关于耕地保护的研究
【摘要】 耕地是人类粮食的重要生产基地,是广大农民赖以生存的最基本的物质基础,关系到一个国家的食物安全和社会稳定,具有不可替代的作用。然而,随着我国改革开放的日益深入,社会经济飞速增长,各项建设不可避免地占用,并将继续占用大量土地,尤其是优质耕地,致使大量优质耕地不断流失,耕地总体质量不断下降,我国的人地矛盾越来越突出,这就需要加强对耕地保护制度的研究。本文以新制度经济学、土地经济学及其他相关学科的理论和方法为基础,采用微观分析和宏观分析、定性分析和定量分析、历史分析和逻辑分析、规范分析和实证分析相结合的方法,对新背景下我国耕地保护制度问题进行了深入的研究和分析。党和国家对耕地问题高度重视,通过修订后的新《土地管理法》提出了要在中国实现耕地总量动态平衡的战略目标,并制定了基本农田保护区、土地用途管制、占用耕地补偿制度等耕地保护措施。而随着中国加入WTO带来经济的新一轮增长,耕地保护工作面临更大压力。在各项耕地保护政策的实施过程中,其实际绩效却并不理想,不仅耕地数量仍然在不断减少,而且耕地质量也在不断下降。这主要是由于在政策的实施过程中,耕地总量动态平衡片面强调数量的平衡、土地用途管制制度不全面、权威性未充分体现、耕地保护动态监测不及时与执法监督工作不力。造成这些问题的原因是耕地保护法制不健全、耕地保护政策本身不够完善、耕地保护政策执行不力以及公众参与耕地保护力度不够。在以往的研究中,人们往往重视前三个因素。但是本文通过分析发现,由于传统政治文化的制约、制度化尚存有缺失、市民社会发育不成熟、公民与政府部门在某种程度上缺乏互信等因素,使得公众参与耕地保护的力度不够,是使得我国耕地保护政策效果不佳的主要原因。在我国,土地国有政策的实施,使得耕地的保护目前主要依靠政府的力量,而政府的力量总是有限的,这就需要公众参与到耕地保护中来。在遵循公平、告知、效率和持续性的原则之下,公众参与耕地保护制度需要从制度和技术两个层面建立公众参与耕地保护的运行机制体系。在具体的运行中,根据公众参与耕地保护过程的不同阶段,可将公众参与耕地保护过程分为公众教育、公众意识和公众参与三个阶段。其中,参与式耕地保护是政府解决耕地保护问题的一种新方法,是对以政府为中心的“命令—控制”政策的转变,政府授权给市民和其他的利益相关者,使其在计划和政策的决策过程中扮演一个重要的角色。本文的创新之处主要是在于把公众参与理论引入到耕地保护制度之中。本文探讨了在耕地保护过程中,由于公众参与不足所导致的耕地保护利益缺失,在公众参与耕地保护的四项原则基础之上,提出了公众参与耕地保护的运行机制和运行过程,以加强对我国耕地的保护,确保我国的耕地安全和粮食安全

