耕地“三位一体”保护体系构建与制度路径

The System Construction and Institutional Path of"Trinity Protection"of Cultivated Land

耕地“三位一体”保护能够保障“大食物观”下食物生产与食物安全,夯实新时代农业现代化的建设基础,为美丽乡村建设提供重要空间保障,是助推乡村振兴内生动力增长的“助燃剂”。构建耕地“三位一体”保护的三维体系,其价值维度在于推动乡村产业兴旺、生活富裕、生态宜居;其内容维度在于全面发挥耕地的生产、生活、生态多功能;其实践维度在于切实激发农民保护耕地意愿并将其外化于行。从政府视角出发,耕地保护需以多维保护为思路,优化土地利用规划制度、土地用途管制制度、耕地总量控制与占补平衡制度、基本农田制度的质量提升与生态保护功能;积极总结试点经验,将轮作休耕制度化,全国推广;切实落实土壤污染治理与耕地修复制度,提升耕地质量与生态功能。从农民视角考虑,应当纠正概括地要求农民承担耕地保护义务的认识偏差,通过建立耕地保护地役权制度,将耕地多元保护内容通过公平合理的补偿与农民生产活动紧密结合在一起,实现利用中保护,保护中利用。

The"Trinity protection"of cultivated land can ensure food production and food safety under the""Greater Food"approach,consolidate the foundation of agricultural modernization in the new era,provide important spatial guarantee for the construction of beautiful villages,and is the"accelerant"that boosts the growth of endogenous power for rural revitalization.The value dimension to construct a three-dimensional system of the"Trinity protection"of cultivated land,is to promote the prosperity of rural industry,rich life and ecological livability;Its content dimension is to give full play to the production,living and ecological functions of cultivated land;The practical dimension is to stimulate farmers'willingness to protect cultivated land and externalize it.From the perspective of the government,it can optimize the quality protection and ecological protection functions of land use planning system,land use control system,total cultivated land control and compensation balance system,and basic farmland system;Through actively summarizing the experience of the pilot project,the government shall institutionalize the practice rotation and fallow,and popularize it nationwide;To improve the quality and ecological function of farmland,the government shall implement the system of soil pollution control and farmland restoration.From the perspective of farmers,the cognitive bias that generally requires farmers to undertake the obligation of farmland protection shall be corrected.Through the establishment of farmland protection easement system,the multiple protection contents of cultivated land is closely combined with farmers'production activities via fair and reasonable compensation,so as to realize the protection in use and the utilization in protection.