China is a developing mining country, which is in the process of industrialization and urbanization, and will face the dual challenges of resources and environmental protection for quite some time to come. In order to ensure the safe and stable supply of mineral resources, it is suggested that the state set up a unified mining management department (such as the Ministry of Mining, the Ministry of Geology and Mining or the State Bureau of Mining and the State Geological Survey) to strengthen centralized and unified leadership and macro management of the mining industry. This is determined by the important position of the mining industry, and it is also the need of the characteristics of the socialist system in which many small and medium-sized mines and mineral resources belong to the state, state-owned geological prospecting units and state-owned mining enterprises as the main body. In order to realize macro-control of mining industry, we must establish the authority of the mining department of the central government and improve the laws and regulations of regulation.
In order to meet the market requirements and connect with the international community, it is suggested that the Mineral Resources Law be amended as soon as possible to provide legal protection for mineral exploration and development. Establish and improve the mining market and strengthen the management of mining order; Mining authorities should actively negotiate with relevant departments, establish and improve the mining fund guarantee system, and improve the differentiated tax and fee measures for mineral resources; Determine the status of intellectual property rights in the process of mineral exploration and obtain exploration rights scientifically and reasonably; Support the development of mining enterprises and build large mining groups; Strengthen the supervision of "three rates" and make full use of resources; Encourage and support mining enterprises to "go global" to develop and utilize two kinds of resources; Policies and measures such as establishing mineral resources reserve system and building green mines.
1. Establish and improve the mining market and strengthen the management of mining order.
At present, China's mining market is in the primary stage, so it is necessary to combine China's national conditions, fully absorb international mature experience, and establish a standardized and efficient operation system in terms of enterprises entering the market, transfer of mining rights, financing and intermediary services. The government should vigorously support and support, strengthen the management of mining order according to law, and improve laws, regulations or systems in management.
2. Establish and improve the monetary fund guarantee system of mining industry to support the development of mining industry.
The monetary funds needed for mining development are risky, large in amount and tight in time, and must also be subject to administrative intervention. Vigorously cultivate and develop the mining venture capital market financed by creditor's rights (mining rights). Modern mining industry should be based on the benign interaction between industrial capital and financial capital. Therefore, we should correctly understand, make overall consideration and properly handle the important relationship between modern mining industry, especially the combination of mining industry and capital market, accelerate the establishment of a mining capital market system that is in line with international standards, and further improve the status and influence of China mining industry in the international financial field. At present, the reform of mineral exploration and development system in China has not yet been put in place, and the rights and interests of geological prospecting units and mining enterprises are restricted. Before the mining venture capital market is established and improved, it is necessary for the state finance to increase investment in mineral geological exploration, as well as special subsidies for prospecting in crisis mines and supporting overseas mineral exploration and development.
3. Improve the differentiated tax and fee policies for mining development and encourage comprehensive utilization of resources.
Tax policy is an important means to promote resource conservation and scientific and rational utilization of resources. Due to the differences in difficulty, depth and richness of different minerals and deposit types, it is necessary to formulate differentiated tax and fee policies in mining development. Different minerals and different types of deposits should be treated differently, and there cannot be only one tax standard. The local competent department of land and resources (mining) shall, jointly with the finance and taxation departments at the same level, arrange professionals to accurately identify the differences in various natural endowments and changes in development conditions in different mining areas, reasonably determine and timely adjust the tax standards. Strengthen scientific management, encourage research and improvement of mining and dressing technology, carry out comprehensive development and utilization of low-grade resources, refractory smelting resources, associated resources and tailings resources, and improve the utilization rate of mineral resources in China. Any enterprise that has made a major breakthrough in the comprehensive utilization of mineral resources shall be given tax relief or reward by the state.
4. Strengthen the management of "three rates" and improve the utilization rate of resources.
Strengthening the management of mining recovery rate, mineral processing recovery rate and comprehensive utilization rate of mineral resources is an important measure to save and utilize resources. 20 10 the State Council has approved the special project of saving and comprehensive utilization of mineral resources, and achieved good results. On this basis, it is suggested to formulate normalized incentive policies, tackle key scientific and technological problems with pertinence, strengthen management and persist for a long time.
