耕地发展权制度构建研究

研究目的：探求与耕地非农化、非粮化用途管制相适应的耕地权利人市场化补偿机制，为耕地保护法建立公平、长效耕地补偿制度提供参考。研究方法：规范分析法、比较分析法。研究结果：我国不同地区经济发展程度与耕地保护责任承担出现了错位，并且随着耕地用途管制的进一步强化，耕地保护财政补偿明显不足。立法上应当建立以耕地发展权为基础的耕地保护补偿制度，耕地发展权是耕地非农建设和非粮种植的权利，属新型用益物权，由耕地所有权人和用益物权人享有。应建立耕地发展权银行，推动耕地发展权转移，发展权受让人不仅要支付新增指标（限额）交易的费用，还应支付以所在地区指标（限额）交易价格为标准的费用，用以补偿既有耕地权利人。研究结论：耕地的非农化、非粮化严格用途管制，是对耕地权利人耕地发展权的限制，应以耕地发展权转移建立与耕地用途严格管制相适应的耕地补偿制度，以保障地区公平发展，提高耕地保护积极性。

Study on Institutional Construction of Cultivated Land Development Right

The purposes of this paper are to explore a market-oriented compensation mechanism for cultivated land right holders consistent with the strict use control of cultivated land, and to establish a fair and long-term compensation system for cultivated land protection under Cultivated Land Protection Law. The research methods of normative analysis and comparative analysis are used. The research results show that the underdeveloped areas in China bear increasingly heavy responsibility for cultivated land protection, and the current financial compensation driven fails to provide a legitimate basis for the stricter cultivated land use control under Cultivated Land Protection Law. The cultivated land compensation system based on the cultivated land development right should be included in the legislation. It is essential to establish the cultivated land development right system in the form of usufructuary right, which covers the right to use the cultivated land for non-grain-growing or for development and construction. The first step is to entitle the right holders to the cultivated land development right, and then, the development right transfer system of cultivated land can be set up through the cultivated land development right bank. The income of the transfer should be reasonably distributed between the land owner and the land usufructuary owners. In conclusion, strict use control of non-agriculture and non-grain utilization of cultivated land restrains land development right. Therefore, the compensation system of cultivated land should be established based on cultivated land development right transfer to align with the strict use control system, to ensure equal regional development and active actions of cultivated land protection.