On June 7, 201kloc-0/February, six people, Zhang Yixing, deputy director of the consulting and research center of the Ministry of Land and Resources, investigated the implementation of the new geological prospecting mechanism in Guizhou Province, and got a comprehensive understanding of the operation of the new geological prospecting mechanism and the implementation of the strategic action of prospecting breakthrough in Guizhou Province. Generally speaking, in the operation of the new geological prospecting mechanism and the strategic action of prospecting breakthrough in Guizhou Province, the government made overall planning, the state-owned geological prospecting units played the main role of prospecting, the foundation came first, the geological prospecting funds were organically linked, and commercial enterprises were introduced for cooperative exploration and mining, mining rights were integrated, unified planning and comprehensive exploration, thus forming a trinity cooperative exploration and development model among the government, geological prospecting units and enterprises, and exploring a breakthrough road of geological prospecting with integrated exploration and mining and intensive scale development.
First, the land and resources departments should co-ordinate the implementation of the new geological prospecting mechanism.
The implementation of the new geological prospecting mechanism in Guizhou Province is led by the Provincial Department of Land and Resources, with the cooperation of the Provincial Bureau of Geology and Mineral Resources, the Coal Bureau, the Nonferrous Metals Bureau, the local government and the land and resources management department.
In order to implement the new mechanism of geological prospecting, the Department of Land and Resources of Guizhou Province undertakes the function of coordinating geological prospecting and fulfills the responsibility of the first person responsible for geological prospecting. According to the principle of "systematic planning, integrated exploration, intensive development, rational allocation and orderly delivery", combined with the actual situation of this province, it is implemented from six aspects: "accurate positioning, overall coordination, innovative mechanism, building platform, optimizing environment and cultivating subjects".
(1) accurate positioning. First, management orientation, straightening out relations and separating government from enterprises; Secondly, work orientation, correctly distinguish the relationship between public welfare geological work and commercial geological work; The third is the fund positioning, which defines the two functions of provincial geological prospecting funds: risk sharing and policy adjustment.
(2) overall coordination. Coordinate the central and local geological prospecting funds, enterprises and social funds, coordinate the relationship between governments at all levels and mining rights, and actively promote geological prospecting.
(3) Innovation mechanism. Focusing on the setting and transfer of exploration rights, explore a new mechanism to achieve geological prospecting breakthrough.
(4) Build a platform. Create an institutional policy platform for rational allocation of exploration rights and stimulating the enthusiasm of exploration rights holders; Create a unified, competitive, open and orderly trading platform for mining rights market; Create a geological exploration technology service platform such as geological technology, information and consultation.
(5) Optimize the environment. Optimize the management service environment and geological exploration environment.
(6) cultivate the main body. Rational allocation of exploration rights and property rights of geological prospecting units to enhance the strength of geological prospecting units.
Second, the operational characteristics of the new geological prospecting mechanism
Guizhou Provincial Department of Land and Resources, Bureau of Geology and Mineral Resources and relevant geological prospecting departments have conscientiously understood the spirit of the new geological prospecting mechanism of "public welfare first, business follow-up, fund connection, comprehensive exploration and rapid breakthrough", combined with the actual situation of this province, innovated the geological prospecting mechanism, actively explored the relationship between government, enterprises and market, and mobilized the enthusiasm of geological prospecting units, and gained experience worth summarizing and learning.
(A) to strengthen the leading role of the government in the implementation of the new geological prospecting mechanism
In the operation of the new mechanism and the breakthrough of prospecting in Guizhou Province, the provincial government played a leading role, and the overall coordination function of government departments at all levels was fully reflected.
(1) Make unified geological prospecting strategies and plans, and formulate laws, regulations and standards that conform to geological and economic laws. The mineral exploration strategy and planning in Guizhou fully reflect the market demand of mineral resources and the unique geological and metallogenic conditions in the province. Combined with the needs and possibilities, the complete exploration areas of bauxite, coal and manganese mines identified in this province have both good resource conditions and considerable market prospects.
(2) Mobilize the enthusiasm of prospecting through policy incentives. Mainly through the allocation of mining rights, play the role of geological prospecting units as the main force of prospecting. When the mining right is allocated, the exploration right price and mining right price are collected together, which reduces the risk and mobilizes the enthusiasm of geological prospecting units.
(3) Give full play to the risk-taking and regulating role of geological prospecting funds. In terms of exploration investment, coordinate the central geological prospecting fund, provincial geological prospecting fund, geological prospecting units, enterprises and social funds to accelerate the integration of exploration. Guizhou province puts "capital connection" before "business follow-up", and they think it can better play the role of capital risk-taking and government supervision.
(4) Overall coordination and hierarchical management. The Provincial Department of Land and Resources coordinates the relationship between government functional departments and local governments of cities, prefectures and counties, local governments and geological prospecting units, geological prospecting units and enterprises, and mining rights holders, forms a management system with reasonable division of labor, coordination, hierarchical management and clear responsibilities, strengthens responsibilities, and ensures the smooth progress of geological prospecting.
