我公司專業編制耕地“進出平衡”方案，有意聯系13911268021 沈工
(一)何為耕地“進出平衡”
耕地“進出平衡”，即對一般耕地轉為園地、林地等其他農用地及鄉村道路、種植、畜禽養殖、水產養殖等農業設施建設用地的，要通過統籌園地、林地等其他農用地及農業設施建設用地恢復為耕地的方式，補足同等數量、質量的可以長期穩定利用的耕地。
（二）耕地“進出平衡”政策背景
耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)歷來受到黨(dang)中(zhong)(zhong)(zhong)央(yang)的(de)(de)高度(du)重視，1986年(nian)3月(yue)，中(zhong)(zhong)(zhong)共中(zhong)(zhong)(zhong)央(yang)?國(guo)(guo)務院(yuan)(yuan)印(yin)發(fa)《關于(yu)加(jia)(jia)強(qiang)(qiang)土地(di)(di)(di)管(guan)理(li)(li)制止亂占(zhan)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)的(de)(de)通(tong)知》（中(zhong)(zhong)(zhong)發(fa)〔1986〕7號(hao)，簡(jian)(jian)稱(cheng)中(zhong)(zhong)(zhong)發(fa)7號(hao)文）第(di)一(yi)次正式(shi)(shi)將耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)作(zuo)為我(wo)國(guo)(guo)的(de)(de)基本國(guo)(guo)策(ce)(ce)。1997年(nian)4月(yue)，中(zhong)(zhong)(zhong)共中(zhong)(zhong)(zhong)央(yang)?國(guo)(guo)務院(yuan)(yuan)印(yin)發(fa)《關于(yu)進(jin)(jin)一(yi)步加(jia)(jia)強(qiang)(qiang)土地(di)(di)(di)管(guan)理(li)(li)切實保(bao)(bao)(bao)(bao)(bao)護(hu)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)的(de)(de)通(tong)知》（中(zhong)(zhong)(zhong)發(fa)〔1997〕11號(hao)，簡(jian)(jian)稱(cheng)中(zhong)(zhong)(zhong)發(fa)11號(hao)文）進(jin)(jin)一(yi)步加(jia)(jia)大耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)力(li)度(du)，明(ming)確(que)保(bao)(bao)(bao)(bao)(bao)護(hu)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)就是保(bao)(bao)(bao)(bao)(bao)護(hu)我(wo)們的(de)(de)生(sheng)(sheng)命(ming)線，并建立(li)起(qi)以(yi)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)總(zong)量(liang)動態平衡(heng)(heng)和(he)土地(di)(di)(di)用途管(guan)制制度(du)為核心的(de)(de)土地(di)(di)(di)管(guan)理(li)(li)制度(du)體系(xi)。2017年(nian)，中(zhong)(zhong)(zhong)共中(zhong)(zhong)(zhong)央(yang)?國(guo)(guo)務院(yuan)(yuan)印(yin)發(fa)《關于(yu)加(jia)(jia)強(qiang)(qiang)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)和(he)改進(jin)(jin)占(zhan)補平衡(heng)(heng)的(de)(de)意見》（中(zhong)(zhong)(zhong)發(fa)〔2017〕4號(hao)，簡(jian)(jian)稱(cheng)中(zhong)(zhong)(zhong)發(fa)4號(hao)文）再(zai)次明(ming)確(que)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)的(de)(de)重要(yao)性，建立(li)數(shu)量(liang)、質量(liang)、生(sheng)(sheng)態“三位一(yi)體”的(de)(de)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)新(xin)(xin)格(ge)局。2021年(nian)新(xin)(xin)修訂的(de)(de)《土地(di)(di)(di)管(guan)理(li)(li)法實施條例》進(jin)(jin)一(yi)步落實加(jia)(jia)強(qiang)(qiang)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)、改進(jin)(jin)占(zhan)補平衡(heng)(heng)、制止耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)“非農化(hua)”、防止耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)“非糧化(hua)”等國(guo)(guo)家戰略決策(ce)(ce)。