《关于推进建设占用耕地耕作层剥离利用工作的实施意见》政策解读

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

1. 文件出台的背景及依据

1. Backgroundand Basis ofthe Circular

耕作层是耕地的精华，耕作层土壤是农业生产的物质基础，是粮食综合生产能力的根本保障。《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）、《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）要求要全面推进建设占用耕地耕作层剥离再利用。实行建设占用耕地耕作层剥离利用，有利于保护优质土壤资源，提高耕地质量，对实现藏粮于地，保障国家粮食安全具有重要意义。

Plow landis the essence of arable land, and the soil of the cultivated layer is the material basis of agricultural production and the fundamental guarantee of comprehensive food production capacity.According to the "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), it’s required to comprehensively promote the construction of arable land stripped of the cultivated layer for reuse. The implementation of construction of arable land stripped of the use of the cultivated layer, is conducive to protect high-quality soil resources, improve the quality of arable land, to achieve food storage in the land and ensure national food security.

1. 目标任务

1. Objectives and Tasks

在全省范围内推进建设占用耕地耕作层剥离再利用，做到“应剥尽剥”，有效保护优质耕作层土壤，提高耕地质量。

In the whole province, we shall promote the arable land stripping and reuse of the tillage layer, ensure that "topsoil qualified for stripping would be stripped,"effective protect high-quality tillage layer soil, and improve the quality of arable land.

1. 主要内容

1. Key Points

1. 实施主体和实施模式。

(1)Organizersand implementation mode.

以划拨、协议出让方式供地和临时占用耕地的，实施主体是项目建设单位。相关费用纳入建设项目投资概算。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。对于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。

For allocated and agreement-based transferred land, as well as temporarily occupied farmland, organizersarethe constructorsproject construction units. Related costs are included in the investment budget estimate of the construction project. The utilization and storage point of the tillage layer soil is selected by the city and county governments to determine the transportation distance is generally within 15 km. The city and county governments may provide appropriate subsidies for individually sited construction projects with inputs exceeding a reasonable range.

以招标拍卖挂牌方式供地的，实施主体为市县自然资源和规划部门，相关费用纳入供地成本。

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.The costs 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。

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.

农村集体经营性建设用地占用耕地的，实施主体是受让方、承租方或出资（入股）方，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。

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, related costs are included in the investment budget estimates of construction projects, and the stripped soil is used for farmland construction projects of rural collective economic organizations in the vicinity.

1. 实施范围。建设项目占用和临时用地占用耕地相对集中、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）以上的，应当实施耕作层剥离利用。

1. Scope of implementation.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.

1. 实施步骤。耕地耕作层剥离利用工作主要有编制耕作层剥离利用实施方案、耕作层剥离利用实施方案审查、组织实施耕作层剥离和存储、耕作层土壤再利用、耕作层剥离利用验收等步骤。

(3) implementation steps. Tillage layer stripping of arable land using the work mainly the preparation of the implementation plan for the stripping of the tillage layer, the review of the implementation plan for the stripping of the tillage layer, the organization of the implementation of the stripping and storage of the tillage layer, the reuse of soil in the tillage layer, the acceptance of the stripping of the tillage layer and other steps.

1.实施方案的编制。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，按照《耕作层土壤剥离利用技术规范》（TD/T1048-2016）等相关技术进行编制。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。

I.Making the implementation plan. The implementation plan 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, 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.

2.实施方案的审查。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。

II.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.

3.耕作层土壤剥离后的存储和管理。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。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。

III.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.

4.耕作层土壤的用途。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、城乡建设用地增减挂钩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。

IV.Application ofthe 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.

5.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完成剥离利用工作后，由市县自然资源和规划部门会同农业农村部门组织验收。

V. 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,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.

1. 激励措施。对充分利用耕作层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。

(4).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.

1. 注意事项

1. Matters Need Attention

一是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。

First, 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.

二是以划拨、协议出让方式供地的项目在供地前，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在项目开工建设前，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，由受让方、承租方或出资（入股）方在项目开工建设前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。

Second, forthe 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.

三是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。

Third, 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.

1. 关键词诠释

1. Interpretation of Key Words

耕作层是指由长期耕作形成的土壤表层。耕作层的厚度一般为15~20cm,与下伏层区分明显，养分含量比较丰富，土壤为粒状、团粒状或碎块状结构。（来源：自然资源部宣传教育中心）

Plow land is the surface layer of soil formed by long-term tillage. The thickness of the tillage layer is generally 15-20cm, which is clearly distinguishable from the subsoil layer and is rich in nutrients, and the soil is granular, agglomerated or in fragmented block structure. (Source: Ministry of Natural Resources Publicity and Education Center)

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