海南省自然资源和规划厅文件

Document from the Department of Natural Resources and Planning of Hainan Province

琼自然资规〔2021〕2号

          Hainan DNRP - Regulation - 2021 - No. 2

海南省自然资源和规划厅

关于推进建设占用耕地耕作层剥离利用

工作的实施意见

Department of Natural Resources and Planning of Hainan Province:

Implementation Opinions on Advancing Plow Land Soil Stripping of Farmland Used for Construction Purposes

各市、县、自治县人民政府，洋浦经济开发区管委会，省政府直属有关单位：

ThePeoples governmentsof cities, counties andautonomous counties,theAdministration Committee of Yangpu Economic Development Zone and other units directly under the administration of the People's Government of HainanProvince:

为坚持最严格的耕地保护制度，加强土地资源保护和利用，提高耕地质量，落实藏粮于地、藏粮于技战略，根据《中共中央国务院关于加强耕地保护和改进占补平衡的意见》（中发〔2017〕4号）以及《中共海南省委海南省人民政府关于加强耕地保护和改进占补平衡的实施意见》（琼发〔2017〕32号）等文件精神，经省政府同意，现就我省开展建设占用耕地耕作层剥离利用工作提出如下意见。

To practice the strictest farmland protection system, enhance the protection and utilization of land resources, improve farmland quality and implement the strategy of sustainable farmland use and innovative application of agricultural technology,thefollowing opinionsare put forward on the basis of the approval of the People's Government of Hainan Province and the documents of "Opinions of the CPC Central Committee and the State Council on Strengthening the Protection of Farmland and Improving the Measures on Offsetting Cultivated Land Used for Other Purposes"(General Office of the CPC Central CommitteeGazette-2017- No.4)and "Implementation Opinions of CPC Committee and thePeople's Government of Hainan province onStrengthening the Protection of Farmland and Improving the Measures on Offsetting Cultivated Land Used for Other Purposes.”(The People's Government of Hainan Province and CPC Hainan Provincial Committee - Document - 2017 - No. 32)

一、充分认识耕作层剥离利用的重要意义

1. Fully Understanding the Significance of PlowLandSoilStripping

耕地耕作层是经长期自然演化和耕作培肥形成的适合农作物生长的优质表土，是耕地的精华，是农业生产的物质基础。开展耕地耕作层剥离利用是新形势下坚持最严格的耕地保护制度，落实占优补优、占水田补水田的重要途径，是重要的民生工程、生态工程和抢救性工程，对保护耕地资源、提高耕地质量、落实藏粮于地、保障国家粮食安全意义重大。各市县政府、各有关部门、各用地单位要充分认识耕地耕作层剥离利用的重要意义，进一步统一思想认识，加强组织领导，采取有效措施，全力推进建设占用耕地耕作层剥离利用工作开展。

Plow layer is a high-quality topsoil suitable for crop growth thanks to long-term natural evolution and cultivation. It is the essence of cultivated land and the cornerstone of agricultural production. Plow layer soil stripping is a crucial way to implement the strictest possible system for the protection of farmland and guarantee that"occupied quality farmland will be replenished with quality farmland and occupied paddy fields will be replenished with paddy fields". It bears great significance for people's wellbeing, ecological environment and emergency protection measures, as well as protecting farmland, improving farmland quality, exercising the crop production strategy based on farmland management and ensuring food security. Therefore, governments of cities and counties, relevant authorities and land users should fully understand its importance and further raise awareness, enhance organizational leadership and take effective measures to implement plow land soil stripping work across the board.

二、实施主体和实施范围

2. Organizers and Scope of Implementation

（一）实施主体。建设占用耕地耕作层剥离利用工作由市县政府组织实施。

(1) Organizers of implementation: the people's governments of cities and counties will be responsible for the implementation of plow layer soil stripping.

以划拨、协议出让方式供地和临时占用耕地的，由项目建设单位在项目开工建设前开展耕作层剥离工作，耕作层土壤的利用和存储点由市县政府选择确定，运输距离一般在15公里内。项目建设单位要将耕作层土壤剥离、运输，以及项目建设期限内土壤存储等相关费用纳入建设项目投资概算。对于耕作层剥离与利用距离远、难度大、投入超过合理范围的单独选址建设项目，市县政府可予以适当补助，确保耕作层土壤的有效剥离利用。

For allocated and agreement-based transferred land, as well as temporarily occupied farmland, constructors shall start stripping the soil before the construction work, with the topsoil utilization and storage locations which lie within 15 kilometers from the construction sites and are designated by the respective municipal or county-level governments. Construction projects shall therefore include fees incurred by topsoil stripping, transportation and storage in their estimated budgetary project investment. For the land used for construction purposes and selected separately beyond the scope of land used for urban construction as determined in the overall land use plan, municipal and county-level governments could grant its construction projects subsidies as appropriate to guarantee effective topsoil stripping and utilization in the case of long distance between stripping and utilization locations, substantially difficult work, or relevant costs exceeding a reasonable range.

