《海南省自然资源和规划厅 海南省林业局关于进一步明确设施农业等项目占用林地审批有关问题的通知》政策解读

Interpretation of

the Department of Natural Resources and Planning &

The Department of Forestry:

Circular on Approval of Protected Agriculture’s Occupation of Forest Land



  1. 背景说明

  1. Background of the Circular

我省2019年、2020年相继出台了《关于支持产业项目发展规划和用地保障的意见（试行）》《关于规范设施农业用地管理促进现代农业健康发展的通知》《关于进一步明确“只征不转”“不征不转”“只转不征”有关问题的通知》等政策文件，促进了我省设施农业的发展，保障了部分项目建设采取“只征不转”“不征不转”用地的需求。

In 2019 and 2020, Hainan province issued a package of documents, including the "Opinions on Supporting the Development, Planning and Land Security of Industrial Projects (for Trial Implementation)," the "Circular on Regulating the Management of Land for Protected Agriculture to Promote the Sound Development of Modern Agriculture", the "Circular on Further Clarifying Requirements on Projects with ‘no need to be requisitioned and converted’ and those ‘to be requisitioned but not to be converted,’and more, promoting the development of Hainan’s protected agriculture.

但也出现了一些问题，如办理占用林地审批手续繁琐、耗时长成本高，普通农户难以承担报批费用等。为指导做好设施农业用地和“只征不转”“不征不转”项目占用林地审批工作，推动设施农业发展，落实乡村振兴，加强林地保护，省自然资源和规划厅和省林业局结合实际问题，进一步制订了相应的规定。

Nevertheless, problems have emerged during the implementation of the above-mentioned regulations, for example, the approval procedures for occupying forest land are cumbersome, time-consuming and costly; and farmers can hardly afford the cost of application and approval. To improve our work on project approval of forest land occupation for protected agriculture projects (including projects that are exempt from approval formalities for converting agricultural land to construction land, namely, those with “no need to be requisitioned and converted” and those “to be requisitioned but not to be converted”, the same hereinafter), develop protected agriculture, implement the rural revitalization strategy and protect forest land, the Departmentof Natural Resources and Planning and the Department of Forestry of Hainan Province formulated corresponding regulations based on practical issues.


  1. 文件依据

  1. Basis of Documentation

《中华人民共和国森林法》《中华人民共和国森林法实施条例》《国家发展改革委 国家林草局 科技部 财政部 自然资源部 农业农村部 人民银行 市场监管总局 银保监会 证监会关于科学利用林地资源促进木本粮油和林下经济高质量发展的意见》（发改农经﹝2020﹞1753号）《建设项目使用林地审核审批管理办法》（国家林业局令第35号）

Forest Law of the People's Republic of China

Regulations for the Implementation of the Forest Law of the People's Republic of China

Opinions on the Scientific Use of Forest Land Resources to Promote the High-quality Development of Wood-based Food and Oil and Intercropping Economy (NDRC Agricultural Economy (2020) No. 1753) jointly issued by the National Development and Reform Commission, the National Forestry and Grassland Administration, the Ministry of Science and Technology, the Ministry of Finance, the Ministry of Natural Resources, the Ministry of Agriculture and Rural Affairs, the People's Bank of China, the State Administration for Market Supervision, the Banking and Insurance Regulatory Commission and the Securities and Exchange Commission

Review and Approval Management Measures for Forest Land Occupation by Construction Projects (SFA Decree No. 35)


  1. 主要内容

  1. Key Points

  1. 进一步明确设施农业项目占用林地审批范围

  1. The Approval Scope of Forest Land Occupation for Protected Agriculture Projects.

明确设施农业项目占用林地用于工程建设的，需依法办理使用林地审批手续；修筑符合国家规定标准的直接为林业生产经营服务的工程设施，需要占用林地的，报市县林业主管部门按照规定办理相关审批手续。依法依规利用林地发展林下经济的，在不采伐林木、不影响树木生长、不造成污染的前提下，允许放置移动类设施、利用林间空地建设必要的生产管护设施、生产资料库房和采集产品临时储藏室，相关用地均可按直接为林业生产服务的工程设施用地管理。

Approval procedures in accordance with the law are needed if forest land is used for engineering purposes for protected agricultural projects. Project facilities in line with national standards directly serving the production and operation of the forestry industry with a need to use forest land should be reported to municipal or county-level forestry authorities for approval in accordance with relevant provisions. These facilities include mobile facilities; production and management facilities necessary for clearing construction; storage facilities for means of production; and temporary storerooms for product collection subject to the condition that they could help develop a law-based under-forest economy without causing deforestation and pollution, as well as inhibiting the growth of trees.