從第(di)一(yi)次正式(shi)(shi)將耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)列為我(wo)國(guo)(guo)的(de)(de)基本國(guo)(guo)策(ce)(ce)，到明(ming)確(que)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)是我(wo)們的(de)(de)生(sheng)(sheng)命(ming)線，再(zai)到建立(li)耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)新(xin)(xin)格(ge)局，國(guo)(guo)家為耕(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)保(bao)(bao)(bao)(bao)(bao)護(hu)工作(zuo)作(zuo)出了許多努力(li)，才使(shi)得(de)如今糧食安(an)全有保(bao)(bao)(bao)(bao)(bao)障，生(sheng)(sheng)態環境得(de)以(yi)改善，社會經濟(ji)穩定發(fa)展。
當前，國家已經制定了一系列關于耕(geng)(geng)(geng)(geng)地保護(hu)的政策條例，如實(shi)行占用耕(geng)(geng)(geng)(geng)地補(bu)償制度(du)、永(yong)久(jiu)基本農(nong)田保護(hu)制度(du)等，推進土地開發、復墾、整理，嚴格控制耕(geng)(geng)(geng)(geng)地“非農(nong)化”等工作，有效地緩解了耕(geng)(geng)(geng)(geng)地供(gong)需不(bu)匹(pi)配和耕(geng)(geng)(geng)(geng)地保護(hu)壓力較大等問題。但在嚴格的耕(geng)(geng)(geng)(geng)地保護(hu)制度(du)下，仍(reng)有一些地方改變耕(geng)(geng)(geng)(geng)地用途，破壞耕(geng)(geng)(geng)(geng)地耕(geng)(geng)(geng)(geng)作層，違(wei)(wei)法違(wei)(wei)規(gui)建設占用耕(geng)(geng)(geng)(geng)地，致使(shi)耕(geng)(geng)(geng)(geng)地數量(liang)不(bu)增反減。《第三次全國國土調(diao)查(cha)主要數據公報》（“三調(diao)”）顯示，我國共有耕(geng)(geng)(geng)(geng)地19.17億(yi)畝，不(bu)斷逼近18億(yi)畝耕(geng)(geng)(geng)(geng)地紅線(xian)，相比之(zhi)前的“二調(diao)”，10年間耕(geng)(geng)(geng)(geng)地減少了1.13億(yi)畝。
為(wei)(wei)(wei)此，2020年(nian)(nian)9月(yue)和(he)11月(yue)，國(guo)務院(yuan)辦(ban)公廳陸續印發(fa)(fa)了《關(guan)(guan)于(yu)(yu)堅決制止更(geng)“非(fei)農(nong)(nong)(nong)化”行為(wei)(wei)(wei)的(de)(de)通(tong)知(zhi)》（國(guo)辦(ban)發(fa)(fa)明電〔2020〕24號）和(he)《關(guan)(guan)于(yu)(yu)防止耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)“非(fei)糧化”穩定糧食(shi)生產的(de)(de)意見》（國(guo)辦(ban)發(fa)(fa)〔2020〕44號）；2021年(nian)(nian)中央(yang)農(nong)(nong)(nong)村工作(zuo)會議上，習近(jin)平總書記進一(yi)步強(qiang)調(diao)：“18億畝耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)必(bi)須實(shi)至名(ming)歸，農(nong)(nong)(nong)田就是農(nong)(nong)(nong)田，而且必(bi)須是良田”；2021年(nian)(nian)11月(yue)自(zi)然(ran)(ran)資源(yuan)部(bu)、農(nong)(nong)(nong)業(ye)農(nong)(nong)(nong)村部(bu)、國(guo)家林業(ye)和(he)草(cao)原(yuan)局聯(lian)合(he)發(fa)(fa)布了《關(guan)(guan)于(yu)(yu)開展2021年(nian)(nian)違法(fa)違規占用(yong)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)重點(dian)問題整(zheng)治的(de)(de)通(tong)知(zhi)》和(he)《關(guan)(guan)于(yu)(yu)嚴(yan)格(ge)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)用(yong)途(tu)(tu)管制有(you)關(guan)(guan)問題的(de)(de)通(tong)知(zhi)》（自(zi)然(ran)(ran)資發(fa)(fa)〔2021〕166號），提出(chu)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)“進出(chu)平衡”，要求(qiu)嚴(yan)格(ge)落實(shi)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)用(yong)途(tu)(tu)管制。耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)“進出(chu)平衡”作(zuo)為(wei)(wei)(wei)當(dang)前新(xin)出(chu)臺的(de)(de)一(yi)項耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)保(bao)護政策，是對(dui)植樹(shu)造(zao)(zao)綠、挖湖造(zao)(zao)景、農(nong)(nong)(nong)業(ye)結(jie)構調(diao)整(zheng)占用(yong)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)的(de)(de)補救措施(shi)，也(ye)是防止耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)減少的(de)(de)創新(xin)之舉。自(zi)然(ran)(ran)資發(fa)(fa)〔2021〕166號文中，要求(qiu)對(dui)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)轉為(wei)(wei)(wei)其(qi)(qi)他農(nong)(nong)(nong)用(yong)地(di)(di)(di)(di)(di)(di)及農(nong)(nong)(nong)業(ye)設(she)施(shi)建設(she)用(yong)地(di)(di)(di)(di)(di)(di)實(shi)行年(nian)(nian)度“進出(chu)”平衡，除國(guo)家安(an)排(pai)的(de)(de)生態退耕(geng)(geng)(geng)(geng)(geng)(geng)、自(zi)然(ran)(ran)災害損毀難以復耕(geng)(geng)(geng)(geng)(geng)(geng)、河湖水面自(zi)然(ran)(ran)擴大造(zao)(zao)成耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)永久淹沒等(deng)情形外(wai)，應當(dang)通(tong)過統(tong)籌林地(di)(di)(di)(di)(di)(di)、草(cao)?地(di)(di)(di)(di)(di)(di)、園地(di)(di)(di)(di)(di)(di)等(deng)其(qi)(qi)他農(nong)(nong)(nong)用(yong)地(di)(di)(di)(di)(di)(di)及農(nong)(nong)(nong)業(ye)設(she)施(shi)建設(she)用(yong)地(di)(di)(di)(di)(di)(di)整(zheng)治為(wei)(wei)(wei)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)等(deng)方式補足同等(deng)數量(liang)、質量(liang)的(de)(de)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)，嚴(yan)肅(su)處置違法(fa)違規占用(yong)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)問題，加(jia)強(qiang)對(dui)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)的(de)(de)保(bao)護，以確(que)保(bao)長期(qi)穩定利用(yong)的(de)(de)耕(geng)(geng)(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)不再減少。
（三）華靈四方專業編制耕地“進出平衡”項目實施方案,公司擁有測繪和土地規劃資格，可以完成耕地“進出平衡”項目實施方案。方案編制依據自然資源部、農業農村部、國家林業和草原局《關于嚴格耕地用途管制有關問題的通知》（自然資發[2021]166號）。
（1）方案編制目的
嚴格耕地用途管制，在現有非農業建設占用耕地實行“占補平衡”制度基礎上，對于農業結構調整、國土綠化和農業設施建設等將耕地轉為其他農用地實施年度“進出平衡”制度，通過統籌林地、草地、園地等其他農用地及農業設施建設用地整治為耕地等方式，補足同等數量、質量的可以長期穩定利用的耕地。
（2）方案編制任務
1、組織開展耕地“進出平衡”項目區調查與評價。調查項目區自然和經濟社會條件、土地利用現狀、土地權屬等基本情況，分析項目區耕地開墾的潛力和可行性。
2、組織編制耕地“進出平衡”項目實施方案。耕地“進出平衡”項目實施方案中明確項目范圍、建設規模、建設內容、資金來源和規模等。
3、組織實施耕地“進出平衡”項目。旗縣（市、區）按照批準的實施方案要求，依據國家、自治區耕地“進出平衡”項目管理的有關規定，組織耕地開墾，并嚴格管理，確保耕地長期耕種。開墾的耕地及種植的農作物要符合國土調查關于耕地的認定標準。
4、健全耕地“進出平衡”項目管理制度。項目實施落實公告制，實施中對工程進度、質量、資金使用等嚴格管理，實施后落實后期管護制度。加強土地權屬管理，確保項目區實施前后土地權屬清楚，產權明晰。規范項目審批、驗收管理，確保項目實施程序依法依規。
（3）方案編制原則
耕地“進出平衡”工作應以落實最嚴格的耕地保護制度為統領，以保護耕地、保障農民土地權益為出發點，以改善農村生產生活條件，實現耕地數量不減少，質量有提高為目標。編制項目實施方案具體遵循“規劃引導，總量控制”、“政府主導，農民自愿”、“保護耕地，合理用地”的原則。
