石油资源开发中的国家与区域利益协调发展研究
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摘要
石油资源是国民经济和社会发展的重要物质基础,石油资源开发会给经济社会发展带来不同的影响。从国际经验看,美国、挪威等国的石油资源开发为本国经济发展和工业化进程提供了资本积累,提升了区域发展能力；而尼同利亚、墨西哥等国的石油资源开发却更多导致了本国资源耗竭、区域发展衰退等问题。中国多年来的石油资源开发,在国家层面上加速了国民经济发展和社会工业化进程,但在区域层面上却消耗了大量的石油资源,造成了生态环境污染、区域发展能力不足等负效应问题,制约了资源开发区的可持续发展。究其原因,主要是我国现行的矿产资源收益分配体制不合理,石油资源开发中的国家与区域利益协调发展补偿机制不完善所致。
庆阳地处甘肃东部,多年来为我国经济发展在能源领域作出了巨大贡献,但伴随而来的是当地资源耗竭、生态环境污染、区域发展能力不足等负效应问题。我国石油资源实行一级所有一级开发管理体制,石油开发企业将部分收益上缴给国家财政,庆阳地方政府和本地居民既没有石油资源开采权,也没有被纳入到石油开发收益分配体系中,致使石油资源开发与庆阳区域经济发展不协调。再者,我国石油资源开发中的国家与区域利益协调发展补偿机制缺失,企业将资源耗竭、生态环境污染等社会成本转嫁给了当地政府和本地居民,但不予相应的补偿,严重影响了庆阳区域经济可持续发展。当前,破解庆阳石油资源开发中的经济发展难题,需要对石油资源开发造成的负外部性问题进行深入研究,通过构建合理的补偿机制,从根本上促进庆阳石油资源开发中的国家与区域利益协调发展。
本文选取庆阳这一典型的资源富集区作为研究案例,通过多次调查石油资源开发的现状,在吸收前人已有研究成果的基础上,对庆阳石油资源开发的相关情况进行了分析、评价。首先发现,40余年来庆阳石油资源开发对当地造成的负效应主要表现在石油资源耗竭、生态环境污染和区域发展能力不足等三个方面。又通过量化研究得出：第一,庆阳地区每开采万吨石油要耗竭当地原油资源5.55万吨,平均开采每吨原油造成直接经济损失33656.73元。第二,每开采万吨石油造成水土流失面积约4平方公里,使地方政府平均每平方公里要花费治理成本198.5万元；仅2011年石油资源开发导致的水土流失、水源污染和植被破坏给庆阳地区造成经济损失3212.67亿元,庆阳人均承受经济损失12.5万元。第三,石油资源开发污染生态环境给当地居民带来健康伤害,石油行业收入增加引发全市人民生活成本普遍提高,石油产业发展又造成地方工业生产能力下降。
其次,运用庆阳石油资源开发的面板数据建立Panel Data计量模型,对庆阳石油资源开发与地方经济增长的相关性进行了实证研究。结果表明,庆阳地区原油生产对第二产业的贡献度超过了60%,这说明石油资源开发对地方工业产生了极大的挤出效应,而对地方经济增长、居民收入的贡献却很小。
再次,研究发现石油资源开发给庆阳地区造成负效应的根本原因在于我国矿产资源产权制度存在单一性,生态环境恢复保证金制度不完善,石油资源开发的税费分配体制不合理,中央与地方的红利分配制度缺失,石油资源开发的补偿机制不完善,致使资源富集区石油资源开发中的国家与区域利益发展不协调。
最后,提出构建石油资源开发中的国家与区域利益协调发展补偿机制是当务之急,机制的建设要从制度层面进行顶层设计：建立资源补偿机制,需要改革现行的石油资源税收制度和石油开发费用分配体制；建立生念环境补偿机制,需要完善生态环境恢复保证金制度和建设高效的法律保障体系；建立区域补偿机制,需要积极探索石油资源开发多元化产权制度和建立合理分配石油资源开发红利的制度；建立中央财政专项补偿机制,支持庆阳地区发展支柱产业、特色产业和地方工业,增加地方政府治理和修复生态环境的经费,扩大失地农民的就业岗位,提高受损居民的社会保障标准,以及解决历史遗留问题等等。只有多管齐下,齐抓共管,才能成功构建石油资源开发中的国家与区域利益协调发展补偿机制,从根本上提升庆阳区域经济竞争力,促进经济可持续发展,为实现资源富集区资源开发中的国家与区域利益协调发展提出改革思路。
本文的创新之处体现在研究对象和研究视角两个方面。研究对象的创新,当前国内外的研究都集中在资源开发与经济发展正效应的研究领域,主要研究石油开发对国民经济增长和工业化进程的促进作用。而本文通过庆阳这一典型案例,研究了资源富集区石油资源开发对开发区域产生的负效应,并通过构建石油资源开发的补偿机制,为实现资源富集区资源开发中的国家与区域利益协调发展提出了改革思路。
研究视角的创新,国内外的研究都从国家的宏观层面出发进行研究,本文是从庆阳——西部典型的资源富集区这样一个区域视角出发,运用实地训后后狭得的第一手资料,通过大量的定量方法和建立计量模型,就庆阳石油资源开发对区域产生的负效应进行了定量分析和实证研究,并得出科学的结论。
The oil resource is an important material base of national economy and social development, but its exploitation will bring different influence to economic and social development. Petroleum exploitation provided capital accumulation and enhanced developping capacity of regional economy in American, Norway and other countries for their economic development and industrialization process, but it let to the depletion of resources, recession of regional development in Nigeria and Mexico from the global experiences. Petroleum exploitation accelerated the development of the national economy and the industrialization process at the national level, but it also produced many negative effects such as petroleum resource depletion, the ecological environment pollution, insufficient of regional developping ability at the regional level and restricted the sustainable development of resource zones in China. The fundamental cause was we lacked compensation mechanism of petroleum exploitation, and reasonable distribution system between national and regional interests in China. According to the current mineral resource income distribution system, the local government and residents rarely shared to income of petroleum exploitation in our country, thus the "rich poverty" phenomenon is produced.
