我国自然资源管理制度变迁与资产产权制度优化

doi:10.13776/j.cnki.resourcesindustries.20221027.002

摘要/Abstract

摘要：

我国自然资源管理历经数十年，作为生态文明建设的助力剂，自然资源管理制度为中国的资源利用和保护起到了非常重要的保障作用，但在我国现行的自然资源管理制度中还存在着权利与责任主体缺失，领导与管理主体重叠等弊端，造成了自然资源所有权主体不明、确权边界模糊、产权保护力度不足等一系列问题。为了寻求解决问题的办法，本文依据产权理论，以“十四五规划和2035年远景目标纲要”为指导，从阐述我国自然资源管理制度变迁入手，借助“制度变迁-问题探讨-路径优化”的研究框架，运用庇古税、科斯定理、新制度经济学理论，定性分析自然资源资产产权制度的优化方向。研究结果表明：1）我国自然资源管理制度的变迁呈现出权属主体逐步明确，所有权与使用权分离的发展趋势；2）自然资源资产市场同为制度市场，政府作为市场的维系者，应当合理利用权力划定市场边界、制定市场规则；3）制度绩效通常多与政府和市场的双方博弈相关，为了促进产权绩效提升，产权制度需要围绕“归属-权责-保护-流转-监管”5大环节进行全面优化，从而构建自然资源资产产权制度的整体闭环系统。为了进一步完善我国自然资源资产产权制度，第一，应当明确产权权属，依托具有监管效力的分级委托代理制度来实现法律主体上的产权清晰；第二，应当厘清登记核算内容，搭建自然资源资产信息管理平台，以精准把握“资产家底”，并利用生态保护补偿机制支持保护制度、加强保护力度、保障市场交易；第三，应当通过市场化交易平台提升自然资源资产配置效率，推动资产存量到资本增量的转变；第四，应当健全监督管理体系，通过全过程综合监管机制适当缩减政府权力清单，避免行政监管的垄断。

关键词:

text-align:left, "> 自然资源资产产权制度；制度变迁；产权理论；生态文明建设

Abstract:

China’s natural resources administration system has provide a vital guarantee for natural resources use and protection over the past decades as a booster to ecological civilization construction, but it still has shortages in lack of rights and responsibilities and in overlapping of leadership and management, leading to lots of issues in unclear ownership subject of natural resources, fuzzy boundary of right confirmation and insufficient protection of property rights. This paper uses property rights theory to analyze the evolution of China’s natural resources administration system under guideline of “the 14th Five-Year Plan”and “2035 Outlook”, establishes a research framework of “system evolution-issues discussion-approach optimization”, and applies Pigovian tax, Coase Theorem, and new system economics theory to qualitative analysis of the natural resources assets property rights system optimization direction. Its evolution of natural resources administration system shows a clarifying ownership at a trend of separation of ownership and using right. Governments as the administrator of market shall uses power to mark market limit and make marketing rules. System performance is mainly related to the gaming between governments and markets, which may be promoted by optimizing the property rights system of “affiliation-rights & responsibilities-protection-transfer-supervision”. The research concludes that in order to improve the natural resources assets property rights system in our country, we should clarify the property rights, and realize the property rights in the legal subject clearly relying on the regulatory effect of the classification agent system. The content of registration and accounting should be clarified, and the information management platform of natural resources assets should be built to accurately grasp the assets, and use the ecological protection compensation mechanism to support the protection system, strengthen the intensity of protection, guarantee market transactions. Marketized trading platform shall be used to improve the allocating efficiency of natural resources, to transfer asset stock to asset increment. Supervision system shall be improved in all process which limits governmental power lists to avoid governmental monopoly.

Key words: property rights system of natural resources assets, system evolution, property rights theory, ecological civilization construction

中图分类号:

F205

田贵良, 梁岚, 吴正, 等. 我国自然资源管理制度变迁与资产产权制度优化[J]. 资源与产业, 2022, 24(6): 1-13.

TIAN Guiliang, LIANG Lan, WU Zheng, et al. CHINA'S NATURAL RESOURCES ADMINISTRATION SYSTEM EVOLUTION AND ASSETS PROPERTY SYSTEM OPTIMIZATION [J]. Resources & Industries, 2022, 24(6): 1-13.

