休养生息制度背景下的耕地保护转型研究

doi:10.18402/resci.2019.01.02

摘要/Abstract

摘要：

新形势下,国家开始实施耕地草原河湖休养生息规划,以及耕地数量、质量、生态“三位一体”的保护提升工作。但是与之配套的耕地保护制度却明显滞后,严重影响耕地保护工作的推进。本文从休养生息的要义解析、目前国内耕地保护制度存在的问题以及国际耕地保护制度的演变经验等三个方面分析了耕地保护制度的现实脉搏所在。并从耕地的时空格局、耕地质量、耕地安全与激励机制等四个层面研究耕地保护转型的体制机制,构建了耕地保护转型总体框架;从生态整合与文化发展的前瞻性视野,构建了耕地永续发展生态格局路径框架。对于完善当前我国耕地保护制度,适应实际工作的实施,促使我国实现以生态文明为导向的耕地保护制度的总体目标具有参考意义。

关键词: 土地利用政策, 休养生息, 耕地保护, 轮作休耕, 生态补偿, 生态系统, 空间, 格局

Abstract:

China has implemented the most stringent cropland protection system in the world with remarkable results. On the background of the new era, the government has initiated a implementation plan for the rehabilitating of cultivated land, grassland, rivers and lakes, as well as the protection and improvement of the "trinity" of the quantity, quality, and ecology of cropland. However, the supporting cropland system is obviously lagging, which seriously affects the promotion of cropland protection. This paper analyzes the realistic pulse of the protection system of cropland from the following aspects: the analysis of the rehabilitation concept, the problems such as the inconsistency of basic data in the system of cultivated land protection in China, the unscientific system of occupation and compensation, and the failure to establish a spatial planning system for cultivated land and the evolution of the protection system of international farm land. We also characterize the institutional mechanism of the transformation of cropland protection from four aspects: the temporal and spatial pattern, the quality, the security, and the incentive mechanism of farm land. It is the time-space pattern of “one line, one belt, three districts, and six spaces,” the quality management of refined farmland, the incentive mechanism of cultivated land security protection, ecological compensation, and ecological cultural cognition based on Living Cropland Index. From the forward-looking vision of ecological integration and cultural development, the framework of the ecological pattern of sustainable development of farm land has been constructed. It has a significant reference to improve the current farm land protection system in China, to adapt to the implementation of practical work, and to promote to the overall goal of ecological civilization-oriented cropland protection system in China.

Key words: land use policy, rehabilitate, the protection of cropland, rotation fallow, eco-compensation, ecosystem, spatial, distribution

吴宇哲, 许智钇. 休养生息制度背景下的耕地保护转型研究[J]. 资源科学, 2019, 41(1): 9-22.

Yuzhe WU, Zhiyi XU. Study on the transformation of cropland protection under the background of rehabilitation system[J]. Resources Science, 2019, 41(1): 9-22.

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转型战略	转型对象	转型地区	转型内容	转型方式
耕地时空	跨国界、跨区域、跨流域,时间无期限	国家领土、领空、领海、国际合作租借或购买地	国土空间规划、修养生息规划、乡村振兴规划	空间立法、多规耦合、统一大平台管控、大数据支撑、智慧化运营
耕地质量	国标2017定义的耕地,核心是永久性基本农田	全国范围	轮作休耕、复耕、修复治理、退耕,耕地生产力、生命力双提升	耕地生物多样性保护、自我修复能力提升、耕地生境控制
耕地安全	国标2017定义的耕地	全国范围	三区三线控制、分类分级保护,定性定量保护	刚性+弹性管控、城乡增减挂钩、规划饮食结构、“饭碗端在自己手里”
激励机制	区域补偿、流域补偿、生态系统补偿、资源开发补偿、国际补偿;奖罚并重	全国范围内逐步试点推广,一路一带沿线、跨省流域之间、行政辖区之内等	山水林田湖草海等生态系统提供的服务;矿业开发、土地复垦、植被修复,退耕、污染治理、人口迁移、种植结构、温室气体排放等	多边协议下的全球购买;区域或双边协议下的补偿;全球、区域和国家之间的市场交易;财政转移支付;地方政府协调;国家（公共）补偿财政转移支付;生态补偿基金;企业与个人参与受益者付费;破坏者惩罚;开发者负担;监管奖罚同平台

分区		区域范围
优化发展区	东北区	黑龙江、吉林、辽宁、内蒙古东部
	黄淮海区	北京、天津、河北中南部、河南、山东、安徽、江苏北部
	长江中下游区	江西、浙江、上海、江苏南部、安徽中南部、湖北、湖南大部
	华南区	福建、广东、海南
适度发展区	西北及长城沿线区	新疆、宁夏、甘肃大部、山西、陕西中北部、内蒙古中西部、河北北部
适度发展区	西南区	广西、贵州、重庆、陕西南部、四川东部、云南大部、湖北、湖南西部
保护发展区	青藏区	西藏、青海、甘肃藏区、四川西部、云南西北部
保护发展区	海洋渔业区	我国管辖海域

分区	区域范围
水田耕作空间	长江中下游区	江西、浙江、上海、江苏南部、安徽中南部、湖北、湖南大部
	华南区	福建、广东、海南
	西南区	广西、贵州、重庆、陕西南部、四川东部、云南大部、湖北、湖南西部
旱田耕作空间	东北区	黑龙江、吉林、辽宁、内蒙古东部
	黄淮海区	北京、天津、河北中南部、河南、山东、安徽、江苏北部
	西北及长城沿线区	新疆、宁夏、甘肃大部、山西、陕西中北部、内蒙古中西部、河北北部
农牧交错耕作空间	蒙甘青宁	胡焕庸线两侧,内蒙古中东部、甘肃藏区、四川西部、云南西北部、河北西北部、陕西北部、宁夏南部、湖北北部
游放牧高原耕作空间	藏甘青	西藏大部、甘肃南部
山牧季移耕作空间	藏甘青云	西藏大部、甘肃南部、青海大部、云南西南部
绿洲农业耕作空间	新	新疆中、西、南部、内蒙古中西部局部