优化全民所有自然资源资产所有权管理研究——基于区分所有权与监管权的视角

Study on Optimizing Ownership Management of Natural Resource Assets Owned by the Whole People——Based on the Perspective of Distinguishing Ownership and Regulatory Power

健全国家自然资源资产管理体制,统一行使全民所有自然资源资产所有者职责,区分所有权和监管权是关键和突破口。“两权”不分导致自然资源资产化管理理念难以转变、所有者权益保护不到位、监管失效以致收益流失等问题。文章从问题产生的根源、现实表现和管理困境三个方面分析了“两权”区分对于完善所有权管理的必要性,并在分析区分“两权”的特征和内涵基础上,提出了“权利(力)设立初衷-管理对象性质-行权方式及适用法律和关系”的区分路径,最后基于“两权”区分提出了优化所有权管理的建议:①从现行土地等自然资源资产管理中识别出“两权”具体混淆之处并进行合理区分;②通过明确所有者职责内涵、分级代理行权履职,构建和完善所有权管理体系;③推动“两权”有机统一,行使所有权要遵守监管要求,行使监管权要有利于资产保值增值。

The distinction between ownership and regulatory power (hereafter referred to as "two rights") is the key and breakthrough point of improving the national natural resource asset management system and unifying the execution of the owner's responsibilities of the natural resource assets owned by the whole people.The lack of distinction between the "two rights" has led to problems including difficulty in changing the concept of natural resource capitalization management,inadequate protection of owner's rights and interests,and ineffective supervision leading to the loss of revenue.The paper analyzed the necessity of distinguishing the above "two rights" to the improvement of the management of ownership from three aspects of the problems stem,the actual manifestations,and the management dilemmas.Based on the analysis of distinguishing the characteristics and connotation of the "two rights",the paper proposes a distinguishing way of "the original intention of establish the right(power)–the nature of the management object–the way,applicable laws,and relations of exercising the right(power)".Finally,it puts forward suggestions for optimizing the management of property rights based on distinguishing the "two rights":①Identify the concrete confusion between the "two rights" in the current management of land and other natural resource assets,and make a reasonable distinction.②Establish and improve the ownership management system by clarifying the content of the owner's responsibilities and performing the rights and duties of hierarchical agents.③Promote the organic unity of the "two rights" with the execution of ownership complying with the requirements of supervision,and the execution of supervision contributing to the maintenance and enhancement of asset value.