“准征收”视域下永久基本农田划定的补偿性证成

Compensatory Certificate of Demarcation of Permanent Basic Farmland from the Perspective of“Inverse Condemnation”

研究目的:探究永久基本农田划定行为的行政法性质,为国家耕地保护和农民财产性权益保障之间寻求可行的平衡方案。研究方法:理论分析、法律规范分析、案例分析。研究结果:(1)在现行行政行为理论框架下,国土空间规划和永久基本农田划定行为存在性质上的混同;(2)现有的准征收识别体系忽略了“征收补偿一体性”要求,存在一定的缺陷;(3)目前的耕地保护补贴不足以达到填补财产损失的目的。研究结论:准征收的识别应在“征收补偿一体性”的框架之下确立内、外部复合标准,永久基本农田划定是土地用途管制的典型表现,符合准征收的标准。为此,必须推动永久基本农田的发展性权益市场化,按市场标准对集体土地所有人和承包人予以实质性补偿。

The purpose of this study is to explore the administrative law nature of the demarcation of permanent basic farmland,to seek a feasible balance between national farmland protection and the safeguarding of farmers’property rights.The research methods include theoretical analysis,interpretation of legal norms and case analysis.The results show that:1)under the current framework of administrative action theory,there is a confusion in nature between territorial space planning and the demarcation of permanent basic farmland.2)The existing inverse condemnation identification system overlooks the“unity of expropriation and compensation”requirement,and has certain defects.3)The current farmland protection subsidies are not sufficient to achieve the goal of compensating for property losses.In conclusion,the identification of inverse condemnation should be established under the framework of“unity of expropriation and compensation”with internal and external composite standards.The demarcation of permanent basic farmland is a typical manifestation of land use control,which meets the standards of inverse condemnation.Therefore,it is necessary to promote the marketization of developmental rights and interests of permanent basic farmland,and to provide substantial compensation to collective land owners and contractors according to market standards.