中国水资源配置“两手发力”的实现路径——再论“三权分置”水权制度改革

The implementation path of China s water resource allocation by giving full play to the roles of both government and market:on the reform of the water rights system of“Three Rights Separation”

推动政府和市场两手协同发力,是新时期治水面临的重大课题。在水资源配置中引入市场机制存在多种途径和形式,其中建立水权市场需要满足一系列精细苛刻的条件,加之中国独特的国情因素,在我国建立一套有效运行的水权市场成本很高。回顾2000年以来的实践,我国水权市场改革面临过程曲折、市场规模较小、市场收益有限、制度问题凸显等困境,一定程度上印证了有关理论认识。我国未来可以继续推进水权市场改革,但不宜将一套系统完整的水权市场作为改革目标。为了解决我国水权市场改革面临的困境,更好地利用水权政策工具服务“两手发力”,借鉴我国农村土地“三权分置”改革经验,提出“三权分置”的水权制度设计,将水资源的所有权、取水权和使用权三项权利分置,并阐述了具体改革思路及其价值。

Promoting the coordinated efforts of the government and the market is a major issue of water management in the new era.The introduction of water resource allocation into the Chinese market is realizable via multiple methods.However,the establishment of a water rights market needs to meet a series of delicate and demanding conditions.Considering China s national conditions,it is costly to establish an effectively functioning water rights market in China.Looking back at the practice since the new century,China s water rights market reform has faced difficulties such as tortuous policy processes,small market size,limited market returns,and prominent institutional issues,which to some extent confirm the relevant theoretical understanding.China can continue to promote the reform of the water rights market in the future,but it is not advisable to set the establishment of a complete and systematic water rights market as the reform goal.In order to solve the difficulties faced by China s water rights market reform and better utilize water rights policy tools to serve the“giving full play to the roles of both government and market”,drawing on China s experience in the“three rights separation”reform of agricultural land,a“three rights separation”water rights system design is proposed,which separates the ownership,water withdrawal,and use rights of water resources.Elaborations of specific reform ideas and values are also provided.