耕地“非粮化”治理的实践困境及法治进路

Practical Dilemma and Rule of Law Approach to the Governance of“Non-grain Conversion”of Cultivated Land

在保障粮食安全背景下,耕地“非粮化”成为耕地治理的重点。当下的耕地“非粮化”治理面临立法理念冲突、法律禁令模糊、行政执法失范及治理依据存忧等现实困境。耕地“非粮化”的基础是土地承包经营权,该权利的“物权”基因意味着“非粮化”属于经济自由权,对其干预应当采取设定法律义务方式,同时对行政机关执法活动进行法律授权。具体来说,在法律约束机制方面,要明确“非粮化”的权利本位、建立效益与安全价值冲突平衡机制、完整列举“非粮化”的义务负担;在激励补偿方面,构建以财政补贴或行政奖励为核心的粮食补偿机制;在执法机制方面,规范“非粮化”执法主体及权限配置,建立“非粮化”行政执法暂停机制,尝试构建“非粮化”行政速裁机制。

In the context of guaranteeing food security,the governance of“non-grain conversion”of cultivated land has become the focus of arable land protection.The current governance of“non-grain conversion”of cultivated land is characterized by such practical dilemmas as conflicting legislative concepts,ambiguous legal prohibitions,administrative law enforcement failures,and questions about the legitimacy of the basis of governance.The basis of arable land“non-grain conversion”is the land contract management right,the right of“property”gene means that“non-grain conversion”belongs to the right of economic freedom,and its intervention should take the setting of legal obligations.Intervention in this area should take the form of creating legal obligations,while at the same time providing legal authorization for administrative agencies to enforce the law.Specifically,in terms of legal constraints,it is necessary to clarify the rights-based nature of“non-grain conversion”,establish a mechanism to balance the conflicting values of efficiency and security,and make a complete list of the obligations of“non-grain conversion”;in terms of incentives and compensations,to construct a food compensation mechanism centered on financial subsidies or administrative incentives;in terms of law enforcement,to establish a mechanism to compensate for food.In terms of incentives and compensation,the construction of a food compensation mechanism centered on financial subsidies or administrative incentives;in terms of law enforcement mechanisms,to standardize the main body of law enforcement and the allocation of authority for“non-grain conversion”,establish a mechanism for suspending administrative law enforcement for“non-grain conversion”,and attempt to construct an administrative speedy dictation mechanism for“non-grain conversion”administrative speedy adjudication mechanism.