(一)耕地“進出平(ping)衡”與“占補平(ping)衡”的關系(xi)
耕(geng)(geng)地(di)(di)(di)是(shi)我國最(zui)寶貴的資源(yuan)，我國實行耕(geng)(geng)地(di)(di)(di)“占(zhan)補(bu)平衡(heng)(heng)”，即非農建設占(zhan)用(yong)耕(geng)(geng)地(di)(di)(di)的，要(yao)求(qiu)占(zhan)多(duo)少補(bu)多(duo)少，主(zhu)要(yao)是(shi)通過開(kai)(kai)發未(wei)利(li)(li)用(yong)地(di)(di)(di)轉(zhuan)變為(wei)耕(geng)(geng)地(di)(di)(di)，但隨(sui)著未(wei)利(li)(li)用(yong)地(di)(di)(di)不斷(duan)被開(kai)(kai)發，我國后備資源(yuan)越來越少，難以(yi)用(yong)此方式(shi)持續補(bu)充耕(geng)(geng)地(di)(di)(di)；且(qie)無(wu)節(jie)制地(di)(di)(di)、隨(sui)意地(di)(di)(di)開(kai)(kai)發未(wei)利(li)(li)用(yong)地(di)(di)(di)不利(li)(li)于(yu)(yu)生態(tai)平衡(heng)(heng)發展，不利(li)(li)于(yu)(yu)耕(geng)(geng)地(di)(di)(di)集中連(lian)片建設，因此要(yao)考(kao)慮(lv)其(qi)他補(bu)充耕(geng)(geng)地(di)(di)(di)方式(shi)，平衡(heng)(heng)糧食(shi)安全(quan)保障(zhang)、生態(tai)保護和(he)空間布(bu)局優(you)化之間的關系。
落(luo)實(shi)耕地(di)(di)(di)(di)(di)“進(jin)出平(ping)衡(heng)(heng)”工作以(yi)下有三點(dian)現(xian)實(shi)意義：①“進(jin)”將林(lin)地(di)(di)(di)(di)(di)、草(cao)地(di)(di)(di)(di)(di)、園(yuan)地(di)(di)(di)(di)(di)等其(qi)他(ta)農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)及農(nong)業(ye)設(she)施建(jian)設(she)用(yong)(yong)地(di)(di)(di)(di)(di)轉(zhuan)為(wei)耕地(di)(di)(di)(di)(di)，拓寬了(le)補充耕地(di)(di)(di)(di)(di)的渠道和(he)方式，緩解了(le)因后(hou)備資源不足導致的補充耕地(di)(di)(di)(di)(di)壓(ya)力，能(neng)夠切實(shi)保(bao)障國家糧食(shi)生(sheng)產安全；②“出”將耕地(di)(di)(di)(di)(di)轉(zhuan)為(wei)林(lin)地(di)(di)(di)(di)(di)、園(yuan)地(di)(di)(di)(di)(di)、草(cao)地(di)(di)(di)(di)(di)等其(qi)他(ta)農(nong)業(ye)地(di)(di)(di)(di)(di)或農(nong)業(ye)設(she)施建(jian)設(she)用(yong)(yong)地(di)(di)(di)(di)(di)，保(bao)持農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)內部(bu)地(di)(di)(di)(di)(di)類結構的動態平(ping)衡(heng)(heng)，有利于保(bao)護(hu)生(sheng)物多樣性，推進(jin)生(sheng)態文(wen)明(ming)建(jian)設(she)，推動形成人與自然(ran)和(he)諧發(fa)展(zhan)現(xian)代化(hua)建(jian)設(she)新格局(ju)；③“進(jin)出平(ping)衡(heng)(heng)”保(bao)障了(le)農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)整(zheng)體數(shu)量(liang)不下降，優化(hua)了(le)農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)結構布局(ju)，提高了(le)耕地(di)(di)(di)(di)(di)質量(liang)及農(nong)業(ye)綜合生(sheng)產能(neng)力，實(shi)現(xian)了(le)保(bao)護(hu)糧食(shi)安全、建(jian)設(she)生(sheng)態文(wen)明(ming)等的可持續協同(tong)發(fa)展(zhan)。“進(jin)出平(ping)衡(heng)(heng)”與“占(zhan)補平(ping)衡(heng)(heng)”兩者關(guan)系如(ru)表1所示。
（二）耕地“進(jin)出平衡(heng)”內容及原(yuan)則