  1. 进一步明确设施农业项目占用林地的审批权限

  1. The Scope of the Approving Authority on Protected Agricultural Projects

明确设施农业项目占用林地的，委托市县（含洋浦）自然资源和规划主管部门办理林地占用审批手续。在办理林地占用审批手续时，同时在市县总体规划上补划。林地占用审批后，根据林地占用审批情况及林地补划情况，对总体规划进行调整入库，将已占用的林地调整为设施农业用地等农用地。要求市县（含洋浦）自然资源和规划主管部门在办理设施农业项目占用林地审批手续前征求市县林业主管部门意见。占用林地审批权属于国家林业和草原局的，按照规定程序办理使用林地审批手续。

Forest land occupation for protected agriculture projects shall apply to municipal and county-level natural resources and planning authorities (including the Bureau of Planning, Construction and Land of Yangpu Economic Development Zone) for approval. During the approving process, authorities shall first designate forest land area defined by the municipal or county-level overall land-use plan to make up for the occupation. After approval, authorities shall renew and archive local overall land-use plans in a timely manner and add occupied parts into the land for agricultural purposes. Municipal and county-level natural resources and planning authorities (including the Bureau of Planning, Construction and Land of Yangpu Economic Development Zone) should first consult municipal and county-level forestry authorities before approving. For those that need to be approved by the National Forestry and Grassland Administration, corresponding approval procedures shall be followed according to relevant rules and regulations.


  1. 进一步简化报批材料

  1. Streamlining Approval Documents

明确设施农业项目占用商品林林地面积在2公顷以下的，不需提交项目立项批准文件（包括核准批复、备案确认文件），不编制使用林地可行性报告，由乡镇政府填写林地现状调查表，不需组织专家进行评审；占用商品林林地面积在2公顷（含2公顷）以上，提交项目立项批准文件（包括核准批复、备案确认文件）或用地租赁（承包）合同（协议），按规定编制使用林地可行性报告。

Protected agricultural projects, which are to occupy less than 2 hectares of commercial forest land, do not need to submit documents for approval (including examination, approving, registration and confirmation) or prepare land-use feasibility report(s); forest land investigation forms are to be filled out by village and township governments/authorities, and expert review is not necessary. For projects that occupy 2 hectares or more of commercial forest land, applicants shall submit relevant materials for approval (including examination, approving, filing and confirmation), contracts or agreements for land lease, or contract and land-use feasibility report(s).


  1. 加强事中事后监管

  1. Strengthening Regulations During and After Project Construction

明确禁止违法占用林地并毁林开垦用于种植、养殖等非工程化的农业项目开发。要求市县（含洋浦）自然资源和规划主管部门建立设施农业项目使用林地审核台账，使用林地数据及时录入林地审核审批管理系统，并于每个月的5日前将上个月的规划调整情况向省自然资源和规划主管部门报备，由省自然资源和规划主管部门更新市县总体规划（国土空间规划）数据库，保持市县与省级数据一致。省自然资源和规划主管部门将设施农业项目使用林地审核事项纳入“双随机、一公开”监管事项范围，在监督检查中发现设施农业项目占用林地未办理使用林地手续、规划调整未报备、使用林地手续办理不规范等情形的，责令限期整改。

Illegal occupation of forest land and deforestation for plantation, breeding and other non-engineering agricultural projects are prohibited. Local authorities shall keep records of the protected agriculture projects. The record shall be updated in a timely manner as long as new forest land is occupied by projects. Municipal and county-level natural resources and planning authorities (including the Bureau of Planning, Construction and Land of Yangpu Economic Development Zone) shall register, within the first five days of each month, any land-use adjustment to provincial natural resources and planning authorities, while provincial authorities will be responsible for updating the overall land-use plan (territorial spatial plan) to assure consistency. Provincial natural resources and planning authorities have oversight through random selection of both inspectors and projects and promptly publicize the results. In case of any identified failure in reporting, registering or following necessary formalities, prompt corrections with a time limit will be required and enforced.


  1. 惠民利民措施

  1. Favorable Policies

本规定适用于设施农业用地和“只征不转”“不征不转”项目办理占用林地的审核审批事项，可为此类项目的用林地主体在办理相应手续时提供便利，主要体现在以下两点：一是减少审批层级，将设施农业用地和“只征不转”“不征不转”项目占用林地的审核审批事项委托给市县自然资源和规划主管部门办理，不需要再上报给省自然资源和规划厅审核审批，提高了审批效率；二是简化报批材料，明确设施农业用地和“只征不转”“不征不转”项目占用商品林林地面积在2公顷以下的，不需提交项目立项批准文件（包括核准批复、备案确认文件），不编制使用林地可行性报告，也不需组织专家进行评审，为用林地主体，尤其是养殖用地规模较小的个体户降低了部分审批成本。

The Circularapplies to the review and approval of forest land occupation for protected agriculture projects, including those with “no need to be requisitioned and converted” and those “to be requisitioned but not to be converted”, which can provide convenience to those handling the procedures, mainly from the following two aspects. The first is to reduce the approval organs by entrusting the matter to the city and county-level natural resources and planning authorities. The Department of Natural Resources and Planning of Hainan Province will no longer be responsible for reviewing the materials and granting approval, which improves the efficiency of the approving process. The second is to streamline approval documents. Protected agricultural projects, which are to occupy less than 2 hectares of commercial forest land, do not need to submit documents for approval (including examination, approving, registration and confirmation) or prepare land-use feasibility report(s). Expert review is not necessary, reducing the approval costs for applicants, especially small-scale households.


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