农林用地“纸面合规”违规占地的风险成因与农业管控对策研究

Study on Risk Causes and Agricultural Control Countermeasures of Illegal Land Occupation with “Paper Compliance” on Agro-Forestry Land

摘要: 在耕地保护、森林资源管护双线刚性约束与乡村产业用地供需矛盾持续激化的双重背景下，“纸面合规”已演变为农林用地隐性非农化、毁林占地的主流违法形态。本文融合史密斯政策执行模型与奥斯特罗姆IAD制度分析框架搭建林耕一体化协同治理分析逻辑，经营主体通过拆分项目单元、冒用林下经济与设施农业备案渠道、人为混淆农林交错地类、虚化耕地占补平衡约束等手段取得全套完备书面审批材料，实际擅自改变农林用地固有生产与生态功能，隐蔽性、规避监管能力显著强于传统无证占地。研究整合2024年第四季度至2025年第三季度自然资源部、国家林草局官方督察通报、挂牌督办案件台账与辽、鲁、湘、桂四省基层执法公开调研成果综合运用文献研究法、统计分析法、多案例比较分析法，系统界定农林用地“纸面合规”违规占地的内涵、类型与时空分布特征，依托双理论框架从制度供给、跨部门监管、市场主体利益、区域发展考核四维解构风险生成内在机理。实证案例检验表明：农林交错地类认定标准模糊、小微涉农项目备案重形式轻实质、多部门分段监管存在数据孤岛、区域产业发展与资源保护考核权重失衡是该类乱象持续高发的核心诱因。结合2025年全国农林用地专项整治实践，从政策细则重构、跨部门联合预审、智慧遥感动态监测、绩效考核体系改革、综合执法行刑衔接五大维度构建覆盖准入–过程–处置全链条的农林用地精细化管控体系。研究结论可为破解农林用地监管形式化困境、守住粮食安全与森林生态双重红线提供理论支撑与基层可落地的治理方案。

Abstract: Against the dual background of rigid protection requirements for cultivated land and forest resources, as well as growing conflicts between supply and demand of land for rural industries, the so-called “paper compliance” violation has evolved into the primary hidden illegal form of non-agricultural transformation and forest damage on agro-forestry land. This paper integrates Smith’s Policy Implementation Model and Ostrom’s Institutional Analysis and Development (IAD) Framework to establish an integrated collaborative governance logic for cultivated and forest land. Land operators acquire a full set of official approval documents through tactics including project splitting, fraudulent filing under the names of under-forest economy and facility agriculture, deliberate confusion of land categories in agro-forestry ecotones, and evasion of cultivated land occupation-compensation balance rules. In practice, however, they arbitrarily change the original production and ecological functions of agro-forestry land, and such violations are far more concealed and harder to supervise than traditional unapproved land occupation. This research draws on official supervision circulars and case ledgers released by the Ministry of Natural Resources and the National Forestry and Grassland Administration from the fourth quarter of 2024 to the third quarter of 2025, alongside grassroots law enforcement research data collected from Liaoning, Shandong, Hunan and Guangxi Provinces. Three research methods are adopted: literature review, statistical analysis and multi-case comparative analysis. Under the guidance of the two theoretical frameworks, this paper systematically defines the connotation and classification of “paper compliance” illegal land occupation, summarizes its spatial-temporal characteristics, and analyzes its risk formation mechanism from four dimensions: institutional supply, cross-departmental supervision, interests of market entities and regional performance assessment. Empirical case studies confirm that frequent violations mainly stem from ambiguous classification standards for agro-forestry transitional land, perfunctory filing procedures for small agricultural projects, data isolation among different government departments, and imbalanced weighting between industrial development and resource protection in assessment systems. Combined with the national special rectification campaign carried out in 2025, this study puts forward a full-process refined governance system covering project access, real-time supervision and violation disposal from five aspects: optimizing policy provisions, establishing cross-departmental joint pre-review mechanisms, deploying intelligent remote sensing dynamic monitoring, reforming performance appraisal systems, and realizing coordinated administrative-criminal law enforcement. The research findings can offer theoretical references and practical grassroots solutions to address superficial supervision loopholes and maintain the dual red lines of food security and forest ecological security.