农村“三变”改革对耕地保护的挑战及制度构造

On the Challenge and System Structure of Rural“Three Changes”Reform to Cultivated I and Protection

农村“资源变资产、资金变股金、农民变股东”(简称“三变”改革)作为农村集体产权制度改革的一种典型模式,在长期内对耕地保护确有助益,但不能否认短期内两者间存在张力的现实。从类型化的角度看,永久基本农田“非粮化”、过度使用耕地资源以及超标准建设农业设施是“三变”改革进程中有关耕地保护的三类典型问题。结合“三变”改革的实践历程,如何在“三变”改革进程中更好地保护耕地,可从明确土地经营权用益物权的法律性质、加快推进集体产权制度改革中的标准化建设以及赋予土地督察机构部分执法权三个维度切入,以达至盘活集体资产、发展农村经济和保护耕地三者之间的均衡协调。

As a typieal wwde uf lual culleelive piuperly iights systelm refuln,the 1efu1m of“three changes”is beneficial to cultivated land protection in a long period of time,but we can not deny the reality that there is tension between the two in the short term.From the perspective of categorization,the“non-food conversion”of permanent basie farmland,the excessive use of cultivated land resources and the construction of agricultural facilities beyond the standard are three typical problems related to cultivated land protection in the process of“three changes”reform.Combined with the practice of“three changes”reform,how to protect cultivated land in the process of“three changes”reform more efficiently?We should clarify the legal nature of the usufruct of land management rights,accelerate the standardization construction of collective property rights system reform,and give land law enforcement agencies certain enforcement power,so as to achieve the balance between activating collective assets,developing rural economy and protecting cultivated land.