作者：刘训芹

在全国范围内开展“双保行动”是国土资源部门响应中央作出的扩内需、保增长战略部署，为适应土地管理的新形势，解决新问题而采取的重大举措。同时为协调好国土资源管理部门科学统筹保障发展和保护资源的关系，更好地坚持最严格的耕地保护制度和最严格的节约集约用地制度，有效保障扩大内需项目用地，促进经济科学、协调、较快发展采取的有效措施。

    一、 国家对保增长保红线提出的政策要求

    开展“双保行动”，目的是通过更加积极主动的服务，使得保增长的措施更快、更强、更有力；通过更加严格规范和管理，确保扩大内需的项目更稳、更实、更有序。国家对保增长保红线的要求有以下几个方面。

    （一）保障用地，确保落实扩内需保增长调控政策。准确掌握扩大内需项目用地数量、结构、分布、时序和利用情况，摸清用地需求底数，促进土地利用计划差别化管理。监督检查《国土资源部关于为扩大内需促进经济平稳较快发展做好服务和监管工作的通知》(国土资发〔2008〕237号)文件的贯彻执行情况，督促各地把政策执行到位，措施落实到位，用地保障到位。大力宣传国家土地调控政策，宣传坚守18亿亩耕地红线和维护土地管理法治的重要意义，使各地扩大内需用地符合科学发展的要求。

    （二）密切跟踪，及时调整土地管理政策和措施。密切跟踪把握土地调控政策实施的新态势，对土地调控政策的实施效果进行评估，提出调整和完善土地调控政策的建议。紧密围绕扩大内需要求，主动提供公益性基础地质信息、基础测绘服务，满足重大基础设施、民生工程等用地的地质技术、测绘信息需求。及时掌握扩大内需土地政策、总结经验，了解实施土地调控政策遇到的问题，深化土地管理制度改革，形成制度创新成果。宣传推广各地有效落实服务扩大内需土地调控政策的典型经验。

    （三）严防反弹，依法维护土地管理良好秩序。监督各地严格执行产业政策、土地供应政策和标准，保证有限的土地投放符合中央扩内需、调结构的要求。强化土地管理批、供、用、补、查的监管，坚决纠正违背产业政策和供地政策供地、搭车用地、侵害被征地农民合法权益等问题，严防违规违法用地反弹，保持土地管理良好秩序。对涉及用地面积较大、群众反映强烈的土地违规违法问题，严肃查处。

    二、国土资源部门在保增长保红线中存在的突出问题

    总体来看，当前我市国土资源工作面临着许多突出矛盾和问题，思想观念、管理水平和工作作风还不能完全适应科学发展观的要求，对科学发展观内涵的理解还不够深入，破解资源瓶颈难题、推进节约集约利用资源的办法不够多，干部队伍建设和党风廉政建设还亟待进一步加强等。作为基层国土资源部门要正确处理我市加快发展和保护耕地的关系，做到“双保”双赢。当前在影响和制约科学发展上主要存在三个方面的突出问题：

    (一)耕地保护共同责任机制还没有形成。耕地保护还停留在文件中和领导的讲话里，还不能正确处理整体与局部、长效与短期、保护与保障的关系，片面地认为强调耕地保护就会影响经济发展，各级政府和相关部门齐抓共管的格局还没有形成，耕地保护共同责任机制还没有建立。违法批地、未批先用的现象依然存在，农民违法违规建房、未经批准占用耕地及耕地占补平衡未落实的问题未得到有效解决。

    (二)资源节约集约利用水平有待提高。一是城镇土地粗放利用、闲置浪费、占用多产出低的现象仍然存在；农村集体建设用地没有随着城镇化和农民向城市转移而减少，废弃地、空心村仍在增加，农村土地浪费和农民新建住宅无序现象较为严重，集体建设用地管理比较薄弱。二是节约集约利用政策宣传和落实的力度不够大，办法不够多，城镇特别是开发区节约集约用地的引导、激励、保障和长效监管的机制没有形成；农村集体建设用地流转由于平台缺乏、程序不明、产权不清，还没有建立有效的盘活农村集体建设用地的机制。  

    (三)自身建设还需要进一步加强。全系统干部“服务大局、服务基层、服务群众、服务经济建设”的理念还没有转化为自觉的高效服务行动，行政办事效率还需要进一步提高。

    三、国土资源部门落实“双保”的相关措施

    针对存在的影响和制约科学发展的突出问题，根据当前和今后一个时期深入贯彻落实科学发展观的指导思想和目标任务，按照构建国土资源保障和促进科学发展新机制的总要求，结合当前为扩大内需促进经济平稳较快发展提高资源保障能力和我市国土资源工作实际，具体采取五个方面的措施。