5. Improve and perfect the mineral exploration market, and determine the position of intellectual property rights in the process of mineral exploration.
Mineral exploration is a scientific exploration activity, and its results belong to information products, which are different from mine development engaged in material production, and its results are mineral products; It is also different from construction projects that strictly implement standard design. One is "construction" and the other is "prospecting". The difference between "architecture" and "prospecting" embodies the principle difference between "labor-intensive" and "knowledge-intensive".
As mentioned above, each deposit (body) is different, and it can only be identified step by step through intellectual input. The exploration results obtained are those with intellectual property rights, and knowledge investment and capital investment should each account for a certain proportion in the exploration results.
Therefore, it is suggested that the state should clarify that the rights and interests of mineral exploration achievements belong to capital investors and exploration knowledge investors at the level of standardizing mining rights (exploration rights and mining rights). The proportion of exploration results can refer to the proportion of scientific and technological achievements in development, and the proportion of mineral exploration knowledge input is generally not less than 30%. Doing so is conducive to building the mining right market and standardizing market behavior, mobilizing the enthusiasm of investors and geological exploration, and strengthening and developing mineral resources exploration.
6. Further standardize the acquisition of initial exploration rights, and do not engage in bidding, auction and hanging.
Exploration right refers to the act of searching, discovering and identifying possible mineral resources within the scope stipulated in the exploration license obtained according to law. This mineral exploration activity has clear stages according to the laws of geological work, and is generally carried out in the order of four stages: pre-investigation, general survey, detailed investigation and exploration (fine investigation). Due to the concealment (or uncertainty) of underground mineral resources, the variability of geological conditions and the complexity of the genesis of deposits (points), exploration work is the investigation and study of objective geological bodies. Due to the one-sidedness (or limitation) of subjective understanding and the limitation of technical means (methods) adopted, the results of exploration rights submitted by exploration activities are very uncertain. According to statistics, the success rate of global geological prospecting is only 1% ~ 2%, which is very risky. The risks in different exploration stages are different, and the pre-exploration and prospecting stages are the most risky, and more than 90% of exploration projects may not find ore. The knowledge of underground geology and mineral resources is based on the exploration right and obtained through the intellectual activities of geological prospecting units (people), which belongs to understanding the world and has great uncertainty and risk. Therefore, the way of transferring exploration rights should be treated differently, and bidding, auction and hanging should not be adopted. Only when economically significant minerals are discovered should the exploration right worthy of further exploration be obtained (transferred) with compensation. Many foreign countries adopt policies such as applying for registration of exploration rights first and subsidizing exploration funds to encourage applications for the establishment of exploration rights for pre-survey and general survey of minerals.
In recent years, many provinces, autonomous regions and municipalities have carried out bidding, auction and affiliation for the initial exploration right, and implemented a comprehensive paid acquisition system, which has excluded the state-owned geological prospecting units from obtaining the exploration right, thus forming a situation in which the prospecting right holders have no right, making the state-owned geological prospecting units become "wage earners" of capital, and investors speculate on the exploration right for profit, resulting in corruption and commercial fraud. The system of paid acquisition of initial exploration rights emphasizes investment over technology, which is not conducive to the healthy development of geological prospecting. Because of the high risk in the early stage of exploration, in order to encourage exploration, the internationally accepted method of "applying first and then registering" should be adopted for initial exploration right, and the exploration design scheme should be optimized. At the same time, strengthen the management of exploration activities of registered exploration rights, encourage social investors and geological prospecting units to jointly carry out exploration activities, and establish a strict exit mechanism to prevent circle exploration.
7. Standardize the evaluation and collection of mining right price, and clarify the ownership relationship.
1998 implements the system of paid acquisition of mining rights, and at the same time formulates the Measures for the Administration of Price Evaluation of Exploration and Mining Rights. In the same year, Decree No.240 and Decree No.2004 of the State Council were issued. 24 1 stipulates that if a state-funded mineral exploration right (mining right) is applied for and proved, the exploration right (mining right) fee and the assessed price of the state-funded exploration right (mining right) shall be paid. The purpose is to prevent the loss of mining rights assets funded by the state finance and safeguard the national rights and interests.