耕地(di)(di)(di)“進出平衡”，旨在對耕地(di)(di)(di)實(shi)行(xing)用(yong)(yong)途管(guan)制，要求把耕地(di)(di)(di)轉為林(lin)地(di)(di)(di)、草地(di)(di)(di)、園地(di)(di)(di)等其(qi)他(ta)農用(yong)(yong)地(di)(di)(di)及(ji)農業(ye)(ye)設施(shi)建(jian)設用(yong)(yong)地(di)(di)(di)的，要把另外的林(lin)地(di)(di)(di)、草地(di)(di)(di)、園地(di)(di)(di)等其(qi)他(ta)農用(yong)(yong)地(di)(di)(di)及(ji)農業(ye)(ye)設施(shi)建(jian)設用(yong)(yong)地(di)(di)(di)整治為耕地(di)(di)(di)，確(que)保(bao)(bao)完成本(ben)行(xing)政(zheng)(zheng)區域內(nei)規劃確(que)定的耕地(di)(di)(di)保(bao)(bao)有(you)量(liang)和永久基本(ben)農田保(bao)(bao)護面積(ji)目標。結(jie)合國家(jia)政(zheng)(zheng)策(ce)及(ji)各(ge)省市相關政(zheng)(zheng)策(ce)文件，其(qi)主要內(nei)容(rong)及(ji)原(yuan)則如下。
1.耕地“進(jin)出平衡”內容
耕地“進出平衡”是(shi)指農(nong)(nong)用地內(nei)(nei)部的耕地與(yu)其他農(nong)(nong)用地及農(nong)(nong)業設施建設用地之(zhi)間(jian)的轉換(huan)，包含“一進”、“一出”兩(liang)方面的工作內(nei)(nei)容。
（1）進：調入耕地
“一進”是(shi)指將林地(di)(di)(di)、草地(di)(di)(di)、園地(di)(di)(di)等其他農用(yong)地(di)(di)(di)及農業設(she)施建(jian)設(she)用(yong)地(di)(di)(di)，通過(guo)土(tu)地(di)(di)(di)綜合(he)整治手段整治為耕(geng)(geng)地(di)(di)(di)。可(ke)以分為兩種情形：一是(shi)主動調(diao)(diao)入(ru)(ru)，先立項再實(shi)施工程整治變更為耕(geng)(geng)地(di)(di)(di)；二是(shi)被動調(diao)(diao)入(ru)(ru)，已整治為耕(geng)(geng)地(di)(di)(di)但(dan)還未納(na)入(ru)(ru)耕(geng)(geng)地(di)(di)(di)圖斑(ban)的(de)，則需要更變用(yong)地(di)(di)(di)類型，將圖斑(ban)調(diao)(diao)入(ru)(ru)耕(geng)(geng)地(di)(di)(di)。
（2）出：調出耕地
“一(yi)(yi)出(chu)(chu)”是(shi)指將耕地(di)(di)轉為林地(di)(di)、草地(di)(di)、園(yuan)地(di)(di)等(deng)其他農用(yong)地(di)(di)及農業設施建設用(yong)地(di)(di)。可以分為兩種情形，一(yi)(yi)是(shi)主(zhu)動(dong)調(diao)出(chu)(chu)，先審批(pi)(pi)后(hou)變(bian)更，比如規劃做公園(yuan)、農業設施用(yong)地(di)(di)、果(guo)園(yuan)等(deng)。二是(shi)被動(dong)調(diao)出(chu)(chu)，已變(bian)更后(hou)補審批(pi)(pi)，比如在衛星(xing)影像圖(tu)上(shang)發現現在是(shi)公園(yuan)、農業設施建設用(yong)地(di)(di)或者是(shi)防(fang)護(hu)林等(deng)，不是(shi)耕地(di)(di)圖(tu)斑的，則需要(yao)補辦審批(pi)(pi)，變(bian)更用(yong)地(di)(di)類型，將圖(tu)斑調(diao)出(chu)(chu)耕地(di)(di)。
2.?耕地“進出平(ping)衡”原則
（1）調入耕(geng)地(di)(di)(di)的(de)數(shu)(shu)量(liang)、質量(liang)必(bi)須高(gao)于或同等于調出的(de)耕(geng)地(di)(di)(di)數(shu)(shu)量(liang)、質量(liang)。近年(nian)來，耕(geng)地(di)(di)(di)面積不斷減少，嚴重(zhong)沖擊耕(geng)地(di)(di)(di)保護紅(hong)線(xian)，實行耕(geng)地(di)(di)(di)“進出平衡”，耕(geng)地(di)(di)(di)轉為(wei)其(qi)他農(nong)(nong)用(yong)地(di)(di)(di)及農(nong)(nong)業(ye)設施(shi)建設用(yong)地(di)(di)(di)的(de)，至少補足數(shu)(shu)量(liang)相等、質量(liang)相當的(de)耕(geng)地(di)(di)(di)，才能保證耕(geng)地(di)(di)(di)數(shu)(shu)量(liang)不再減少，手中有糧(liang)(liang)，心(xin)中不慌，耕(geng)地(di)(di)(di)數(shu)(shu)量(liang)不減少，保障我國的(de)糧(liang)(liang)食安全。
（2）耕(geng)(geng)地(di)(di)可以(yi)轉為林地(di)(di)、草地(di)(di)、園地(di)(di)等其他(ta)農(nong)用地(di)(di)及農(nong)業(ye)設施建設用地(di)(di)，但不(bu)能挖湖(hu)造(zao)景、種(zhong)植草皮(pi)；挖湖(hu)造(zao)景、種(zhong)植草皮(pi)將破壞(huai)(huai)耕(geng)(geng)地(di)(di)耕(geng)(geng)作層，對土(tu)壤造(zao)成嚴重損壞(huai)(huai)，使(shi)土(tu)壤難以(yi)復耕(geng)(geng)。