    （一）健全耕地保护制度。要以基本农田保护为基础，切实加强各项制度建设，进一步落实耕地保护责任，完善耕地保护措施。市政府要各镇（区、处、场）签订耕地保护责任书，将耕地保有量和基本农田保护面积指标纳入各地行政一把手工作目标考核内容。对全市80个基本农田保护区，1957个保护片块，都要设立固定基本农田保护标牌，建立基本农田保护台账，将基本农田落实到地块、农户。建立和完善基本农田动态巡查制度，完善市、镇、村、组四级动态网络体系，坚持定期开展巡查。以基本农田保护“五不准”为目标，严历打击乱占滥用耕地的违法行为，确保全市基本农田总量不减少、用途不改变、质量有提高。

    （二）全力支持重点项目建设。随着我市招商引资力度不断加大，项目落户逐年增多，用地需求量也在日益增大。为了保证项目引得进，落得实，我们积极向上争取用地计划，确保建设项目有地可用。在全省平均下达指标的基础上，省级每年向我市调剂增补用地计划达1000亩以上，没有因计划指标的控制而影响项目建设。2003年以来，我市已累计报批23个批次的项目用地材料，争取用地计划达7355亩，较好地满足了我市重点项目和城市建设用地需要。

    （三）优化配置土地资源。近年来，我市出台了《关于加强土地资产管理的通知》、《关于经营性土地使用权招标拍卖挂牌交易的通知》、《城镇土地资产经营实施办法》、《城镇土地储备暂行办法》、《关于严格实行经营性土地使用权招标拍卖挂牌出让的通知》等一系列规范土地市场的文件，从政策上搭建公平、公正、公开的市场环境。从2003年开始，我市经营性土地全部纳入了“招拍挂”范围，去年以来，工业用地也纳入“招拍挂”序列，我市土地市场建设逐步走上规范化、法制化轨道。仅2008年全市就收购储备土地1100余亩，比上年翻了一番，招标、拍卖、挂牌出让国有土地使用权118宗，面积近472亩，变现土地资产达1.2个亿。

    在新增建设用地计划趋紧的情况下，我们从盘活存量土地入手，做到有计划、有步骤地利用存量土地。5年来，全市收购储备土地202宗，盘活低效和闲置土地近6000亩。同时，严格控制划拨用地范围，特别是从严控制个人建房用地，着力培育成熟的土地市场体系，改善城市土地利用结构，提高土地利用效率，使全市用地布局实现最优化，政府土地收益实现最大化，土地市场发育正常化。

    （四）保障农民合法权益。近年来，我市积极探索被征地农民长远生计问题，出台了《被征地农民基本养老保险办法》、《失地农民生活困难补助办法》等有关政策，失地农民安置补助、无地农民生活补贴、被征地农民养老保险等政策逐步规范化。因此，在征地材料报批过程中，我们始终坚持按照相关政策和征地统一年产值标准，与被征地村组签订征地补偿协议，确保相关补偿标准符合政策规定；在征地实施过程中，始终坚持“两公告一登记”制度，即征前告知、批后公告，将补偿费发放到户的相关簿册由属地单位和征地机构予以登记备案，提高征地工作的透明度，坚持做到不落实补偿不报批、不供地，以保证被征地农民的长远生计得到落实，为经济社会发展创造和谐的社会环境。

    （五）加强队伍建设。要实现潜江市域经济的加速发展，需要包括土地和矿产资源在内的大量生产要素的投入。国土资源部门将进一步加强干部队伍建设，严格落实行首问责任制、一次告知制、行政政过错追究制等相关制度，更加自觉地把国土资源工作放到全市经济社会发展大局中去谋划，树立更加强烈的全局意识、率先意识、创新意识，努力为经济社会发展提供资源保障。

In launching the "double protection action" is the land and resources to respond to the central authorities made the expansion of domestic demand, growth in strategic security, to meet land management in the new situation and solve new problems and a major action. At the same time land and resources management departments to coordinate protection of the scientific co-ordination between development and conservation of resources and better adhere to the most stringent farmland protection system and the most stringent conservation and intensive land use system, effective protection of land for the project to expand domestic demand and promote economic science, coordination, rapid development of effective measures taken.