In practice, under the guidance of resource value theory and state-owned resources theory, it is unreasonable for many local governments to collect mining right price according to proven reserves or predicted resources, and regard mining right price as a new growth point of government non-tax revenue. Because the mining right owner can't bear the high mining right price, the more mines are discovered, the greater the price will be, so some people take the method of not reporting or underreporting large mines, which greatly restricts the enthusiasm of prospecting. Therefore, we must standardize the behavior of local governments, resolutely stop some local governments from issuing "local policies" that are contrary to national mining laws, regulations and departmental rules, and stop some local governments from charging exorbitant prices for mining rights and replacing the market allocation of mining rights with administrative power on the grounds of safeguarding national ownership of mineral resources.
It is suggested that the mining authorities should improve relevant laws and regulations, and clarify the theoretical basis of exploration right, mining right, resource tax and mineral resources compensation price through publicity, and clarify their ownership relationship. According to the theory of differential land rent, differential land rent reflects the difference of natural abundance of land and belongs to land owners; Second, the differential rent is the value-added processed by land managers on the basis of natural abundance of land, which belongs to land managers. Similarly, after the exploration right holder pays the exploration right use fee, the predicted mineral resources are added to the resource assets through exploration (pre-investigation and general survey) to form the exploration right price, which shall be owned by the exploration right holder; After the mining right owner pays the mining right use fee, the value of resource assets is increased through exploration (detailed investigation and exploration), and the mining right price is formed, which should be owned by the mining right owner. The mining right holder must pay the resource tax and mineral resources compensation fee, and further turn the resource assets into mineral products for sale through mine construction and development, so as to reflect the rights and interests of mineral resources owned by the state.
It is necessary to safeguard the legitimate rights and interests of all parties involved in mining according to law, including the rights and interests of mineral resource owners, mining rights holders and mineral prospectors, local and exploration blocks, residents in mining areas, social and ecological environment, etc. Build a harmonious production relationship under the condition of socialist market economy, stimulate the enthusiasm of all parties concerned to develop mining industry with fair interest relations, and thus promote the sustained and healthy development of mining industry.
8. Support the development of mining enterprises and build large mining groups.
Mining enterprises are the main producers of mineral products, and their healthy development is related to the lifeline of national mineral products supply. The signs of the healthy development of mining enterprises are: the reserve resources are guaranteed; Make full, reasonable and comprehensive use of existing resources; The mine ecological environment is well protected. At present, the state has invested 4 billion yuan every year to control the mine environment and support the comprehensive utilization of mineral resources, which has achieved results. However, the support for mining enterprises is weak, so it is suggested to increase the support. In the first five years, the central government invested 2 billion yuan, cooperated with local governments and enterprises for more than 2 billion yuan, and carried out deep and marginal prospecting in 230 resources crisis mines, which made great achievements in prospecting, prolonged the production cycle of mines, stabilized the employment of workers and was conducive to social stability. It is suggested that we should continue to follow the adopted policies and enterprise management models, expand the scope of support for crisis mines, mobilize the enthusiasm of mineral enterprises for prospecting, increase the investment of the state and enterprises, and expand mineral resources. At the same time, it is suggested that mining enterprises should strengthen mine geological work, and large and medium-sized mining enterprises must set up geological survey institutions, strengthen mine reserve management, and improve the efficiency and level of resource development and utilization. Conditional mining enterprises should establish mine exploration teams and independently carry out deep and marginal prospecting work.
The state should further formulate relevant policies, encourage the construction of large and super-large mining groups, strengthen planning and macro guidance, encourage large mining enterprises to combine, merge and reorganize small and medium-sized mining enterprises across regions and departments, gradually change the development model of "one mine, one enterprise" in China, focus on improving mining concentration, form a large-scale and intensive production and operation resource development model, and improve the competitiveness of Chinese mining enterprises in the international mining market.
9. Strengthen geological prospecting units and large mining enterprises to "go global" and explore and develop foreign mineral resources.