以招标拍卖挂牌方式供地的，由市县自然资源和规划部门在项目开工建设前实施耕作层剥离。如在供地后实施剥离的，须在土地出让合同中明确耕作层剥离责任、完成时间等具体事项。耕作层剥离、运输、存储、利用等费用由市县政府负责，并纳入供地成本。

For the land supplied through bidding, auction or quotation, respective municipal and county-level natural resources and planning authorities shall be responsible for topsoil stripping before construction begins. For the land subject to stripping after the land supplyprocess, details such as stripping responsibilities and deadlines shall be specified in the land transfer contract. The costs of stripping, transportation, storage and utilization of plow layer soil stripping shall be borne by the municipal and county-level governments and included in the cost of land supply.

对土地成片开发占用耕地的，市县政府可以结合本地实际，根据项目建设开发时序，组织相关部门分批对耕作层进行统一剥离，降低剥离利用成本，提高剥离利用效率。

For the farmland occupation due to the development of whole tracts of land, municipal and county-level governments shall, on the basis of local conditions and timelines of construction process, require relevant authorities to conduct unified stripping in batches to reduce costs and improve efficiency.

农村集体经营性建设用地以出让、出租、作价出资（入股）(capitalized value）等方式入市占用耕地的，由受让方、承租方或出资（入股）方在项目开工建设前实施耕作层剥离，相关费用纳入建设项目投资概算，剥离的土壤就近用于农村集体经济组织的农田建设项目。属于农村集体公共设施、农村村民住宅用地占用耕地确需剥离耕作层的，市县自然资源和规划部门要做好剥离利用指导工作。

If farmland is occupied by collective construction land for commercial use through transfer, lease or investment in the form of capitalized value, the transferee, lessee, or capital contributor shall strip the topsoil before construction begins and include relevant fees in their estimated budgetary project investment. The stripped soil shall be used for farmland development projects of rural collective economic organizations nearby. If the farmland is occupied for the purposes of rural collective public facilities or rural residential buildings for villagers, and really requires stripping, respective municipal and county-level natural resources and planning authorities shall provide proper guidance on the work of topsoil stripping and utilization.

（二）实施范围。建设项目要充分考虑拟占用耕地质量、剥离成本、利用方向，坚持“因地制宜，统筹利用”原则，建设项目占用和临时用地占用相对集中、面积在1公顷（含）以上、且水田质量等别8等（含）、旱地及水浇地7等（含）以上耕地的，应当实施耕作层剥离利用。

(2) The scope of implementation. The quality, stripping costs and utilization of the farmland to be occupied by the construction projects shall be fully considered, and the principle of "adjusting measures to local conditions and coordinated utilization" shall be adhered to in the stripping process. Farmland occupation due to construction projects and temporary land use that is relatively concentrated, with an area of more than 1 hectare (included), paddy fields graded level 8 or above, dry land and irrigated land graded level 7 or above shall be subject to stripping.

耕作层剥离的深度应当根据耕地耕作层土壤质量状况等确定，一般在10-30cm为宜。对15度以上的坡耕地以及耕作层土壤被严重破坏或严重污染的耕地，由市县自然资源和规划部门会同农业农村、生态环境等部门共同认定，报经市县政府同意后，可以不纳入耕作层剥离范围。

Stripping depth shall be determined according to the quality of plow layer soil, generally 10-30 centimeters. The terraced farmland with a slope of more than 15 degrees, arable layer severely damaged or polluted would not be subject to stripping if municipal and county-level authorities concerning natural resources and planning, agriculture and rural affairs as well as ecology and environment have jointly defined them as aforementioned and gained approval after reporting to their municipal and county-level governments.

三、实施步骤

3. Implementation Steps

（一）实施方案编制。建设占用耕地耕作层剥离利用实施方案要依据市县国土空间规划，结合剥离地块的区位条件、交通状况、耕作层质量及当地土地综合整治、高标准农田建设和耕地开垦等项目实施情况，在对土地利用现状图核对、内业影像判图、外业实地调查测绘以及对剥离地块进行土壤检测的基础上，按照《耕作层土壤剥离利用技术规范》（TD/T1048-2016）等相关技术标准进行编制。方案应明确耕作层剥离、运输、堆放、回覆、存储等区域选择，利用类型（剥离后直接利用、剥离后堆放统筹再利用）、投资估算、实施计划和保障措施等。