    1, the state raised the red line to maintain growth security policy requirements

    The "double protection action" aimed at through a more proactive service, making measures to ensure the growth of faster, stronger and more effective; through more rigorous specifications and management to ensure that the projects to expand domestic demand is more stable, more solid, more sequence. Countries to ensure increased security requirements of the red line in the following areas.

    (A) to protect the land, to ensure the implementation of expansion of domestic demand to maintain growth-control policies. Accurate information on land for the project to expand domestic demand quantity, structure, distribution, timing and utilization, find out the demand for land base and promote differentiated management of land-use plans. Supervision and inspection, "Land and Resources on the expansion of domestic demand to promote steady and rapid development of good service and supervision of the notice" (Guo Tuzi Fa 〔2008〕 237 号) file of the implementation of, supervision over the implementation of policies in place, measures to implement the in place, land protection in place. To vigorously promote national land-control policies, advocacy stick to the red line of 18 million mu of arable land and maintenance of land management, the importance of the rule of law, so to expand domestic demand throughout the site in line with the requirements of scientific development.

    (B) closely follow the timely adjustment of land management policies and measures. Grasp of land-control policies to follow closely the implementation of the new trend of the land-control policies to assess the effectiveness of the implementation of the proposed adjustment and improvement of land control policy recommendations. Focusing on expanding domestic demand and request public service initiative to provide basic geological information, basic surveying and mapping services to meet the major infrastructure and livelihood projects and other sites of geological techniques, mapping information needs. Abreast of the latest land policy of expanding domestic demand, sum up experience, and understand the implementation problems encountered by the land-control policies, deepen the reform of land management system to form a system of innovations. The effective implementation of promotional services throughout the land-control policies to expand domestic demand, the typical experience.

    (C) prevent a rebound, according to the law of land management to maintain good order. The strict supervision over the implementation of industrial policy, land supply policy and standards to ensure the limited amount of land put in line with the central expansion of domestic demand, readjusting the structure requirements. Grant to strengthen land management, supply, use, make up, check the regulatory and firmly to correct for the violation of industrial policy and land policy, land supply, ride sites, against the legitimate rights and interests of farmers whose land and other issues, prevent violations illegal utilization of land rebound to keep good order in land management, . Land area involved in large land masses have strong violations of law issues, be severely punished.

    Second, land and resources increased security in Bulgaria outstanding problems existing in the red line

    Overall, the current city's land and natural resources work is faced with many outstanding contradictions and problems, ideas, management level and style of work still can not fully meet the requirements of the scientific development concept, the scientific concept of development is not enough in-depth understanding of content, break the bottleneck of resources problems, promote the intensive use of resources means saving enough, discipline and corruption of cadres is also urgent need to further strengthen and so on. As a grass-roots level land and resources necessary to correctly handle the city to speed up the relationship between development and protection of cultivated land, so that the "double guarantee" a win-win. Currently in affect and constrain scientific development, there are three aspects of the major outstanding issues:

    (A) the farmland protection mechanisms have not formed a shared responsibility. Protection of cultivated land still remain in the document and leadership speeches, but are also unable to properly handle the whole and local, long-term and short-term, protection and security relations, one-sided view that emphasizes the protection of farmland will affect economic development, governments at all levels and relevant departments joint management structure has not formed a shared responsibility to protect the mechanism of arable land not yet been established. Illegal land grant, has not approved the first use still exists, farmers illegal building, unauthorized occupation of cultivated land and the balance of arable land is not implemented issue has not been effectively resolved.

    (B) The resource conservation and intensive utilization levels to be improved. First, the extensive urban land use, the waste, taking up more than the low output still exists; rural collective construction land does not end with urbanization and the peasants were reduced to cities, abandoned, the empty villages are still increasing, rural land waste and Farmers new residential phenomena of disorder is more serious, collective construction land management is weak. Second, conservation and intensive use of policy advocacy and implementation have proved insufficient, methods are not enough, urban conservation and intensive land use zone in particular, guidance, incentives, security and long-term regulatory mechanism has not formed; rural collective construction land transfer because of the lack of platform, program is unknown, unclear property rights, there are no effective revitalize the rural collective construction land mechanism.

    (C) self-construction also need to be further strengthened. System-wide cadres "serve the overall situation, service grass-roots level, serving the masses and serving the economic construction" concept has not yet translated into action for the conscious and efficient services, administrative efficiency need to be further enhanced.

    Third, land and resources to implement the "double guarantee" of related measures

    The impact and constraints for the existence of the scientific development of the outstanding problems, according to the current and future periods thoroughly implement the scientific concept of development the guiding ideology and objectives, tasks, according to building land and natural resources protection and the promotion of scientific development, the general requirements of the new mechanism, combined with the current for the expansion of domestic demand and promote economic development is to improve the capacity and resources to protect the city's land resources practical, concrete measures to be taken in five areas.

