我国自然资源管理制度变迁与资产产权制度优化

CHINA’S NATURAL RESOURCES ADMINISTRATION SYSTEM EVOLUTION AND ASSETS PROPERTY SYSTEM OPTIMIZATION

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。

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.