（3）涉(she)及承(cheng)(cheng)包(bao)耕地轉為林地等其他地類的(de)，經批準(zhun)后(hou)，鄉鎮人民政府應(ying)當指導發(fa)包(bao)方(fang)依法與承(cheng)(cheng)包(bao)農(nong)戶(hu)重新(xin)簽訂(ding)或變(bian)更(geng)(geng)土地承(cheng)(cheng)包(bao)合同，以及變(bian)更(geng)(geng)權屬證書。在此過程中應(ying)當堅持依法辦事、公(gong)平、公(gong)開、公(gong)正原則，堅持“先確權，后(hou)變(bian)更(geng)(geng)”的(de)原則，保障發(fa)包(bao)方(fang)與承(cheng)(cheng)包(bao)農(nong)戶(hu)權益。
（4）耕(geng)(geng)地(di)(di)(di)(di)(di)“占(zhan)(zhan)補(bu)(bu)平(ping)(ping)衡(heng)(heng)”適用(yong)(yong)于(yu)(yu)非(fei)農(nong)建設占(zhan)(zhan)用(yong)(yong)耕(geng)(geng)地(di)(di)(di)(di)(di)時，需要嚴格按照“占(zhan)(zhan)一(yi)補(bu)(bu)一(yi)、占(zhan)(zhan)優補(bu)(bu)優”的(de)(de)(de)原則補(bu)(bu)足數量(liang)相等(deng)、質(zhi)量(liang)相當的(de)(de)(de)耕(geng)(geng)地(di)(di)(di)(di)(di)的(de)(de)(de)情(qing)形；耕(geng)(geng)地(di)(di)(di)(di)(di)“進(jin)出(chu)(chu)(chu)平(ping)(ping)衡(heng)(heng)”則適用(yong)(yong)于(yu)(yu)耕(geng)(geng)地(di)(di)(di)(di)(di)轉為其(qi)他農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)或(huo)農(nong)業(ye)設施(shi)用(yong)(yong)地(di)(di)(di)(di)(di)時，需補(bu)(bu)足同(tong)等(deng)數量(liang)、質(zhi)量(liang)的(de)(de)(de)耕(geng)(geng)地(di)(di)(di)(di)(di)的(de)(de)(de)情(qing)形，耕(geng)(geng)地(di)(di)(di)(di)(di)“進(jin)出(chu)(chu)(chu)平(ping)(ping)衡(heng)(heng)”的(de)(de)(de)范圍僅限于(yu)(yu)農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)。換句話說，耕(geng)(geng)地(di)(di)(di)(di)(di)“占(zhan)(zhan)補(bu)(bu)平(ping)(ping)衡(heng)(heng)”與耕(geng)(geng)地(di)(di)(di)(di)(di)“進(jin)出(chu)(chu)(chu)平(ping)(ping)衡(heng)(heng)”用(yong)(yong)于(yu)(yu)補(bu)(bu)充耕(geng)(geng)地(di)(di)(di)(di)(di)的(de)(de)(de)來源不同(tong)，耕(geng)(geng)地(di)(di)(di)(di)(di)“占(zhan)(zhan)補(bu)(bu)平(ping)(ping)衡(heng)(heng)”是通(tong)過復墾開發未利用(yong)(yong)地(di)(di)(di)(di)(di)或(huo)建設用(yong)(yong)地(di)(di)(di)(di)(di)來補(bu)(bu)充耕(geng)(geng)地(di)(di)(di)(di)(di)，而耕(geng)(geng)地(di)(di)(di)(di)(di)“進(jin)出(chu)(chu)(chu)平(ping)(ping)衡(heng)(heng)”是通(tong)過林地(di)(di)(di)(di)(di)、園地(di)(di)(di)(di)(di)、草(cao)地(di)(di)(di)(di)(di)等(deng)其(qi)他農(nong)用(yong)(yong)地(di)(di)(di)(di)(di)或(huo)農(nong)業(ye)設施(shi)建設用(yong)(yong)地(di)(di)(di)(di)(di)來補(bu)(bu)充耕(geng)(geng)地(di)(di)(di)(di)(di)，所以耕(geng)(geng)地(di)(di)(di)(di)(di)“占(zhan)(zhan)補(bu)(bu)平(ping)(ping)衡(heng)(heng)”的(de)(de)(de)地(di)(di)(di)(di)(di)塊(kuai)不能再作為耕(geng)(geng)地(di)(di)(di)(di)(di)“進(jin)出(chu)(chu)(chu)平(ping)(ping)衡(heng)(heng)”的(de)(de)(de)地(di)(di)(di)(di)(di)塊(kuai)。
（三(san)）落(luo)實“進(jin)出平衡”工作重點