(5) Public welfare first, combining with Industry-University-Research. The basic geological survey in Guizhou Province has a certain foundation. By the end of the Eleventh Five-Year Plan, the regional survey of1:200,000 in Guizhou Province has basically achieved full coverage. 1:250,000 regional adjustment has covered 2/3 of the province's land area; 1:50,000 regional survey has covered more than 1/3 of the whole province; 1:200,000 regional gravity survey has covered more than 90% of the province. It is these solid basic survey results, together with the mining rights and prospecting clues that have been mastered by exploration units in various places, that provide sufficient geological basis for the integrated exploration layout of the whole province.
In the implementation of the new mechanism, Guizhou pays attention to public welfare first, the government funds the implementation of geological research projects, and Industry-University-Research combines with the guidance of geological prospecting. Strengthening the comprehensive prospecting, mineral resources potential evaluation and the study of metallogenic regularity of key metallogenic belts has improved the geological prospecting effect and accelerated the geological prospecting process.
(6) Governments at all levels cooperate and coordinate to create a good geological exploration and construction environment. Government departments at all levels provide high-quality social services for geological prospecting, straighten out relations, remove obstacles and create a good construction environment for geological prospecting. In Wuzhengdao bauxite comprehensive exploration area, a unified dispatching mechanism of provinces, cities, counties, towns and villages has been established, which has opened up a green channel for the smooth comprehensive exploration. The government has also played a leading role in the formulation and implementation of the comprehensive exploration plan for coal resources.
(2) Establish the main position of enterprises and geological prospecting units in the new mechanism of geological prospecting, and give play to the main role of geological prospecting units.
1. Establish the dominant position of enterprises
Commercial enterprises in Guizhou Province have gradually become the main body of geological prospecting. During the Eleventh Five-Year Plan period, the social capital investment in mineral exploration in Guizhou Province was 2.255 billion yuan, accounting for 84.6% of the total investment, of which the social capital investment in 20 10 was 536 million yuan, accounting for 64.7% of the total investment. Social commercial funds have become an important source of geological prospecting funds, and this investment structure highlights the main position and role of enterprises in mineral exploration.
At present, many mining enterprises have entered Guizhou, including China Aluminum Guizhou Branch, China Power Investment Corporation, Chongqing Wujiang Industry (Group) Co., Ltd., China Minmetals Group Hunan Jinrui New Materials Co., Ltd., Zijin Mining Company, etc. These companies have cooperated in mineral exploration and development respectively.
2. Give play to the main role of state-owned geological prospecting units.
For decades, state-owned geological prospecting units have made important contributions to the development of national geological undertakings, but they are also developing themselves and playing irreplaceable advantages in geological prospecting practice. These advantages are as follows: first, they have accumulated rich geological prospecting experience, and most of the proven mineral resources and discovered prospecting information in Guizhou are provided by them; Secondly, accumulated a lot of geological data; Third, there are a large number of professional and technical personnel, especially high-end technical backbones; Fourth, it has a complete set of mineral exploration technology and equipment and rich exploration and construction experience.
In the operation of the new geological prospecting mechanism and the strategic action of prospecting breakthrough, the state-owned geological prospecting units have played a unique role in the investment of technology, talents, geological information and prospecting equipment, as well as in the specific work of comprehensive exploration of bauxite, coal and manganese mines. In the comprehensive exploration work in Guizhou Province, the overall planning scheme of comprehensive exploration and the design and construction of eight key comprehensive exploration blocks are undertaken by state-owned geological prospecting units (as are other comprehensive exploration areas); Other projects arranged by the provincial geological prospecting fund are also undertaken by state-owned geological prospecting units, giving full play to their advantages in talent, technology and information, and fully embodying the main role of geological prospecting in the whole exploration.
In line with the strategic action plan of geological prospecting in the whole province, the Provincial Bureau of Geology and Mineral Resources has formulated a five-year plan for geological prospecting, and promoted a breakthrough in prospecting through the "trinity" mechanism of task decomposition, responsibility implementation, safeguard measures, cooperation among geological prospecting units, local governments and large and medium-sized enterprises. In the comprehensive exploration of dominant minerals such as aluminum, manganese, gold, coal, phosphorus, lead-zinc ore and the exploration of potential mineral resources, it has undertaken more than 60% of the geological prospecting workload and become a veritable main force. Other major geological prospecting units are similar to the Bureau of Geology and Mineral Resources: in Zhengdao area, the Bureau of Nonferrous Metals and Nuclear Industry has also invested nearly two-thirds of its technical strength; In the field of comprehensive coal exploration, the provincial coal bureau also played a major role. Although there are also large enterprises like China Power Investment Corporation, it is mainly the financial support and the development and construction of the downstream industrial chain. In the field of prospecting and exploration, the main role of geological prospecting units is still irreplaceable.
(3) Highlight the fundamental role of the market in the new mechanism of geological prospecting.