参考文献

安海忠, 钟维琼, 何波, 等, 2013. 全球能源管理体制分析[J]. 资源与产业,15(6): 1-6.〔AN H Z, ZHONG W Q, HE B, et al, 2013. Study on global energy management system[J]. Resources & Industries, 15(6): 1-6.〕

安海忠, 李华姣, 2022. 战略性矿产资源全产业链理论和研究前沿[J]. 资源与产业, 24(1): 8-14.〔AN H Z, LI H J, 2022. Theory and research advances in whole industrial chain of strategic mineral resources[J]. Resources & Industries, 24(1): 8-14.〕

崔久富, 郭贯成, 范怀超, 等, 2021. 全民所有自然资源资产核算的中国方案: 基于土地分等定级的启示[J]. 中国土地科学,35(1): 18-25.〔CUI J F, GUO G C, FAN H C, et al, 2021. China’s solution to state-owned natural resources assets accounting: implications from land classification and grading [J]. China Land Science, 35(1): 18-25.〕

邓海峰, 2021. 生态文明体制改革中自然资源资产分级行使制度研究[J]. 中国法学(2): 285-304.〔DENG H F, 2021. Research on the graded exercise system of natural resource assets in the reform of ecological civilization system[J]. China Legal Science(2): 285-304.〕

谷树忠, 2019. 关于自然资源资产产权制度建设的思考[J]. 中国土地(6): 4-7.

郭贯成, 崔久富, 李学增, 2021. 全民所有自然资源资产“三权分置”产权体系研究: 基于委托代理理论的视角[J]. 自然资源学报,36(10): 2684-2693.〔GUO G C, CUI J F, LI X Z, 2021. Design of property right system of “Three Rights Separation”of natural resource assets of the whole people: from the perspective of principal-agent theory[J]. Journal of Natural Resources, 36(10): 2684-2693.〕

胡咏君, 谷树忠, 2018. 自然资源资产研究态势及其分析[J]. 资源科学, 40(6): 1095-1105.〔HU Y J, GU S Z, 2018. Research trends and analysis of natural resource assets[J]. Resources Science, 40(6): 1095-1105.〕

黄贤金, 2021. 自然资源产权改革与国土空间治理创新[J]. 城市规划学刊(2): 53-57.〔HUANG X J, 2021. The reform of the natural resource property rights system and the innovation in territorial spatial governance[J]. Urban Planning Forum(2): 53-57.〕

李慧霞, 张雪梅, 2015. 基于SEEA框架的矿产资源资产负债表编制研究[J]. 资源与产业, 17(5): 60-65.〔LI H X, ZHANG X M, 2015. Balance sheet compilation of mineral resources based on SEEA framework[J]. Resources & Industries, 17(5): 60-65.〕

李杰, 陈超美, 2016. Citespace: 科技文本挖掘及可视化[M]. 北京: 首都经济贸易大学出版社.〔LI J, CHEN C M, 2016. Citespace: text mining and visualization in scientific[M]. Beijing: Capital University of Economics and Business Press.〕

林岗, 张宇, 2000. 产权分析的两种范式[J]. 中国社会科学(1): 134-145, 207.

刘超, 2018. 自然资源产权制度改革的地方实践与制度创新[J]. 改革(11): 77-87.〔LIU C, 2018. Local practice and institutional innovation in the reform of natural resources property rights system[J]. Reform(11): 77-87.〕

卢现祥, 李慧, 2021. 自然资源资产产权制度改革: 理论依据、基本特征与制度效应[J]. 改革(2): 14-28.〔LU X X, LI H, 2021. Reform of property right system of natural resources assets: theoretical basis, basic characteristics and institutional effects[J]. Reform(2): 14-28.〕

罗必良, 2017. 科斯定理: 反思与拓展—兼论中国农地流转制度改革与选择[J]. 经济研究, 52(11): 178-193.〔LUO B L, 2017. Rethinking and extension of the coase theorem: reform and choice of land circulation institutions in rural china [J]. Economic Research Journal, 52(11): 178-193.〕

丘水林, 庞洁, 靳乐山, 2021. 自然资源生态产品价值实现机制: 一个机制复合体的分析框架[J]. 中国土地科学, 35(1): 10-17, 25.〔QIU S L, PANG J, JIN L S, 2021. Value realization mechanism of ecological goods in natural resources: an analytical framework of the regime complex[J]. China Land Science, 35(1): 10-17, 25.〕

屈茂辉, 柳婷婷, 2020. 国务院代表国家行使自然资源所有权的法体系构造[J]. 湖南大学学报(社会科学版), 34(4): 127-136.〔QU M H, LIU T T, 2020. The legal construction of the state council representing the state to exercise the ownership of natural resources[J]. Journal of Hunan University (Social Science), 34(4): 127-136.〕

任恒, 2021. 自主治理何以可能: 审视埃莉诺·奥斯特罗姆自主治理思想的局限[J]. 社会科学论坛(3): 139-148.〔REN H, 2021.

