作　者：夏沁
关键词：耕地种植用途管控制度；土地用途管制；粮食安全保障；耕地保护；农村土地承包
摘　要：

从形成逻辑来看，耕地种植用途管控制度实质上是管控理念、管控对象和管控手段更加精细化的结果。这决定了所涉法规政策的多元化，以及相关调整规则和适用规范的复杂化、碎片化以及分散化，亟须通过体系化整合来解决“谁来管控”“管控什么”“如何管控”的问题。在主体层面，应当明确耕地管理公权力机关、耕地所有权人以及耕地使用权人三类基本主体，形成权责分明、协同共治的管控机制；在内容层面，应当从耕地利用优先序和种植作物优先序两个维度，系统把握种植用途管控制度的核心内容，并将其统一在国土空间用途管制之中；在措施层面，应当综合运用法律责任、自治性救济和补贴奖励等差异化手段，构建管制、管理、管护三位一体的管控体系，从而在规范层面实现对耕地种植用途管控制度的具体适用。

 

 

The Formulation Logic and Application Pathways of The Regulation and Control System over the Use of Farmland

Xia Qin（Central South University）

Abstract In terms of its formulation logic, the regulation and control system over the use of farmland (hereafter the control system) is essentially the outcome of ever-refined regulatory concepts, entities under supervision, and control measures. This determines the diversification of relevant laws and policies, as well as the complication, fragmentation and decentralization of related rules adjustment and applicable norms, which necessitates a systematic integration to address the issues of "who will control", "what to control" and "how to control". At the subject level, it is essential to clarify the three basic types of entities: public authority agencies for farmland management, farmland owners and farmland users so as to establish a control mechanism of coordinated co-governance with clearly defined rights and responsibilities. At the content level, the core elements of the control system should be systematically understood from the dimensions of farmland use priori‐ ty and crop planting priority and integrated into the overall regulation of the use of territorial space. In terms of control measures, differentiated approaches such as legal liability, self-governance-based remedies and subsidies and incentives should be comprehensively applied to construct a three-in-one control system of regulation, management and maintenance, thereby making the control system applicable in specific situations in terms of regulations.

Key words the regulation and control system over the use of farmland; land use control; food security guarantee; farmland protection; rural land contracting practices

 

■    作者简介  夏  沁，中南大学法学院副教授，湖南 长沙 410083。

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