自然资源资产管理:理论逻辑与改革导向
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摘要
研究目的:针对自然资源资产管理的理论诠释不清、改革导向不明、自然资源的资产属性尚未充分体现等问题,本文立足新时代党和国家机构改革背景,分析自然资源资产管理的理论逻辑,明确未来自然资源资产管理的改革方向。研究方法:文献研究法,综合分析法。研究结果:新时代自然资源资产管理应当基于"权利—价值—经营—管理"的理论逻辑体系框架,其中自然资源资产权利应当包含自然资源资产所有权、资格权、使用权和管理权等对象内涵,以完整、明晰和稳定作为权利实现要求;自然资源资产价值显化应当基于生态、经济等价值的全面认知,针对不同资产类型分类采用不同价值评估方法,完善市场培育、价值调节和公平分配机制;自然资源资产经营既要保障粮食安全、生态安全和规避可能风险,又要实现高品质利用,因而应当以底量保安全,以存量、数量、质量、差量和流量保协同,优化完善编制资产负债表;自然资源资产管理则应当打破自然资源资产管理割裂的现状,实现系统统一管理并建立全平台、全过程、全资源和全空间的综合监督机制。研究结论:自然资源资产管理应以"三维立体多权化"、"生态价值具象化"、"安全品质六量化"和"系统监管综合化"为改革导向,以期全面推进未来多维、绿色、高效、安全、品质、有序的自然资源资产管理方式的切实实现。
The purpose of this paper is to analyze the theoretical logic of natural resource asset management based on the reform of institutional restructuring in the new era, in response to the problems that theoretical interpretation is not sufficiently clear, reform orientation is ambiguous, and asset attributes of natural resources have not been fully reflected. The methods of literature review and comprehensive analysis are used. The results show natural resource asset management in the new era should be based on the theoretical logic system framework of "right-value-utilizationmanagement", the rights of natural resource asset contain the connotation of natural resource asset ownership, membership right, use right and management right, with completeness, clarity and stability as the realization requirements of rights.Furthermore, the fulfillment of the natural resource asset value should be based on a comprehensive cognition of the values of ecology, economy, etc, should apply different value assessment methods for different types of asset, and should improve market cultivation, value adjustment and fair distribution mechanism. Natural resource asset utilization should not only ensure food security, ecological security and avoid potential risks, but also achieve high quality of management.Therefore, it is necessary to ensure safety by bottom quantity, ensure coordinated development with stock, quantity,quality, difference and flow, and compile natural resource balance sheets. Finally, natural resource asset management should resolve the fragment of natural resource asset management to unify management system and establish integrated supervision mechanism with the entire platform, process, resource types and space. In conclusion, natural resource asset management should orientate as "multiple rights within three-dimensional space", "fulfillment of ecological value","safety and high quality of utilization in six dimensions" and "integration of supervision and management mechanism",with a view of comprehensively promoting the realization of multidimensional, green, efficient, safe, quality and orderly natural resource asset management in the future.
The purpose of this paper is to analyze the theoretical logic of natural resource asset management based on the reform of institutional restructuring in the new era, in response to the problems that theoretical interpretation is not sufficiently clear, reform orientation is ambiguous, and asset attributes of natural resources have not been fully reflected. The methods of literature review and comprehensive analysis are used. The results show natural resource asset management in the new era should be based on the theoretical logic system framework of "right-value-utilizationmanagement", the rights of natural resource asset contain the connotation of natural resource asset ownership, membership right, use right and management right, with completeness, clarity and stability as the realization requirements of rights.Furthermore, the fulfillment of the natural resource asset value should be based on a comprehensive cognition of the values of ecology, economy, etc, should apply different value assessment methods for different types of asset, and should improve market cultivation, value adjustment and fair distribution mechanism. Natural resource asset utilization should not only ensure food security, ecological security and avoid potential risks, but also achieve high quality of management.Therefore, it is necessary to ensure safety by bottom quantity, ensure coordinated development with stock, quantity,quality, difference and flow, and compile natural resource balance sheets. Finally, natural resource asset management should resolve the fragment of natural resource asset management to unify management system and establish integrated supervision mechanism with the entire platform, process, resource types and space. In conclusion, natural resource asset management should orientate as "multiple rights within three-dimensional space", "fulfillment of ecological value","safety and high quality of utilization in six dimensions" and "integration of supervision and management mechanism",with a view of comprehensively promoting the realization of multidimensional, green, efficient, safe, quality and orderly natural resource asset management in the future.
引文
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[24]COSTANZA R, DARGE R, DE GROOT R, et al. The value of the world’s ecosystem services and natural capital[J]. World Environment, 1997, 387(6630):253-260.
[25]王莉雁,肖燚,欧阳志云,等.国家级重点生态功能区县生态系统生产总值核算研究——以阿尔山市为例[J].中国人口·资源与环境,2017,27(3):146-154.
[26]严立冬,陈光炬,刘加林,等.生态资本构成要素解析——基于生态经济学文献的综述[J].中南财经政法大学学报,2010,53(5):3-9,142.
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[30]胡象明,唐波勇.整体性治理:公共管理的新范式[J].华中师范大学学报(人文社会科学),2010,49(1):11-15.