According to related research, the demand for mineral resources in China will reach its peak around 2025, and then gradually decline. Therefore, the development stage that consumes a lot of mineral resources is at least ten years away. While using domestic resources, we must attach great importance to using foreign resources to ensure supply. When utilizing foreign mineral resources, we should implement the policy of giving priority to holding equity mines, supplemented by trading mines, pay special attention to obtaining overseas mining rights, and use mining equity to establish a stable mine development base. Mining authorities should do a good job in planning coordination and service guidance, increase investment in special subsidies, support joint cooperation between state-owned geological prospecting units and mining enterprises, cultivate large-scale mineral exploration and development group companies with international competitiveness, give play to the role of China Mining Association and other industry associations, exchange foreign national conditions, mineral conditions, social conditions and legal conditions, establish an information service platform, and improve the success rate of overseas mineral exploration and development projects.
10. Make a good connection between different industry plans to prevent resources from being overwhelmed.
The lack of unified and coordinated planning in various industries or departments in China has led to many important mineral resources being overwhelmed and unable to be explored and developed, especially in the situation that railways, villages and towns and water surfaces are under pressure, and it is difficult to develop and utilize them. For example, Kailuan Group Co., Ltd. has crushed 2.7 billion tons of coal, accounting for 87% of all mine reserves. At present, there are more and more types of protected areas at all levels, and the forbidden and restricted mining areas are also expanding. The pressure on the mineral exploration site is getting smaller and smaller, and the phenomenon of random mining is frequent. These problems have seriously affected the development of mineral exploration and development.
The exploration and development of mineral resources need a harmonious mode of coordinated development of resources and environment. Therefore, when the central and local governments formulate and implement the medium and long-term socio-economic development plan, they must seriously consider and do a good job in the connection between the mineral resources exploration and development plan and the overall land use planning, urban planning and township planning, especially the connection between the industrial layout of mine construction and the construction plan of new urban areas, so as to prevent the known resources from being overwhelmed and unable to be developed and utilized.
1 1. Establish a mineral resources reserve system to ensure supply.
In order to maintain national economic security and ensure the stable supply of mineral resources, it is necessary to do a good job in the reserve of mineral resources. Carry out the policy of combining mineral reserves with mineral reserves, distinguish important minerals, scarce minerals and dominant minerals, and formulate different reserve targets and different reserve methods. First, establish a multi-form, three-dimensional mineral resources reserve system with resource reserves as the mainstay and product reserves as the supplement; The second is to establish a management model combining unified management with classified management; The third is to form a reserve model combining independent reserve and multi-party linkage; The fourth is to establish an operational framework of government-led, enterprise-led, financial support and market-oriented operation. Finally, a perfect mineral resources reserve system with the participation of the central government, local governments and enterprises will be formed. The central government carries out strategic reserves for the purpose of resource security and stable economic operation, local governments carry out economic reserves for the purpose of sustainable regional economic development, and enterprises carry out short-term commercial reserves for the purpose of economic benefits and profits.
12. Scientific development, building a harmonious mining green mine
Mineral exploration and development involves the economic, social and ecological rights and interests of mineral resource owners, mining rights holders, mineral prospectors, local governments and residents in mining areas. In order to ensure the healthy development of mining industry, we must safeguard the interests of all parties according to law. The economic benefits of some mine development are not equal to the investment in restoring the ecological environment. Measured by Scientific Outlook on Development, mining enterprises like this are not so much exploiting resources to benefit the people as damaging the environment and endangering the people. It is suggested that the construction of green mines should be vigorously promoted, and the competent mining authorities should formulate green mine standards for different types of minerals for demonstration and promotion. Strengthen the access management of mine development, and establish rigid constraints and preferential incentive mechanisms for resource recovery, comprehensive utilization and waste rock tailings disposal from the development design. Give full play to the role of trade associations in the construction of green mines, organize relevant trade associations and experts to evaluate the problems found, put forward solutions, popularize successful cases, and implement the requirements of "vigorously developing green mines" put forward by Comrade Wen Jiabao quickly and well. Implement a unified "Measures for the Management of Mine Closed Pit Mortgage" to strengthen mine environmental management.