作者：邓海峰
作者介绍：清华大学法学院副教授，法学博士
出版日期：2021年4月9日
内容提要 承载生态文明体制改革政策期待的自然资源资产所有权是一种具有明确主 体和客体，已实现规范化和生态化的权利形态。在自然资源资产所有权初始配置上，应当区分 法律授权地方政府代表国家行使和国务院委托地方政府行使两种不同的模式。在法律授权 模式下，地方政府应当行使完整的所有权权能，并通过对包括自然生态空间和生态容量资源在 内的九类自然资源资产客体与功能的合理划分，界定在不同类型法律关系中政府的权力边界， 以有效防止权力滥用。在委托模式下，所有权的权能则应当被限制在国务院的授权范围之内。 中央层面暂不适宜组建“自然资源国资委”，地方层面原则上由地方政府行使自然资源资产所 有权，对于部分特殊自然资源资产，应该改由国家通过派出机构监管的方式直接行使自然资源 资产所有权。在收益分配上，需要综合考虑自然资源的类型特点、收益分配现状以及正负外部 性影响设计专门的分配机制。
关键词 生态文明体制改革 自然资源资产 国家所有 分级行使
Abstract: The ownership of natural resources assets, which bears the expectations of the reform of the ecological civilization system, is a form of rights that has a clear subject and object, and has achieved standardization and ecologicalization. In the initial allocation of the ownership of natural resource assets, it is necessary to distinguish the two different initial allocation methods: ownership of natural resource assets authorized by law and ownership of natural resource assets entrusted by the State Council to local governments. Under the mode of legal authorization, local governments should exercise complete powers and functions, and define the boundaries of government power in different types of legal relations by reasonably dividing the objects and functions of nine types of natural resources assets, including natural ecological space and ecological capacity resources, so as to effectively prevent the abuse of power. Under the entrust mode, the power of ownership should be limited within the scope of the central government’s authorization. In principle, local governments should exercise ownership of natural resource assets. For some special natural resource assets, the state should directly exercise ownership of natural resource assets through the supervision of dispatched agencies. In terms of the income distribution, the characteristics of natural resources, the status quo of income distribution and its positive and negative externalities on local areas need to be considered comprehensively to formulate special distribution methods.