自然资源资产收益中央-地方分配机制的规范建构

Normative construction of the central⁃local distribution mechanism of natural resource assets income

自然资源资产收益中央-地方(以下简称央地)分配机制的合理建构对于理顺央地自然资源收益主体关系、落实自然资源国家所有者权益、提升自然资源开发区域生态补偿能力、促成自然资源资产收益在央地两级层面的规模增长和科学利用具有积极意义。在现行制度表征上,自然资源资产收益央地分配机制的实施依托于央地分权的自然资源资产管理框架,并呈现出地方收益为主的规制结构。在这一规制结构下,一方面,央地自然资源资产管理事权、自然资源资产管护职责无法与收益分配结果相衔接,造成央地自然资源资产管理权责利的失衡;另一方面,制约了自然资源资产收益的国家宏观调控能力,导致国家所有权收益缺失,增加了地方“资源诅咒”经济增长和资源收益区域间配置不均衡的风险。收益央地分配机制需要规范建构,旨在通过收益分配实现央地自然资源资产管理的权责对等和利益均衡。在路径上,以优化调整央地自然资源资产管理事权关系为起手,以确立中央主导支配的自然资源资产收益机制为过程,以建立基于事权划分的央地收益弹性管理机制为结果,通过央地权责一体连结机制、权责弹性划分机制、收益地方弹性留存机制、收益央地横纵向流动机制和地方留存收益科学管理机制的实施,确保自然资源资产收益在央地分配层面的秩序和效益。

The rational construction of the central-local distribution mechanism of natural resource assets income has a positive effect on rationalizing the relationship between the central and local natural resource assets income bodies,realizing the rights and interests of natural resource owners,enhancing the ecological compensation capacity of the natural resource development regions,and contributing to the growth in the scale and scientific utilization of natural resource assets income at the central and local levels.In the current sys⁃tem,the implementation of the central-local distribution mechanism of natural resource assets income is based on the central-local de⁃centralized natural resource asset management framework and presents a regulatory structure in which local income is dominant.Under this regulatory structure,on the one hand,the natural resource governance authority and natural resource management responsibilities after the central-local decentralization cannot be connected with the central-local income distribution results,resulting in an imbalance of central-local natural resource asset management rights,responsibilities,and benefits.On the other hand,it also restricts the national macroeconomic regulation ability of natural resource assets income,leads to a lack of national ownership income,and increases the risk of regional'resource curse'economic growth and uneven allocation of resource returns among regions.The income central-local alloca⁃tion mechanism needs to be constructed in a standardized manner,aiming to achieve a balance of power,responsibility,and interests in the management of central-local natural resource assets through income distribution.In terms of pathways,we should start with the opti⁃mization and adjustment of the relationship between the central and local authorities in the management of natural resource assets,es⁃tablish a mechanism for the central government to dominate and control the natural resource assets income,and set up a mechanism for the flexible income management of the central and local authorities based on the division of authorities.We should also ensure that the natural resource assets income is distributed between central and local authorities in an orderly and efficient manner,and this should be achieved by implementing a mechanism for the integration of central and local authorities and responsibilities,a mechanism for flexible division of authorities and responsibilities,a mechanism for flexible retention of the income by localities,a mechanism for horizontal and vertical flow of income between the central and local authorities,and a mechanism for scientific management of locally retained in⁃come.