solution to systematical cure, and from government to governance. However, the existing farmland protection policies still have room for improvement in system improvement, policy innovation and implementation in place. Four measures can be used to improve farmland protection policies. First, the main agents of farmland protection should be transformed from government to farmers. Second, it is necessary to unify farmland protection policies and utilization policies. Third, there is a need for establishing a modern digital platform to manage farmland resources. Last but not least, it would be effective to set up cultivated land protection fund.