矿业权概念立法重置的体系效应——兼评《矿产资源法》第16条、第22条、第23条
作者:
作者单位:

1.内蒙古大学 法学院,内蒙古 呼和浩特 010021;2.内蒙古自然资源法治研究中心,内蒙古 呼和浩特 010021

作者简介:

曹宇,内蒙古大学法学院副教授,硕士研究生导师,内蒙古自然资源法治研究中心主任,Email:caoyu_367@163.com。

中图分类号:

D912.6

基金项目:

司法部项目“自然保护区采矿权退出法律制度研究”(22SFB5045)


Legal boundaries and conflict resolution in regional collaborative legislation
Author:
Affiliation:

1.Inner Mongolia University, law school, Hohhot 100021, P. R. China;2.Inner Mongolia Natural Resources Rule of Law Research Center,Hohhot 010021, P. R. China.

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    摘要:

    矿产资源是经济社会发展的重要物质基础,其勘查开发事关国计民生和国家安全。1986年制定的矿产资源法,作为矿产资源开发利用以及保护的基本法,于1996年、2009年进行了部分条款的修改。但终究没有摆脱计划经济时代立法的特定局限,不能完全地应对矿产资源领域持续出现的新情况、新问题。将于2025年7月1日实施的新《矿产资源法》是该法自颁行以来的第一次全面修订,是矿业高质量发展的重要法治保障,更是中国矿业法治建设久久为功的生动体现。矿业权是矿产资源法中的核心概念,是支撑具体制度架构的支点,其概念的立法化设置是关乎矿产资源法治建设的关键问题。新《矿产资源法》以立法重置的方式完成了矿业权的物权化改造,实现了矿业权“三权合一”向“去证留权”的根本转变。矿业权的得丧变更遵从物权法确立的不动产物权变动规则,突出矿业权登记的制度功能。内容构成则强化了矿业权的排他性特征,增设了探矿权转采矿权的“直通车”模式,明确了综合勘查、综合利用的制度激励措施。新《矿产资源法》的立法主线将旧法以权力为中心切换为以权利为中心的制度设计。尽管此次修法对于矿业权概念的立法重置较为妥当,但制度体系建设仍有进一步完善的空间。规则补充层面,对于“探转采”的费用收取,新《矿产资源法》设计的规范体系尚处于粗线条式的框架结构,具体的费用类别、收取方式以及收取额度等内容均需财政部门与自然资源主管部门的合作与合力。具体而言,“探转采”是否缴纳采矿权出让收益,应重点考虑探矿权是否完成有偿处置的因素。对申请在先方式取得空白地的探矿权,“鼓励找矿”应是是否收取采矿权出让收益的影响因子。新发现矿产资源的矿业权设置等问题,重点关注“综合勘查、综合利用、合理开采”制度激励的落地,但需避免其异化为规避矿业权竞争性出让的路径选择。立法跟进层面,需同步跟进配套法律体系的“立、改、废”。“立”与“废”作为矿产资源法律体系重构的抓手,具有同步展开的紧迫性。全面废止违背修法精神的制度规范,同时强化涉及不同主体的大量授权条款背后的配套规范体系的搭建。

    Abstract:

    Mineral resources constitute an essential material foundation for economic and social development, with their exploration and exploitation bearing significant implications for the national economy, people’s livelihood, and security. The Mineral Resources Law enacted in 1986, serving as the fundamental legislation governing mineral resource development, utilization, and protection, underwent partial amendments in 1996 and 2009. However, it ultimately failed to transcend the specific limitations of planned economy-era legislation, proving inadequate in comprehensively addressing emerging situations and challenges within the mineral resources sector. The new Mineral Resources Law implemented on July 1, 2025, represents the first comprehensive revision since its promulgation, serving not only as a crucial legal safeguard for high-quality development in the mining industry but also as a vivid manifestation of China’s persistent efforts in constructing a legal framework for mineral governance. Mining rights stand as the core conceptual framework within the Mineral Resources Law, forming the pivotal support for its institutional architecture. The legislative configuration of this concept constitutes a critical issue in the legal system construction of mineral resources.The new Mineral Resources Law completes the transformation of the real right of mining rights by legislative resettlement, and realizes the fundamental transformation of mining rights from the “three rights in one”into the “right of de-certification”. The establishment, alteration and elimination of mining rights comply with the real estate rights change rules established by the Property Law, highlighting the institutional function of mining rights registration. The content composition strengthens the exclusive features of mining rights, adds a “through train” mode of converting prospecting rights into mining rights, and clarifies the system incentives for comprehensive exploration and integrated utilization. The legislative main line of the new Mineral Resources Law switches the power-centered system design to the rights-centered system design. Although this amendment is more appropriate for the legislative reset of the concept of mining rights, there is still further space for improvement in the construction of the system. For the supplement of the rules, for the “exploration to mining” fees, the new Mineral Resources Law designed to regulate the system is still in the rough framework structure, the specific types of fees, collection methods and collection of the amount of content are required to the financial sector and natural resources departments in charge of the cooperation and joint efforts. Specifically, whether mining rights transfer proceeds should be levied during “prospecting-to-mining”transitions must principally consider whether prospecting rights have undergone compensated disposition. For prospecting rights acquired through priority application in unexplored areas, “exploration encouragement” should serve as a key determinant in deciding such charges. Regarding the establishment of mining rights for newly discovered mineral resources, while emphasizing the implementation of institutional incentives for “comprehensive exploration, integrated utilization, and rational extraction”, vigilance must be maintained against potential distortions into pathways evading competitive allocation of mining rights. At the legislative follow-up level, synchronized advancement of the “establishment, reform, and abolition” within the supporting legal system proves imperative. The “establishment” and “abolition” as the mineral resources legal system reconstruction of the grasp, has the urgency of synchronization. Comprehensively abolish the system of norms that are contrary to the spirit of the amendment, and at the same time strengthen the construction of supporting norms behind a large number of authorization clauses involving different subjects.

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曹宇.矿业权概念立法重置的体系效应——兼评《矿产资源法》第16条、第22条、第23条[J].重庆大学学报社会科学版,2025,31(3):208-218. DOI:10.11835/j. issn.1008-5831. fx.2020.12.002

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  • 在线发布日期: 2025-07-15
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