How to make self-governance possible：on the limitations of Elinor Ostrom’s thought of self-governance[J]. Tribune of Social Sciences(3): 139-148.〕

史哲宇, 张蓉, 2020. 新时代生态产品文化价值实现路径研究[J]. 青海社会科学(6): 104-109.

谭荣, 2020. 自然资源产权制度研究: 理论与进展[J]. 中国土地科学, 34(2): 103-110.〔TAN R, 2020. Reforming natural resources property rights system: theory and progress[J]. China Land Science, 34(2): 103-110.〕

田贵良, 2018. 新时代国有自然资源资产监管体制改革的经济学逻辑[J]. 甘肃社会科学(2): 237-243.

王万山, 廖卫东, 2002. 中国自然资源产权市场应如何“转轨”[J]. 改革(6): 26-33.

肖国兴, 2021. 再论中国自然资源产权制度的历史变迁[J]. 政法论丛(1): 47-57.〔XIAO G X, 2021. Re-exploration on historical evolution regard to property rights system of natural resources in China[J]. Journal of Political Science and Law(1): 47-57.〕

严金明, 王晓莉, 夏方舟, 2018. 重塑自然资源管理新格局: 目标定位、价值导向与战略选择[J]. 中国土地科学, 32(4): 1-7.〔YAN J M, WANG X L, XIA F Z, 2018. Remold new pattern of natural resource management: target orientations, value guidelines and strategic choices[J]. China Land Science, 32(4): 1-7.〕

严金明, 2019. 自然资源资产产权制度改革的几个关键问题[J]. 中国土地(6): 8-10.

严金明, 张东昇, 夏方舟, 2019. 自然资源资产管理: 理论逻辑与改革导向[J]. 中国土地科学, 33(4): 1-8.〔YAN J M, ZHANG D S, XIA F Z, 2019. Natural resource asset management: theoretical logic and reform orientation[J]. China Land Science, 33(4): 1-8.〕

赵亚莉,龙开胜,2020. 自然资源资产全民所有权的实现逻辑及机制完善[J]. 中国土地科学, 34(12): 11-16, 43.〔ZHAO Y L, LONG K S, 2020. Realization logic and its mechanism improvement for state ownership of natural resource asset [J]. China Land Science, 34(12): 11-16, 43.〕

钟骁勇, 潘弘韬, 李彦华, 2020. 我国自然资源资产产权制度改革的思考[J]. 中国矿业, 29(4): 11-15, 44.〔ZHONG X Y, PAN H T, LI Y H, 2020. Thoughts on the reform of natural resources assets property rights system in China[J]. China Mining Magazine, 29(4): 11-15, 44.〕

BELLANGER M, FONNER R, HOLLAND D S, et al, 2021. Cross-sectoral externalities related to natural resources and ecosystem services[J]. Ecological Economics, 184: 106990.

BLUEMLING B, TAI H S, CHOE H, 2021. Boundaries, limits, landscapes and flows: an analytical framework for boundaries in natural resource management[J]. Journal of Environmental Management, 285: 112129.

DEMSETZ H, 1967. Toward a theory of propertyrights[J]. The American Economic Review, 57(2): 347-359.

LAI L W C, LORNE F, DAVIES S N G, 2020. A reflection on the trading of pollution rights via land use exchanges and controls: Coase Theorems, Coase’s land use parable, and Schumpeterian innovations[J]. Progress In Planning, 137: 100427.

SAMUELS W J, 1987. Liberty, market and state: political economy in the 1980s[J]. American Political Science Review, 81(1): 335-337.

VON AMSBERG J, 1993. Project evaluation and the depletion of natural capital: an application of the sustainability principle[R/OL]. (2018-06-06）[2022-01-07]https://documents1. worldbank. org/curated/en/281141493305447410/pdf/multi-page. pdf.

ZHOU Z B, ZHANG W G, PAN X X, et al, 2019. Environmental tax reform and the “Double Dividend” hypothesis in a small open economy[J]. International Journal of Environmental Research and Public Health, 17(1). DOI: 10. 3390/ijerph17010217.

[1]	潘海英, 陈玲, 任佳佳. 数字经济发展的碳减排效应研究——兼论异质性环境规制的调节作用[J]. 资源与产业, 2023, 25(6): 1-14.
[2]	韦庆明, 赵欣欣, 冯馨, 张苗苗. 环境规制、绿色创新与产业结构升级——基于省际面板数据的空间杜宾模型分析[J]. 资源与产业, 2022, 24(6): 54-63.