从要素管控到系统治理:转型逻辑下的省级自然资源规划

From element control to system governance:Provincial natural resources planning under the transformation logic

生态文明新时代下,我国已经迈入自然资源管理逐步走向全面统一管理新阶段,自然资源的整体共生性空前强化,多功能性需求逐步彰显,思索作为自然资源治理基础性工具的省级自然资源规划转向何处,对于思辨自然资源治理关键问题,明确自然资源治理目标方向,通过发挥省级资源规划战略引领、政治引导、目标考核等功能促进自然资源治理体系和治理能力现代化具有重要理论与现实意义。文中探讨了省级自然资源规划演进历程,从规划定位、内容、程序视角分析了规划转型特征,提出规划在从要素管控向系统治理转变过程中,面临“地位彰显-定位缺失”、“面面俱到-重点突出”、“编制程序规范-实施机制缺失”三重转型困境。文中指出实现“要素-系统”弥合的三条路径:规划定位上,编制省级自然资源规划应在细化落实国家级自然资源规划对省域自然资源治理目标任务安排的同时,衔接省级国民经济规划对省域自然资源治理的战略部署;规划编制思路内容上,应基于系统治理思维下的“资源-管理-建设”三重规划属性统筹考虑规划编制重大问题;规划编制实施程序上,应基于“总结问题-定位障碍-实施方案-体系构建”的理论逻辑,加强制度建设与实施机制建设。

In the new era of ecological civilization,China has entered a new stage of comprehensive and unified management of natural resources management,which the overall symbiosis of natural resources has been unprecedentedly strengthened and the demand for multi-function of natural resources is gradually highlighted.So,it has important theoretical and practical significance for thinking about the key issues of natural resources governance,and clarifying the objectives and direction of natural resources governance,etc.to rethink where the provincial natural resources planning,which is a basic tool for natural resources governance,should be going on.Based on experience,literature analysis,historical analysis,theoretical analysis and induction and deduction,we discuss the evolution of provincial natural resource planning from the dual historical logic:the relationship between government and market,the relationship between central and local governments.We analyze the transformation characteristics of provincial natural resources planning from the perspective of planning positioning,planning content and planning procedure,indicate the triple transformation dilemma in provincial natural resource planning,and propose three paths to achieve"element system"bridging.In all,as the bottom logic of natural resource planning system,improving the preparation and implementation of provincial natural resources planning plays an important role in promoting the modernization of natural resources governance capacity and governance system.The research on the orientation,theory,technology and self-transformation path of natural resource planning needs to be continuously and deeply promoted.