Qingyang is located in the east of Gansu, birthplace and one of petroleum production area of Changqing oilfield. In Qingyang, tons of crude oil were produced for our country during40years. This was a tremendous contribution in the field of natural resources for Chinese economic and social development. But petroleum exploitation has brought negative effects such as resource depletion, the destruction and pollution of the ecological environment, insufficient of regional developping ability of Qingyang. According to the income distribution system from our country's management system of petroleum exploitation, the central enterprises directly payed taxes, dividends to national finance, the local government and local residents of Qingyang had no right to participate in the exploitation of petroleum resources, not covered by the income distribution system. Petroleum exploitation in Qingyang had small contribution to local financial and people's income, it was not coordinated with regional economic development. Being the resource compensation mechanism not perfect in China, enterprises'social costs of resource depletion, the destruction and pollution of the ecological environment were directly shirted on to the local government and residents. Petroleum exploitation had seriously affected the sustainable development of regional economy and society because resources exploitation zone of Qingyang had no corresponding compensation. Therefore, it is wanted to solve the problem of China's current economic development about petroleum exploitation, the negative externality about resource depletion, pollution of the ecological environment, recession of regional developping capacity were urgently needed researched in-depth. We would fundamentally promote the coordinated development of national and regional interests in petroleum exploitation only when the reasonable compensation mechanism is constructed.
This thesis takes Qingyang which is a typical resource-rich region as a case study. I have investigated the current situation of petroleum exploitation of Qingyang in many times, analysed and evaluated the negative effects on the basis of absorbing the research results of the predecessor. Firstly I found the negative effects were resource depletion, pollution of the ecological environment, recession of regional developping capacity in petroleum exploitation of Qingyang during40years. Through quantitative research I thought:The first, Changqing Oilfield Company exploited10000tons of oil would deplet oil resoures55500tons in Qingyang, and caused direct economic loss of33656.73yuan on per ton. The second, Changqing Oilfield Company exploited1ton oil would cause soil erosion area of4square kilometers, and the local government would spend1985000yuan on controlling soil erosion per square kilometers. The third, petroleum exploitation of Qingyang Impacted on the health of residents, improved people's living costs, and resulted in the decline of local industrial production capacity.
Secondly, I studied the relationship between petroleum exploitation of Qingyang development and its economic growth through the econometric model of panel data. Oil output value of Qingyang accounted more than60%in the second industrial value from results. It confirmed petroleum exploitation of Qingyang brought the crowding-out effect greatly to local industry, also gived a very small contribution to local economic growth and income of local residents.
Thirdly, I found the primary cause that petroleum exploitation of Qingyang caused the negative effects to Qingyang was that our mineral resources property right system was single, tax distribution system for oil exploitation was not reasonable, bonus distribution system of the central and local government did not establish, compensation mechanism of petroleum exploitation was not perfect. These factors let to uncoordinated development of national and regional interests in petroleum exploitation of rich resource regions.
