自然资源资产价值实现与资源环境要素市场化配置协同机制研究

Synergistic Mechanisms between Natural Resource Asset Value Realization and Market-Based Allocation of Resource and Environmental Factors

摘要: 2025年《中共中央办公厅 国务院办公厅关于健全资源环境要素市场化配置体系的意见》明确到2027年，碳排放权、用水权交易制度基本完善，排污权交易制度建立健全。但自然资源资产管理与资源环境要素配置分属不同部门，二者如何有效协同成为政策实施的关键问题。本文基于协同治理与整体性治理理论，构建“确权–整备–增值开发–价值转化”四阶段分析框架，系统剖析自然资源资产价值实现与资源环境要素市场化配置的衔接逻辑。研究表明：确权阶段应构建“资产层产权 + 容量层产权”的双层产权体系；整备阶段应建立国土空间规划与要素配额分配的联动机制，打通“生态整备→容量增量→要素指标”转化通道；增值开发阶段应以要素约束与绿色激励引导开发路径优化；价值转化阶段应构建双市场协同出清与“市场价格→资产重估”的逆向反馈。本文从制度、数据与利益三个维度提出系统性保障，旨在推动形成“保护–价值–市场–再保护”的良性循环。

Abstract: Opinions of the General Office of the CPC Central Committee and the General Office of the State Council on Improving the System for Market-based Allocation of Resources and Environmental Factors in 2025 sets the goal of basically completing the markets for carbon emission rights, water use rights, pollution discharge rights, and energy use rights by 2027. However, natural resource asset management and resource and environmental factors allocation are governed by different departments, making their effective coordination a critical policy challenge. Based on collaborative governance and holistic governance theories, this paper constructs a four-stage analytical framework—“rights confirmation, natural resource asset consolidation, value-added development, and value transformation”—to systematically analyze the linkage logic between natural resource asset value realization and market-based allocation of resource and environmental factors. The findings indicate that: a dual-layer property rights system of “asset-layer rights + capacity-layer rights” should be established at the rights confirmation stage; a linkage mechanism between territorial spatial planning and factors quota allocation should be built at the natural resource asset consolidation stage, opening a transformation channel of “ecological consolidation → capacity increment → element quotas”; quota constraints and green incentives should guide the optimization of development pathways at the value-added development stage; and a coordinated clearing mechanism between dual markets with reverse feedback from market prices to asset revaluation should be constructed at the value transformation stage. This paper proposes systematic safeguards from institutional, data, and interest dimensions to promote a virtuous cycle of “protection-value-market-reprotection”.