(1) Making the implementation plan. The implementation plan of plow layer soil stripping of farmland used for construction purposes shall take following factors into consideration: national territorial space planning system of cities and counties, locations, transportation and topsoil quality of the stripped land, how such programs as local comprehensive land improvement, high-standard farmland development and farmland reclamation are advanced, comprehensive analysis of current land use map, in-door land use satellite imaging and on-site survey and mapping, soil testing of the stripped plots as well as the relevant technical standards set inthe Technical Specifications for Plow Layer Soil Stripping and Utilization (TD/T1048-2016).The plan shall specify the areas for stripping, transportation, stockpiling, re-applying and storage of stripped topsoil, its utilization type (direct utilization after stripping, stockpiling for other desired purposes), investment estimation, implementation plans and safeguard measures.

以划拨、协议出让方式供地的项目由建设单位组织编制剥离利用方案，经审查通过后作为供地申办材料；以招标拍卖挂牌方式供地的项目由市县自然资源和规划部门组织编制剥离利用方案；农村集体经营性建设用地入市的项目由受让方、承租方或出资（入股）方组织编制剥离利用方案；临时用地占用耕地的，由建设单位组织编制剥离利用方案，经审查通过后作为审批临时用地的申报材料。

For the land occupied through allocation or agreement-based transfer, constructors shall be responsible for making stripping and utilization plans, which later could be used for applying for land use after the plans are reviewed and approved. For the land occupied through bidding, auction or quotation, municipal and county-level natural resources and planning authorities shall be responsible for making stripping and utilization plans. For the land supplied through marketing rural collective commercial construction landfor development purposes, the transferee, lessee, or capital contributor shall be responsible for making stripping and utilization plans. For the land occupied for temporary use, constructors shall be responsible for making stripping and utilization plans, which later could be used for applying for land use after the plans are reviewed and approved.

（二）实施方案审查。市县自然资源和规划部门会同农业农村等部门组织相关专家对耕作层剥离利用实施方案进行评审论证，通过评审论证的，由市县自然资源和规划部门出具审查意见。

(2) Reviewing the implementation plan. Relevant experts invited by municipal and county-level authorities concerning natural resources and planning, agriculture and rural affairs etc. will conduct review and demonstration of the stripping and utilization plans. Municipal and county-level natural resources and planning authorities shall issue review opinions for those that have passed the review and demonstration.

（三）耕作层土壤剥离和存储。耕作层剥离应尽量与土地综合整治、高标准农田建设和耕地开垦等项目相结合，做到“应剥尽剥、即剥即用”。不能实现“即剥即用”的，应合理布设存储区，用于临时存储剥离耕作层土壤。已确定耕作层土壤再利用单位的，由利用单位负责管护并安排使用；未确定土壤再利用单位的，由市县政府负责管护并安排使用。存储区要尽量避免占用耕地，不得占用永久基本农田。存储区租用土地的，需与农村集体经济组织或原土地使用人签订土地租用协议，明确双方权利义务。耕作层剥离及运输过程中，要采取水土保持和扬尘防治措施，防止土壤和环境污染。集中堆放的耕作层土壤要采取必要的土壤工程防护和保育措施，防止出现水土流失、土壤质量退化和安全隐患。

(3) Stripping and storing plow layer soil. Plow layer soil stripping shall be advanced with other programs, such as local comprehensive land improvement, high-standard farmland development to ensure that the "topsoil qualified for stripping would be stripped and those stripped would be put into immediate use". For stripped soil that cannot be put into immediate use, storage areas shall be arranged to temporarily store the stripped soil. If the re-applier of stripped soil has been determined, the re-applier shall be responsible for topsoil management, protection and use. If not, the municipal and county-level governments shall be responsible for its management, protection and use. Storage sites should avoid occupying farmland, and are forbidden occupying permanent farmland. For storage areas that have leased the land, relevant parties shall sign land lease agreements with rural collective economic organizations or former land users to clarify the rights and obligations of both parties. During the stripping and transporting process, measures for water and soil conservation and dust prevention shall be taken to avoid soil and environmental pollution. Necessary soil engineering and conservation measures shall be taken to protect concentratedly-stockpiled topsoil from erosion, quality degradation and other security issues.

（四）耕作层土壤再利用。耕作层土壤剥离后主要用于土地综合整治、高标准农田建设、中低产田改造、耕地开垦、拆旧区复垦以及临时用地复垦等项目，富余土方可用于城市绿化工程。在国有土地上剥离耕作层土壤的利用、受益归市县政府；在集体土地上剥离耕作层土壤的利用、受益归村集体经济组织。

(4) Re-applying the stripped soil. The stripped soil will mainly be used for comprehensive land improvement, high standard farmland development, low- and medium-yield farmland upgrading, farmland reclamation, reclamation of demolished areas and reclamation of temporary land. Surplus topsoil banks can be used for urban greening projects. The utilization and benefit of stripped soil on state-owned land belong to the municipal and county-level governments, while the utilization and benefit of the soil stripped from the plow layer on the collective land belong to the rural collective economic organizations.