耕(geng)地(di)(di)(di)“進出(chu)平(ping)衡”是當前耕(geng)地(di)(di)(di)保(bao)護的一項新政策(ce)，各(ge)地(di)(di)(di)對實行耕(geng)地(di)(di)(di)“進出(chu)平(ping)衡”政策(ce)暫時沒有(you)明確(que)的工作指(zhi)引(yin)與編(bian)制指(zhi)南，目前仍在探索階段(duan)，結合部分地(di)(di)(di)區初步探索經驗及(ji)現有(you)政策(ce)文件要求(qiu)，“調入”主(zhu)要手段(duan)之(zhi)一有(you)恢復（補充）耕(geng)地(di)(di)(di)，“調出(chu)”手段(duan)之(zhi)一有(you)一般(ban)耕(geng)地(di)(di)(di)轉其(qi)他(ta)農用(yong)地(di)(di)(di)，具體如下。
1.調(diao)入的主要(yao)手段之一——恢復（補充）耕地
自二調(diao)以(yi)來，我國(guo)耕(geng)地(di)數量(liang)急劇減少(shao)，耕(geng)地(di)分(fen)布分(fen)散，且(qie)有大量(liang)耕(geng)地(di)位(wei)于(yu)(yu)城(cheng)鎮(zhen)建成(cheng)區(qu)范圍(wei)內，在城(cheng)鎮(zhen)化加速(su)發(fa)展(zhan)的背景下，建設用地(di)消耗速(su)度過快(kuai)，位(wei)于(yu)(yu)城(cheng)鎮(zhen)建成(cheng)區(qu)范圍(wei)內的大量(liang)耕(geng)地(di)與(yu)城(cheng)鎮(zhen)規(gui)劃建設及發(fa)展(zhan)空間高度重疊，造成(cheng)耕(geng)地(di)保護與(yu)城(cheng)鎮(zhen)發(fa)展(zhan)相沖(chong)突(tu)。
為(wei)緩解耕(geng)(geng)(geng)(geng)地(di)保護(hu)壓力及發展(zhan)(zhan)用地(di)矛盾(dun)，可(ke)優先將(jiang)國土(tu)“三(san)調(diao)”及年度變更(geng)調(diao)查中(zhong)適宜(yi)的(de)(de)即(ji)可(ke)恢(hui)復(fu)(fu)和工(gong)程(cheng)恢(hui)復(fu)(fu)地(di)塊整(zheng)治恢(hui)復(fu)(fu)為(wei)耕(geng)(geng)(geng)(geng)地(di)，作(zuo)為(wei)耕(geng)(geng)(geng)(geng)地(di)“進(jin)出平衡”的(de)(de)重(zhong)要來源。近期(qi)各地(di)也相繼開(kai)展(zhan)(zhan)恢(hui)復(fu)(fu)（補充(chong)）耕(geng)(geng)(geng)(geng)地(di)工(gong)作(zuo)，以協(xie)調(diao)耕(geng)(geng)(geng)(geng)地(di)保護(hu)與(yu)發展(zhan)(zhan)空間。以東(dong)莞市(shi)為(wei)例，恢(hui)復(fu)(fu)（補充(chong)）耕(geng)(geng)(geng)(geng)地(di)指在(zai)耕(geng)(geng)(geng)(geng)地(di)集聚保護(hu)區內開(kai)展(zhan)(zhan)土(tu)地(di)整(zheng)治恢(hui)復(fu)(fu)（補充(chong)）耕(geng)(geng)(geng)(geng)地(di)，以“時間換空間”的(de)(de)方式(shi)，集聚耕(geng)(geng)(geng)(geng)地(di)布局(ju)，調(diao)整(zheng)優化(hua)發展(zhan)(zhan)布局(ju)，為(wei)發展(zhan)(zhan)用地(di)騰挪空間，本(ben)質上可(ke)以看作(zuo)是耕(geng)(geng)(geng)(geng)地(di)“進(jin)出平衡”中(zhong)的(de)(de)一部分(fen)，屬于“一進(jin)”的(de)(de)調(diao)入耕(geng)(geng)(geng)(geng)地(di)情形。
具體而言，恢復（補(bu)充(chong)）耕(geng)地(di)(di)工作可以(yi)通(tong)過(guo)分析遙(yao)感影(ying)像(xiang)圖(tu)或實(shi)地(di)(di)勘查等(deng)方(fang)式(shi)，選擇荒廢的林地(di)(di)、園(yuan)地(di)(di)、果地(di)(di)、閑置(zhi)農業(ye)設(she)施(shi)建(jian)設(she)用地(di)(di)以(yi)及能夠變(bian)更為(wei)(wei)耕(geng)地(di)(di)的其他農用地(di)(di)等(deng)現(xian)狀地(di)(di)類，納入耕(geng)地(di)(di)“進出平衡”工作中，通(tong)過(guo)土(tu)地(di)(di)綜合(he)整(zheng)治、墾造水田(tian)、撂(liao)荒復耕(geng)、種植(zhi)糧(liang)食等(deng)措施(shi)，快(kuai)速恢復補(bu)充(chong)耕(geng)地(di)(di)，優(you)化永(yong)久(jiu)基本農田(tian)劃定方(fang)案，為(wei)(wei)我國發展用地(di)(di)騰挪空間(jian)。
2.調出的(de)主要手(shou)段(duan)之一——一般耕地(di)轉其他農用地(di)
