完善全民所有自然资源资产监督制度：现实诉求、理论逻辑与实现路径

doi:10.13776/j.cnki.resourcesindustries.20250307.001

摘要/Abstract

摘要： 完善全民所有自然资源资产监督制度是建立健全全民所有自然资源资产所有权委托代理机制的核心内容，更是推进生态文明建设、实现中国式现代化的关键制度保障。基于“现实诉求—制度演进—问题归纳—理论逻辑—实现路径”的研究框架，从自然资源资产监督的现实诉求出发，回顾了我国自然资源资产监督的制度演变，总结了现行监督制度的结构性矛盾，系统分析了制度优化的理论逻辑和优化路径。研究表明：1）我国现行监督制度以行政监督为主导，存在内部监督与外部监督衔接不畅、人大监督与司法监督效力不足、社会监督机制薄弱等结构性矛盾。这些问题不利于自然资源资产的保值增值、不利于生态安全边界的维护。2）完善监督制度需立足委托代理机制的内在诉求，在明晰监督责任主体的基础上，协调中央与地方财权事权、理顺政府与市场权能边界、平衡监督成本与效率，并通过责任追究和激励机制破解监管难题。3）完善自然资源资产监督制度需要搭建“行政监督—审计监督—人大监督—司法监督—社会监督”五位一体的监督体系。内部监督需优化行政监督的协同性，推动跨部门监管网络建设，明确自然资源督察机构权责清单；完善审计监督需要构建多维度审计指标体系，开发智能化审计管理系统，实现自然资源资产负债表与审计监督的深度耦合。外部监督应加强人大监督的法定效力，通过专项立法明确监督程序与问责机制；提升司法监督的权威性，完善自然资源公益诉讼制度与执法司法衔接机制；深化社会监督的参与度，建立信息公开平台与独立监督机构，推动公众监督从“运动式”向“法治化”转型。4）完善自然资源资产监督制度有助于破解当前自然资源资产管理中的委托代理困境，为落实生态文明建设目标、推动高质量发展提供制度支撑。

关键词: 自然资源资产, 监督制度, 内部监督, 外部监督

Abstract: Improving all-people-owned natural resource supervision system is the core content of constructing entrusting mechanism of all-people-owned natural resources ownership, and a key regime guarantee to advance eco-civilization construction and to realize Chinese-featured modernization. This paper, based on a research framework of “reality-system evolution-issues summary-theoretical logistics-approaches”, reviews the evolution of China's natural resources supervision system from its reality, and summarizes the structural conflicts of current supervision system, and analyzes the theoretical logistics and optimization approaches. China's current administrative supervision system has structural conflicts between internal and external supervision, congress supervision and judicial supervision, weak social supervision mechanism, all unfavorable for preserving or increasing the values of natural resources, and for maintaining an ecological security border. Improving supervision system needs to be aiming at internal requests of entrusting mechanism and based on clarifying responsibilities ownerships to coordinate central and local financing powers, boundary of government and market, balancing supervision costs and efficiency, and resolve the puzzle of supervision through responsibilities and stimulation. Improving natural resources supervision system needs to construct a five-in-one of “administrative supervision-audit supervision-congress supervision-jurisdictional supervision-public supervision”. Internal supervision needs to be collaborative with administrative supervision by means of construction supervision network across departments and clarifying the responsibilities of natural resources authorities. Audit supervision needs multiple dimensional audit index system and a smart audit system to realize a deep coupling between natural resources B&L and audit supervision. External supervision shall enforce congress's legal efforts by determining its supervision process and responsibilities through specific legislation. Judicial supervision needs to increase its authority by improving a linking mechanism between public interests' lawsuit system of natural resources and law enforcement. Public supervision shall be boosted by setting up information platform and independent supervision agents turning it from “campaigning style” to “legalized style”. Improving natural resources supervision system can help the entrusting dilemma in natural resource assets management and provide supports for reaching ecological civilization objectives and driving a quality development.

Key words: natural resource assets, supervision system, internal supervision, external supervision

中图分类号:

F205

苑帅, 成金华, 王争艳, 李光, 陈嘉浩, 郭永颖. 完善全民所有自然资源资产监督制度：现实诉求、理论逻辑与实现路径[J]. 资源与产业, 2025, 27(3): 1-9.

YUAN Shuai, CHENG Jinhua, WANG Zhengyan, LI Guang, CHEN Jiaohao, GUO Yongying. IMPROVING ALL-PEOPLE-OWNED NATURAL RESOURCES SUPERVISION SYSTEM: REALITY, THEORETICAL LOGICS AND APPROACHES[J]. Resources & Industries, 2025, 27(3): 1-9.

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