自然资源有偿使用制度改革:演进、挑战与路径  

REFORM OF PAID USE SYSTEM OF NATURAL RESOURCES:EVOLUTION,CHALLENGES AND PATHS

作　　者：周璞 侯华丽 谭文兵 张惠 ZHOU Pu;HOU Huali;TAN Wenbing;ZHANG Hui(Chinese Academy of Natural Resources Economics,Beijing 101149,China)

机构地区：[1]中国自然资源经济研究院,北京101149

出　　处：《资源与产业》2024年第6期17-23,共7页Resources & Industries

基　　金：自然资源部门财政预算项目(121102000000180044)。

摘　　要：建立自然资源有偿使用制度是生态文明体制改革的重要任务之一,是深化自然资源要素市场化配置、推动高质量发展的制度保障。基于“逻辑辨析—制度演进—问题探讨—路径优化”的研究框架,论文从自然资源有偿使用的概念和基本逻辑辨析出发,梳理其政策演进,揭示改革推进中面临的主要问题和关键挑战,并探索制度优化的方向和路径,以期为进一步深化改革提供思路借鉴。研究结果表明:1)我国自然资源有偿使用制度总体经历了无偿使用、逐步有偿、市场发育、制度完善4个阶段,在有偿使用的范围、方式、权能、收益、监管等方面进行了不断探索与完善;2)不同类型资源改革进程不一,市场经济参与度高的经营性自然资源出现过度资产化问题,而生态属性突出的公益性自然资源交易市场发育迟缓;3)当前主要面临三大挑战,即,自然资源供给双轨制运行对政府与市场协同治理提出较高要求、上下游的产权和收益分配制度不完善影响改革进程和所有者权益的全面落实、不同类型资源改革进程分化严重难以适应资源组合供应和综合管理要求。为进一步完善自然资源有偿使用制度,首先,应坚持和而不合、统分结合的原则,强化顶层设计;其次,分别抓住准入管制和价格机制两个着力点,规范政府作用并充分发挥市场作用;最后,理顺权利主体间的经济关系,注重加强制度的闭环设计。Establishment of paid use system of natural resources is a key task for ecological civilization reform and a vital guarantee to deepen market-allocating natural resources and to drive a quality development.This paper,based on a research framework of“logic analysis-regime evolution-question discussion-path optimization”,analyzes its policy evolution and reveals the major issues and main challenges from the concepts of pay-for-using natural resources,and discusses the direction of and path to optimization with an intension to offer reference for further deepening reform.China's pay-for-using natural resources policy has undergone four stages,free-using,partially-pay-for-using,market-growing,and rule-optimizing,suggesting a continuous exploration and optimization in ranges,means,rights,gains and supervision.Reforming progress varies with resource categories,over-capitalization emerges in highly-market-involved commercial natural resources,but slowly-market-growth in natural resources of public interests.Three challenges are emerging,a higher requirement for synergism of governments and markets over dual supplies of natural resources,inappropriate property rights and gains distribution between upper-and down-stream,differentiated reform progress lagging behind resources supply and managements.For a purpose of optimizing paid use system of natural resources,this paper presents suggestions on top designing based on a principle of unified and division,on controlling entry and pricing mechanism in ruling governmental and market roles,and on clarifying economic relations among property owners and focusing on a loop designing of rules.

关 键 词：自然资源 有偿使用 政策演进 改革建议 

分 类 号：F205[经济管理—国民经济] F407