一(yi)般耕(geng)(geng)地(di)(di)是指永久(jiu)基本農田以外(wai)的(de)耕(geng)(geng)地(di)(di)，主(zhu)要用于(yu)糧食和棉(mian)、油、糖、蔬菜等(deng)農產品及飼(si)草飼(si)料生產，依據國家(jia)相(xiang)關政策(ce)及《關于(yu)嚴格耕(geng)(geng)地(di)(di)用途管(guan)制(zhi)有關問題(ti)的(de)通(tong)知》（自(zi)(zi)然(ran)資(zi)發〔2021〕166號）要求為長期確保穩定利用耕(geng)(geng)地(di)(di)不再(zai)減少，除(chu)國家(jia)安(an)排的(de)生態(tai)退耕(geng)(geng)、自(zi)(zi)然(ran)災害損毀等(deng)非人(ren)為因素(su)導致的(de)現有耕(geng)(geng)地(di)(di)減少情況(kuang)外(wai)，各地(di)(di)有必要對耕(geng)(geng)地(di)(di)轉(zhuan)為其他農用地(di)(di)及農業設施建設用地(di)(di)實行年(nian)度“進(jin)出(chu)平衡(heng)”，在(zai)落實一(yi)般耕(geng)(geng)地(di)(di)“進(jin)出(chu)平衡(heng)”時，應嚴格管(guan)控(kong)一(yi)般耕(geng)(geng)地(di)(di)轉(zhuan)為其他農用地(di)(di)。
（1）“調出”的重點(dian)原則
①耕(geng)(geng)地(di)(di)(di)(di)轉為(wei)(wei)林(lin)地(di)(di)(di)(di)、草地(di)(di)(di)(di)、園(yuan)(yuan)地(di)(di)(di)(di)等其他農(nong)用地(di)(di)(di)(di)及農(nong)業設施(shi)建(jian)設用地(di)(di)(di)(di)的，應(ying)當優先使用難以長期穩定利用的耕(geng)(geng)地(di)(di)(di)(di)并通過(guo)統籌林(lin)地(di)(di)(di)(di)、草地(di)(di)(di)(di)、園(yuan)(yuan)地(di)(di)(di)(di)等其他農(nong)用地(di)(di)(di)(di)及農(nong)業設施(shi)建(jian)設用地(di)(di)(di)(di)整治為(wei)(wei)耕(geng)(geng)地(di)(di)(di)(di)等方式，補足同等數量、質量的可(ke)以長期穩定利用的耕(geng)(geng)地(di)(di)(di)(di)。
②只(zhi)要(yao)耕地發生轉用，不(bu)論“非農化(hua)”、“非糧化(hua)”均需“占補平衡(heng)”或“進出平衡(heng)”。
（2）“調出(chu)”的工作要求
縣級(ji)人(ren)民政府組(zu)織編(bian)制(zhi)年度耕地(di)(di)“進(jin)出平衡(heng)”總體方案(an)，明確耕地(di)(di)轉為林地(di)(di)、草地(di)(di)、園地(di)(di)等其他農用地(di)(di)及農業設施(shi)建設用地(di)(di)的(de)規模(mo)、布局、時序和年度內(nei)落(luo)實“進(jin)出平衡(heng)”的(de)安排，并組(zu)織實施(shi)。耕地(di)(di)“進(jin)出平衡(heng)”首先在縣域范(fan)圍(wei)(wei)(wei)內(nei)落(luo)實，縣域范(fan)圍(wei)(wei)(wei)內(nei)無(wu)法(fa)落(luo)實的(de)，在市域范(fan)圍(wei)(wei)(wei)內(nei)落(luo)實；市域范(fan)圍(wei)(wei)(wei)內(nei)仍無(wu)法(fa)落(luo)實的(de)，在省域范(fan)圍(wei)(wei)(wei)內(nei)統籌落(luo)實。
（3）“調(diao)出”的(de)注(zhu)意事項
①涉及林地、草地整治(zhi)為耕(geng)地的需經依法依規核定后納入方案。
②涉及承包(bao)耕地(di)轉為(wei)林(lin)地(di)等其他地(di)類的，經批準(zhun)后，鄉鎮人民政府應當(dang)指導發包(bao)方依法與承包(bao)農(nong)戶重新簽訂(ding)或(huo)變更(geng)土地(di)承包(bao)合同，以及變更(geng)權屬(shu)證(zheng)書(shu)等。
3.耕(geng)地“進出平(ping)衡”實(shi)施管理(li)流(liu)程
縣級人(ren)民(min)政(zheng)府組織編制年度耕(geng)地“進出(chu)平(ping)衡(heng)”總體方案(an)并組織實(shi)(shi)施(shi)，其中涉及農(nong)村集體土(tu)地的(de)，經(jing)承包(bao)農(nong)戶簽字同(tong)意,由(you)發(fa)包(bao)方向(xiang)鄉(xiang)(xiang)(xiang)鎮(zhen)人(ren)民(min)政(zheng)府申(shen)報(bao)；其他土(tu)地由(you)實(shi)(shi)施(shi)單位或經(jing)營(ying)者向(xiang)鄉(xiang)(xiang)(xiang)鎮(zhen)人(ren)民(min)政(zheng)府申(shen)報(bao),鄉(xiang)(xiang)(xiang)鎮(zhen)人(ren)民(min)政(zheng)府提出(chu)落實(shi)(shi)耕(geng)地“進出(chu)平(ping)衡(heng)”的(de)意見,?并報(bao)縣級人(ren)民(min)政(zheng)府納(na)入年度耕(geng)地“進出(chu)平(ping)衡(heng)”總體方案(an)后實(shi)(shi)施(shi)。
