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从“隐性”到“显性”:论生态用地应作为我国土地基本类型的独立地位

From “implicit” to “explicit”: on the independent status of ecological land as a basic land type in China

  • 摘要: 在生态文明建设上升为国家战略的宏观背景下,生态用地作为维系国家生态安全、提供关键生态系统服务的空间载体,其法律地位缺失已成为制约系统性保护的根本性制度瓶颈。当前,土地分类体系将生态用地碎片化归入农用地、建设用地和未利用地,致使其在规划与管理中面临概念模糊、归类失当、权责交叉和价值湮没等多重困境。立足于国土空间治理现代化的内在要求,本研究从法理和实践角度论证将生态用地确立为独立基础地类的必要性,其不仅是落实“绿水青山就是金山银山”理念的制度回应,也是构建生态安全格局、实现“山水林田湖草沙生命共同体”整体保护的制度基础和核心机制。通过生态用地“显性化”具体体系化路径,以多维制度协同推动生态用地从“隐性”走向“显性”,筑牢国家生态安全的空间底线。

     

    Abstract: Under the macro-background of ecological civilization rising to a national strategy, ecological land serves as the spatial foundation for maintaining national ecological security and providing critical ecosystem services. However, the lack of its legal status has become a fundamental institutional bottleneck restricting systematic conservation. The current land classification system fragments ecological land into agricultural land, construction land, and unutilized land, which leads to multiple challenges in planning and management such as conceptual ambiguity, inappropriate categorization, overlapping rights and responsibilities, and the obliteration of its values. Based on the inherent requirements of the modernization of territorial space governance, this study demonstrates the necessity of establishing ecological land as an independent basic land type from both jurisprudential and practical perspectives. This move not only embodies the implementation of the "lucid waters and lush mountains are invaluable assets" concept but also serves as the institutional cornerstone for building an ecological security framework and achieving the holistic conservation of the "integrated ecosystem comprising mountains, rivers, forests, farmlands, lakes, and grasslands." By developing systematic approaches to formalize ecological land designation and fostering multi-dimensional institutional coordination, we can transform this previously implicit category into a clearly defined entity, thereby solidifying the spatial baseline for national ecological security.

     

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