（五）耕作层剥离利用验收。建设用地单位或负责实施耕作层剥离的单位按照审查通过的耕地耕作层土壤剥离利用实施方案完成剥离利用工作后，向市县自然资源和规划部门提出验收申请，由市县自然资源和规划部门会同农业农村部门组织验收。

(5)Applying for the acceptance ofthe stripping and utilization of plow layer soil. After constructors or the authorities responsible for the stripping havecompleted the topsoil stripping and utilization according to their reviewed implementation plans, they shall apply to the municipal and county-level natural resources and planning authorities for evaluationand acceptance. Municipal and county-level authorities concerning natural resources and planning as well as agriculture and rural affairs shall be responsible for the final evaluation and acceptance work.

每年年底，各市县自然资源和规划部门应将本市县耕地耕作层土壤剥离利用情况报省自然资源和规划厅，抄报省农业农村厅。

At the end of each year, municipal and county-level natural resources and planning authorities shall report the stripping and utilization of the plow layer soil to the Department of Natural Resources and Planning and the Department of Agriculture and Rural Affairs of Hainan Province.

四、保障措施

4. Supporting Measures

（一）组织保障。市县政府负责本辖区范围内耕地耕作层剥离利用的组织领导工作，自然资源和规划、农业农村、发展改革、财政、生态环境、交通、水务等有关部门按照部门职责，加强协调，密切配合，落实责任，扎实推进耕地耕作层剥离利用工作。耕地耕作层剥离利用工作纳入市县政府耕地保护责任目标考核内容。

(1) Organizational leadership. Municipal and county-level governments are responsible for organizing the topsoil stripping and utilization within their own jurisdictions. Authorities of natural resources and planning, agriculture and rural affairs, development and reform, finance, ecological environment, transportation and water affairs shall help promote the stripping and utilization work by exercising their departmental responsibilities, strengthening coordination, closely collaborating with other departments and carrying out duties with their feet on the ground. The stripping and utilization work shall be included in the assessment of farmland protection responsibility objectives of municipal and county-level governments.

（二）加强监管。市县自然资源和规划部门要通过动态巡察，及时跟踪和掌握建设项目进展情况，加强耕作层剥离利用工作监管，做到“应剥尽剥”，严禁破坏或废弃耕作层土壤。

(2) Enhanced supervision. Municipal and county-level natural resources and planning authorities shall timely track and record the progress of the construction projects through dynamic patrol, strengthen the supervision of the stripping and utilization work, ensure that "topsoil qualified for stripping would be stripped," and prohibit the destruction or abandonment of the topsoil.

（三）激励机制。对充分利用耕地耕作层剥离土壤开展土地综合整治、耕地开垦等项目，经核实认定的新增耕地指标，优先安排通过补充耕地指标交易平台进行交易。对耕地耕作层剥离利用工作突出的市县，将给予建设用地计划指标奖励，在生态修复专项资金下达时，予以适当倾斜。

(3) Incentives. The confirmed newly-added farmland from programs of comprehensive land improvement and farmland reclamation by making full use of the plow layer soil stripping will be prioritized on the supplementary farmland index trading platform. Cities and counties with outstanding topsoil stripping and utilization performance will be rewarded with more planned construction land, and more preference will be given when special funds for ecological restoration are issued.

本实施意见自2021年5月1日起施行，有效期三年。

The implementation opinions shall be carried out from the date of May 1^st, 2021 and is valid for 3 years.

附件：   市（县）   年度建设占用耕地耕作层剥离利用情况统计表

Annex: Statistical Table for Plow Land Soil Stripping of Farmland Used for Construction Purposes in     City (County) in     

海南省自然资源和规划厅

The Department of Natural Resources and Planningof Hainan Province

  2021年3月3日

March 3^rd, 2021

（此件主动公开）

This document is shared with the public

抄送：各市、县、自治县自然资源和规划局，洋浦经济开发区规划建设土地局。

CC: Bureausof Natural Resources and Planning of cities, countiesand autonomous countiesof Hainan Province, and the Bureau of Planning, Construction and Land of Yangpu Economic Development Zone:

海南省自然资源和规划厅办公室       2021年3月3日印发

The Office of the Department of Natural Resources and Planning of Hainan Province

Issued and printed on March 3^rd, 2021

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