Finally, I give some advice in thesis to establish compensation mechanism of national and regional interest coordination development in petroleum exploitation. The first is to reform the current tax and fee systems of petroleum resources, distribute tax and fee rationlly between the central and local governments. The second is to explore the diversified property right system, set aside a certain area of the oil resoures to develop for local government. The third is to establish oil bonus distribution system, and distribute it to enterprise, the central, local government and local residents in petroleum exploitation. The fourth is to improve the ecological environment restoration margin system, and protect the ecological environment of mining area. The fifth is to construct a valid supervision system form national level, realize the coordinated development of national and regional interests in resource development of rich resource regions.
庆阳地处甘肃东部,多年来为我国经济发展在能源领域作出了巨大贡献,但伴随而来的是当地资源耗竭、生态环境污染、区域发展能力不足等负效应问题。我国石油资源实行一级所有一级开发管理体制,石油开发企业将部分收益上缴给国家财政,庆阳地方政府和本地居民既没有石油资源开采权,也没有被纳入到石油开发收益分配体系中,致使石油资源开发与庆阳区域经济发展不协调。再者,我国石油资源开发中的国家与区域利益协调发展补偿机制缺失,企业将资源耗竭、生态环境污染等社会成本转嫁给了当地政府和本地居民,但不予相应的补偿,严重影响了庆阳区域经济可持续发展。当前,破解庆阳石油资源开发中的经济发展难题,需要对石油资源开发造成的负外部性问题进行深入研究,通过构建合理的补偿机制,从根本上促进庆阳石油资源开发中的国家与区域利益协调发展。
本文选取庆阳这一典型的资源富集区作为研究案例,通过多次调查石油资源开发的现状,在吸收前人已有研究成果的基础上,对庆阳石油资源开发的相关情况进行了分析、评价。首先发现,40余年来庆阳石油资源开发对当地造成的负效应主要表现在石油资源耗竭、生态环境污染和区域发展能力不足等三个方面。又通过量化研究得出：第一,庆阳地区每开采万吨石油要耗竭当地原油资源5.55万吨,平均开采每吨原油造成直接经济损失33656.73元。第二,每开采万吨石油造成水土流失面积约4平方公里,使地方政府平均每平方公里要花费治理成本198.5万元；仅2011年石油资源开发导致的水土流失、水源污染和植被破坏给庆阳地区造成经济损失3212.67亿元,庆阳人均承受经济损失12.5万元。第三,石油资源开发污染生态环境给当地居民带来健康伤害,石油行业收入增加引发全市人民生活成本普遍提高,石油产业发展又造成地方工业生产能力下降。
其次,运用庆阳石油资源开发的面板数据建立Panel Data计量模型,对庆阳石油资源开发与地方经济增长的相关性进行了实证研究。结果表明,庆阳地区原油生产对第二产业的贡献度超过了60%,这说明石油资源开发对地方工业产生了极大的挤出效应,而对地方经济增长、居民收入的贡献却很小。
再次,研究发现石油资源开发给庆阳地区造成负效应的根本原因在于我国矿产资源产权制度存在单一性,生态环境恢复保证金制度不完善,石油资源开发的税费分配体制不合理,中央与地方的红利分配制度缺失,石油资源开发的补偿机制不完善,致使资源富集区石油资源开发中的国家与区域利益发展不协调。
最后,提出构建石油资源开发中的国家与区域利益协调发展补偿机制是当务之急,机制的建设要从制度层面进行顶层设计：建立资源补偿机制,需要改革现行的石油资源税收制度和石油开发费用分配体制；建立生念环境补偿机制,需要完善生态环境恢复保证金制度和建设高效的法律保障体系；建立区域补偿机制,需要积极探索石油资源开发多元化产权制度和建立合理分配石油资源开发红利的制度；建立中央财政专项补偿机制,支持庆阳地区发展支柱产业、特色产业和地方工业,增加地方政府治理和修复生态环境的经费,扩大失地农民的就业岗位,提高受损居民的社会保障标准,以及解决历史遗留问题等等。只有多管齐下,齐抓共管,才能成功构建石油资源开发中的国家与区域利益协调发展补偿机制,从根本上提升庆阳区域经济竞争力,促进经济可持续发展,为实现资源富集区资源开发中的国家与区域利益协调发展提出改革思路。
本文的创新之处体现在研究对象和研究视角两个方面。研究对象的创新,当前国内外的研究都集中在资源开发与经济发展正效应的研究领域,主要研究石油开发对国民经济增长和工业化进程的促进作用。而本文通过庆阳这一典型案例,研究了资源富集区石油资源开发对开发区域产生的负效应,并通过构建石油资源开发的补偿机制,为实现资源富集区资源开发中的国家与区域利益协调发展提出了改革思路。
研究视角的创新,国内外的研究都从国家的宏观层面出发进行研究,本文是从庆阳——西部典型的资源富集区这样一个区域视角出发,运用实地训后后狭得的第一手资料,通过大量的定量方法和建立计量模型,就庆阳石油资源开发对区域产生的负效应进行了定量分析和实证研究,并得出科学的结论。
The oil resource is an important material base of national economy and social development, but its exploitation will bring different influence to economic and social development. Petroleum exploitation provided capital accumulation and enhanced developping capacity of regional economy in American, Norway and other countries for their economic development and industrialization process, but it let to the depletion of resources, recession of regional development in Nigeria and Mexico from the global experiences. Petroleum exploitation accelerated the development of the national economy and the industrialization process at the national level, but it also produced many negative effects such as petroleum resource depletion, the ecological environment pollution, insufficient of regional developping ability at the regional level and restricted the sustainable development of resource zones in China. The fundamental cause was we lacked compensation mechanism of petroleum exploitation, and reasonable distribution system between national and regional interests in China. According to the current mineral resource income distribution system, the local government and residents rarely shared to income of petroleum exploitation in our country, thus the "rich poverty" phenomenon is produced.