【Abstract】 Arable land, which is the food production base of humanbeings and the most basic material foundation that the farmers depend upon for survival, matters a nation’s food security and social stability, and plays an irreplaceable role. However, with the development of our reform and openning, with the fast growth of social economy, the construct inevitably have occupied,and will occupy lots of alable land, especially high-quality land. In result, large number of high-quality land have been lost, the quality of land has kept on decreasing, and the problems between people and land have been more and more outstanding. All of these call for us to make further research on farmland protection system.The article is based on the theories and methods of neo-institutional economics, land economics and other related subjects, using the combination methods of micro-analysis and macro-analysis, qualitative analysis and quantitative analysis, history analysis and logical analysis, normative analysis and positive analysis, makes a in-depth study on farmland protection in our country under the latest background. Our nation pay a great attenton on arable land problems. By revised edition of Land Administration Law, they raised a strategic target to realize dynamic balance of total cultivated land in China, and drew up mesures to protect arable land, such as basic farmland protection areas ,land use control, compensation on occupied land.With a new cycle of economic increasing resulting from China’s entry into WTO, the work of protecting land is facing more pressure. During the implementing of land protection measures, its performance in fact was not very good, and both the amount and the quality of land are continually decreasing. This mainly because the balance of quantity is always one-sided highlighted, land use control system is not comprehensive and its authority is not fully embodied, dynamic monitor to land protection is behind time, and oversight of law enforcement is not effective. The reasons for these problems is the unsound arable land protection legal system, imperfect arable land protection policy, insufficient arable land protection policy implementation and not enough public participation in arable land protection. In previous studies, people tended to attach importance to the first three factors. However, by analysis, this paper found that because of the constraints of traditional political culture, lack of institutionalization, immature development of civil society, and lack of mutual trust between citizens and government, public participation in land protection is not enough, which is the main reason for the poor performance of land protection policy.In China, the implementation of state-owned land policy makes the protection mainly depend on government. However,the government's strength is limited, so that it requires public participation in the protection of cultivated land. Followed at the principles of fairness, inform, efficiency and sustainability, public participation in the farmland protection requires to set up a operation mechanism of public participation at both levels including system and technique. During operations, the process of public participation in the protection of arable land can be divided into three stages: public education, public awareness and public participation, in accordance with the different stages in public participation process. Among them, the participatory protection is a new method for government to solve the protection problems, and is a transformation of "command - control" policy, in which government is the center. Government authorized to the public and other stakeholders, who are made to play an important role on the policy planning and decision-making process.The innovation of this article is to put public participation theory into farmland protection. This paper discusses the loss of benefits on land protection resulting from lack of public participation at the course of the arable land protection. Based on the four principles of public participation in protection of cultivated land, we propose the operation mechanism and process of public participation in farmland protection, in purpose of enhancing China's cultivated land protection to ensure the safety of our country's arable land and food security. 

【关键词】 耕地保护制度; 公众参与; 土地用途管制; 耕地保护政策
【Key words】 arable land protection system; public participation; land use control; arable land protection policy0
  关于耕地保护的研究

摘要 5-7
ABSTRACT 7-8
前言 11-15
第一章 导论 15-24
    第一节 我国耕地保护的紧迫性 15-19
        一、人地矛盾突出 15-17
        二、非农建设对耕地的侵占 17-19
    第二节 公众参与耕地保护的重要性 19-24
        一、公众参与的概念 19-21
        二、公众参与耕地保护的必要性 21-23
        三、公众参与耕地保护的意义 23-24
第二章 我国耕地保护的主要制度 24-37
    第一节 耕地保护的非正式制度 24-26
        一、乡土社会意识和观念 24-25
        二、官本位意识和集权主义观念 25-26
    第二节 耕地保护的正式制度 26-30
        一、基本农田保护 26-27
        二、耕地占补平衡 27-28
        三、土地用途管制 28-29
        四、耕地经营权制度 29-30
    第三节 我国耕地保护政策法律体系 30-34
        一、我国耕地保护法律体系的形成过程 30-32
        二、耕地保护相关政策法律 32-34
    第四节 我国耕地保护制度的实施效果 34-37
第三章 我国耕地保护制度存在的主要问题及原因分析 37-45
    第一节 我国现行耕地保护制度实施中存在的问题 37-39
        一、耕地总量动态平衡片面强调数量的平衡 37-38
        二、土地用途管制制度不全面 38
        三、耕地保护动态监测不及时与执法监督工作不力 38-39
    第二节 我国耕地保护制度实施效果不佳的原因分析 39-45
        一、耕地保护法制不健全 39-40
        二、耕地保护政策本身不够完善 40-43
        三、公众参与力度不够 43-45
第四章 关于完善耕地保护制度的思考 45-57
    第一节 完善耕地保护制度的一般措施 45-49
        一、进一步完善耕地保护法律制度 45-47
        二、进一步完善耕地保护政策体系 47-49
    第二节 建立健全公众参与耕地保护制度 49-57
        一、公众参与耕地保护原则 49-51
        二、公众参与耕地保护的运行机制分析 51-52
        三、公众参与耕地保护过程 52-53
        四、推动农民参与耕地保护 53-55
        五、落实公众参与制度的配套措施 55-57
参考文献 57-61
致谢 61-62
个人简历 62
发表的学术论文 62