我国耕地发展权制度的反思与创新

通过梳理耕地保护与非农化配置制度的4个阶段历程，可以发现：我国耕地发展权制度经历了产权从缺失到确定，再到建立起总量控制下的计划命令的配置机制，再到当前朝着经济措施的配置机制转变的发展过程。当前，作为新增耕地发展权的市场交易机制——浙江指标交易、重庆地票交易、城乡建设用地增减挂钩等机制改进了耕地的空间配置效率与公平状况，作为现存耕地的发展权的价值补偿机制——成都耕地保护基金机制改进了耕地的产业间配置效率与公平状况。然而，现有制度创新依然存在耕地发展权种类设置不完全、产权归属不明晰、权能实现不完善等问题。为此，应该从种类设置、产权归属和权能实现等方面进一步清晰界定耕地发展权，并构建相应的市场交易或财税等配置机制，最终使相关经济主体既有机会在耕地保护中获得补偿，亦可在耕地非农化中获得收益，从而诱使正确的经济行为，实现耕地保护与非农化的最优均衡。

Reflection and Innovation on Cultivated Land Development Rights System in China

Systemic analyzed the 4 historical phases of protection and non-agricultural transformation allocation system on cultivated land development in China, this paper concludes that: cultivated land development rights system undergoes a process from property rights insufficiency to establishment of property rights; then from plan command configuration mechanism to configuration mechanism of economic measures. Now, as new cultivated land market exchange mechanism, such as Zhejiang index trading, Chongqing dipiao trading and pothook of city construction land increase and rural residential land decrease, these market trade system improves spatial efficiency and fairness of cultivated land protection and non-agricultural configuration; and Chengdu cultivated land protection fund is the compensation mechanism of existing cultivated land development rights, which improve efficiency and fairness of cultivated land protection and non-agricultural configuration. However, there still exist issues such as incomplete classification, unclear property rights, etc. Thus, we should further classify cultivated land development rights on type setting, property ownership, right implementation and establish corresponding allocation mechanism, thus helping economic subject take reasonable protection behavior and achieve the optimal objective of cultivated land resource allocation.