[31]叶榅平.完善自然资源国家所有权行使人大监督立法的法理思考[J].学术月刊,2018,50(6):78-88.
[32]田贵良.新时代国有自然资源资产监管体制改革的经济学逻辑[J].甘肃社会科学,2018(2):237-243.
[2]中国政府网.中共中央国务院关于加快推进生态文明建设的意见[EB/OL].(2015-05-05)[2019-03-15]. http://www.gov.cn/xinwen/2015-05/05/content_2857363.htm.
[3]中央政府门户网站.中共中央国务院印发《生态文明体制改革总体方案》[EB/OL].(2015-09-21)[2019-03-15].http://www.gov.cn/guowuyuan/2015-09/21/content_2936327.htm.
[4]新华社.习近平:决胜全面建成小康社会夺取新时代中国特色社会主义伟大胜利——在中国共产党第十九次全国代表大会上的报告[EB/OL].(2017-10-27)[2019-03-15]. http://www.xinhuanet.com//politics/19cpcnc/2017-10/27/c_1121867529.htm.
[5]蔡运龙.自然资源学原理[M].北京:科学出版社,2000:17-18.
[6]胡咏君,谷树忠.自然资源资产研究态势及其分析[J].资源科学,2018,40(6):1095-1105.
[7]陈振明.从公共行政学、新公共行政学到公共管理学——西方政府管理研究领域的“范式”变化[J].政治学研究,1999(1):82-91.
[8]董祚继.统筹自然资源资产管理和自然生态监管体制改革[J].中国土地,2017(12):8-11.
[9]马永欢,陈丽萍,沈镭,等.自然资源资产管理的国际进展及主要建议[J].国土资源情报,2014(12):2-8,22.
[10]谢花林,舒成.自然资源资产管理体制研究现状与展望[J].环境保护,2017,45(17):12-17.
[11]严金明,王晓莉,夏方舟.重塑自然资源管理新格局:目标定位、价值导向与战略选择[J].中国土地科学,2018,32(4):1-7.
[12]谢高地,曹淑艳,王浩,等.自然资源资产产权制度的发展趋势[J].陕西师范大学学报(哲学社会科学版),2015,44(5):161-166.
[13]谷树忠.自然资源资产及其负债表编制与审计[J].中国环境管理,2016,8(1):30-33.
[14]封志明,杨艳昭,陈玥.国家资产负债表研究进展及其对自然资源资产负债表编制的启示[J].资源科学,2015,37(9):1685-1691.
[15]吴健.环境和自然资源的价值评估与价值实现[J].中国人口·资源与环境,2007,17(6):13-17.
[16]蔡春,毕铭悦.关于自然资源资产离任审计的理论思考[J].审计研究,2014(5):3-9.
[17]马永欢,吴初国,苏利阳,等.重构自然资源管理制度体系[J].中国科学院院刊,2017,32(7):757-765.
[18]董祚继.关于新时代自然资源工作使命的思考[J].国土资源,2018(4):13-17.
[19]吴易风.产权理论:马克思和科斯的比较[J].中国社会科学,2007(2):4-18,204.
[20]严金明,迪力沙提,夏方舟.乡村振兴战略实施与宅基地“三权分置”改革的深化[J].改革,2019(1):5-18.
[21]王克稳.行政许可中特许权的物权属性与制度构建研究[M].北京:法律出版社,2015:270.
[22]吉登艳,马贤磊,石晓平.林地产权对农户林地投资行为的影响研究:基于产权完整性与安全性——以江西省遂川县与丰城市为例[J].农业经济问题,2015,36(3):54-61,111.
[23]严金明,陈昊,夏方舟.深化农村“三块地”改革:问题、要义和取向[J].改革,2018(5):48-55.
[24]COSTANZA R, DARGE R, DE GROOT R, et al. The value of the world’s ecosystem services and natural capital[J]. World Environment, 1997, 387(6630):253-260.
[25]王莉雁,肖燚,欧阳志云,等.国家级重点生态功能区县生态系统生产总值核算研究——以阿尔山市为例[J].中国人口·资源与环境,2017,27(3):146-154.
[26]严立冬,陈光炬,刘加林,等.生态资本构成要素解析——基于生态经济学文献的综述[J].中南财经政法大学学报,2010,53(5):3-9,142.
[27]PEARCE D, MARKANDYA A, BARBIER E. Blueprint for a Green Economy[M]. Londun:Earthscan, 1989:70-78.
[28]YAN J, CHEN H, XIA F. Toward improved land elements for urban-rural integration:a cell concept of an urban-rural mixed community[J]. Habitat International, 2018, 77:110-120.
[29]YAN J, SHEN Y, XIA F. Differentiated optimization of sustainable land use in metropolitan areas:a demarcation of functional units for land consolidation[J]. Sustainability,2017, 9(8):1356.
[30]胡象明,唐波勇.整体性治理:公共管理的新范式[J].华中师范大学学报(人文社会科学),2010,49(1):11-15.
[31]叶榅平.完善自然资源国家所有权行使人大监督立法的法理思考[J].学术月刊,2018,50(6):78-88.
[32]田贵良.新时代国有自然资源资产监管体制改革的经济学逻辑[J].甘肃社会科学,2018(2):237-243.
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