Qingyang is located in the east of Gansu, birthplace and one of petroleum production area of Changqing oilfield. In Qingyang, tons of crude oil were produced for our country during40years. This was a tremendous contribution in the field of natural resources for Chinese economic and social development. But petroleum exploitation has brought negative effects such as resource depletion, the destruction and pollution of the ecological environment, insufficient of regional developping ability of Qingyang. According to the income distribution system from our country's management system of petroleum exploitation, the central enterprises directly payed taxes, dividends to national finance, the local government and local residents of Qingyang had no right to participate in the exploitation of petroleum resources, not covered by the income distribution system. Petroleum exploitation in Qingyang had small contribution to local financial and people's income, it was not coordinated with regional economic development. Being the resource compensation mechanism not perfect in China, enterprises'social costs of resource depletion, the destruction and pollution of the ecological environment were directly shirted on to the local government and residents. Petroleum exploitation had seriously affected the sustainable development of regional economy and society because resources exploitation zone of Qingyang had no corresponding compensation. Therefore, it is wanted to solve the problem of China's current economic development about petroleum exploitation, the negative externality about resource depletion, pollution of the ecological environment, recession of regional developping capacity were urgently needed researched in-depth. We would fundamentally promote the coordinated development of national and regional interests in petroleum exploitation only when the reasonable compensation mechanism is constructed.
This thesis takes Qingyang which is a typical resource-rich region as a case study. I have investigated the current situation of petroleum exploitation of Qingyang in many times, analysed and evaluated the negative effects on the basis of absorbing the research results of the predecessor. Firstly I found the negative effects were resource depletion, pollution of the ecological environment, recession of regional developping capacity in petroleum exploitation of Qingyang during40years. Through quantitative research I thought:The first, Changqing Oilfield Company exploited10000tons of oil would deplet oil resoures55500tons in Qingyang, and caused direct economic loss of33656.73yuan on per ton. The second, Changqing Oilfield Company exploited1ton oil would cause soil erosion area of4square kilometers, and the local government would spend1985000yuan on controlling soil erosion per square kilometers. The third, petroleum exploitation of Qingyang Impacted on the health of residents, improved people's living costs, and resulted in the decline of local industrial production capacity.
Secondly, I studied the relationship between petroleum exploitation of Qingyang development and its economic growth through the econometric model of panel data. Oil output value of Qingyang accounted more than60%in the second industrial value from results. It confirmed petroleum exploitation of Qingyang brought the crowding-out effect greatly to local industry, also gived a very small contribution to local economic growth and income of local residents.
Thirdly, I found the primary cause that petroleum exploitation of Qingyang caused the negative effects to Qingyang was that our mineral resources property right system was single, tax distribution system for oil exploitation was not reasonable, bonus distribution system of the central and local government did not establish, compensation mechanism of petroleum exploitation was not perfect. These factors let to uncoordinated development of national and regional interests in petroleum exploitation of rich resource regions.
Finally, I give some advice in thesis to establish compensation mechanism of national and regional interest coordination development in petroleum exploitation. The first is to reform the current tax and fee systems of petroleum resources, distribute tax and fee rationlly between the central and local governments. The second is to explore the diversified property right system, set aside a certain area of the oil resoures to develop for local government. The third is to establish oil bonus distribution system, and distribute it to enterprise, the central, local government and local residents in petroleum exploitation. The fourth is to improve the ecological environment restoration margin system, and protect the ecological environment of mining area. The fifth is to construct a valid supervision system form national level, realize the coordinated development of national and regional interests in resource development of rich resource regions.
引文
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