    (A) improve the farmland protection system. Should be based on basic farmland protection, and earnestly strengthen the building of various systems, to further implement the responsibility to protect farmland, improve farmland protection measures. Municipal government to towns (area, department, field) signed letters of responsibility for the protection of farmland will be the amount of cultivated land and basic farmland protection area around the target into the number one objective of assessing the content of the executive. On the city's 80 basic farmland protection areas, the protection film 1957 block of basic farmland protection must be the establishment of a fixed signs, the establishment of basic farmland protection accounting, will implement the basic plot of farmland, farmers. Establishment and improvement of basic farmland dynamic inspection system, improve the city, town, village, group 4 dynamic network system, and insist on carrying out inspections on a regular basis. In basic farmland protection, "five are not allowed," as the goal, against the indiscriminate use of harsh violations of cultivated land, ensure that the city does not reduce the total amount of basic farmland, uses does not change, the quality has been improved.

    (B) the full support of key projects. With the city's Investment constantly stepped up, the project settled in increasing year by year, land demand is also increasing. In order to ensure that the project attracted to come up real, we strive for positive land use plans to ensure that construction projects are to be used. The average indicators in the province issued on the basis of provincial transfers annually to the city's addition of 1,000 acres or more land-use plan, there is no plan targets for the control of the affected projects. Since 2003, the city has accumulated a batch of 23 projects submitted for approval site materials, seek up to 7355 acres of land-use plan, and to better meet the city's key projects and urban construction land needs.

    (C) The optimal allocation of land resources. In recent years, the city issued a "on the strengthening land asset management notice", "land use rights on the commercial bidding, auction listing notification", "Urban Land Asset Management Implementation Measures", "Interim Measures on urban land reserve," " With regard to the strict implementation of commercial land use right transfer notice of public bidding, auction listing, "regulate the land market and a series of documents, from policy to build a fair, just and open market environment. Since 2003, the city commercial land fully integrated into the "bills hanging film" scope, since last year, industrial land are included in "moves, shoot link" sequences, the city construction land market gradually standardized, legal track. Only in 2008 the city to acquire land bank of 1,100 acres, more than doubled last year, bidding, auction and listing of state-owned land use right transfer of 118, an area of nearly 472 acres of land realizable assets of 1.2 billion.

    In the new construction land use plans, tightening of the circumstances, we make an inventory of the stock of land from the start, so that a planned and systematic use of existing land. 5 years, the city's acquisition of reserve land 202, make an inventory of inefficient and idle nearly 6,000 acres of land. At the same time, strictly control the allocation of land areas, especially the strict control of private land for construction, focus on cultivating a mature land market system, and improving the urban land use structure, improving land use efficiency, so that to optimize the layout of the city's land, government land revenue to achieve the greatest technology, the normalization of the land market development.

    (D) to protect the legitimate rights and interests of farmers. In recent years, the city actively explore the long-term livelihood of farmers whose land is requisitioned, issued a "farmers whose land is requisitioned the basic old-age insurance," the "landless peasants living in difficult subsidy approach" and other relevant policies and resettlement of landless peasants, landless peasants living allowance, was endowment insurance policies landless farmers gradually standardized. Therefore, materials, land acquisition and approval process, we always adhere to the relevant policies and land in accordance with a unified annual output value standard, and being the land requisition land requisition compensation agreements entered into village and to ensure that the relevant standard of compensation in line with policies and regulations; in land acquisition implementation process, and always adhere to the "two Notice a registration "system, that is informed before the levy, batch after the announcement, will be paid compensation related to the books home from the territorial units and land agencies to be registered for the record, improve the transparency of land acquisition, and insisted on not the implementation of compensation is not approval, not of land supply in order to ensure the long-term livelihood of farmers whose land is being implemented, in order to create a harmonious economic and social development of the social environment.

    (E) to strengthen the ranks. To achieve the acceleration of Qianjiang City, the domain of economic development, including land and mineral resources needed, including a large number of factors of production inputs. Ministry of Land and goalkeeper further strengthen the cadre ranks, and strictly implement the line Shouwenzeren system, once this system, administrative system to affix political blame and other related systems, a more consciously to the work of Land and Resources put in the city's overall economic and social development to plan, establish more intense global consciousness, the first sense, innovation, and strive for economic and social development resources and support.