1. Deploy geological exploration according to market demand.
The comprehensive exploration and prospecting breakthrough of mineral resources in Guizhou Province are deployed according to market demand. The reasons for choosing comprehensive exploration of bauxite are as follows: first, bauxite resources are abundant; Secondly, the rapid development of China's aluminum processing industry and the rapid improvement of production capacity have led to a sharp increase in the demand for bauxite resources, while the proven resources in China are far from meeting the needs (the current gap is as high as 50%). Similarly, the deployment of integrated exploration of coal resources is based on the fact that the total amount of coal resources in Guizhou Province is greater than the sum of coal resources in the southern provinces of the Yangtze River, and the arrangement of integrated exploration of manganese resources is also based on the fact that the reserves of manganese resources in Guizhou Province rank third in the country, with excellent resource grade and quality and broad market prospects.
2. Rational allocation of production factors according to the needs of exploration work.
In order to meet the demand of exploration market, the capital, talents, technical equipment and other production factors needed for geological exploration work have reached a good combination on the market platform.
Third, the strategic action to develop the breakthrough in prospecting.
According to the strategic action plan for prospecting breakthrough of the Ministry of Land and Resources, combined with the strategic requirements of accelerating industrialization and urbanization and vigorously developing energy and mineral economy put forward by the Guizhou Provincial Party Committee and the provincial government, the Department of Land and Resources focused on the implementation of integrated exploration of superior resources, formulated the strategic action goal of "358" prospecting breakthrough in Guizhou Province, and deployed specific action plans.
(a) the implementation of important mineral prospecting action plan
According to the principle of "unified planning, comprehensive deployment, comprehensive exploration, hierarchical arrangement, step-by-step implementation, point-to-area, and key breakthroughs", seven types of prospecting action plans, such as comprehensive exploration of coal, bauxite, manganese ore, phosphate rock, gold mine, lead-zinc mine and important nonmetallic mineral exploration, will be implemented.
(two) the implementation of public welfare, basic and scientific and technological support plan.
Based on a comprehensive study of the economic and social needs of Guizhou Province for public welfare and basic geological work, a number of public welfare and basic geological projects were selected and a provincial public welfare and basic project library was established, which was funded by the provincial geological prospecting fund. The public welfare, basic and scientific and technological support plan consists of three parts: basic geological guarantee project, mineral resources guarantee project and geological environment guarantee project.
(3) Increase investment in capital and technical force.
During the Eleventh Five-Year Plan period, the investment in geological and mineral exploration in Guizhou Province showed an increasing trend year by year, with a total investment of 2.666 billion yuan, including 46.5438+0.5 million yuan for large-scale investigation, accounting for 65.438+0.5%; The central geological prospecting fund invested 297 million yuan, accounting for11.2%; Social capital investment was 2.255 billion yuan, accounting for 84.6%; Other special investment was 53.6 million yuan, accounting for 2.4%. With the implementation of 20 10 new geological prospecting mechanism and prospecting breakthrough action, Guizhou Province has increased its capital investment. The total investment in 20 10 was 828 million yuan, including 292 million yuan from finance (including geological prospecting fund), accounting for 35.3% of the total investment, and 536 million yuan from commerce, accounting for 64.7% of the total investment. Among them,1.1.300 million yuan was used for public welfare geological work, accounting for1.3.64% of the total funds; The investment in mineral exploration is 7150 thousand yuan, accounting for 86.36% of the total investment. At the same time, the investment in technical strength has also been greatly strengthened. In the whole exploration and prospecting breakthrough, state-owned geological prospecting units have become the main force, and the provincial geological prospecting bureau, coal field bureau and non-ferrous metal bureau have invested nearly two-thirds of their technical strength.
Four, mineral resources exploration has achieved remarkable results.
According to the province's economic and social development plan, the Department of Land and Resources of Guizhou Province has determined the principle of "overall planning, comprehensive exploration, outstanding advantages and comprehensive evaluation" and moderately advanced geological work. On the basis of studying and analyzing the occurrence of mineral resources and the needs of economic and social development, the comprehensive exploration of mineral resources was launched on 20 10. Up to now, there are 1 1 projects that started in 201and are planned to start in 20 1 1 in our province. After more than a year of exploration, remarkable prospecting results have been achieved.
According to the management subject and capital investment of comprehensive exploration area, comprehensive exploration in Guizhou Province can be divided into three forms:
(1) Director of the Ministry of Land and Resources and the Provincial Department of Land and Resources * * *, the main body invested in diversified comprehensive exploration projects. As one of the 47 comprehensive exploration areas established by the Ministry of Land and Resources, the comprehensive exploration area of bauxite in the Zhengdao area of Ruwu is also a key project of the national special prospecting action. The implementation process of the project reflects the epitome of the operation of the new geological prospecting mechanism in this province. The economic development of Wuzhengdao area is lagging behind, and the area is mainly inhabited by the Gelao and Miao nationalities. All three counties are state-level poverty-stricken counties, and the people live in poverty. The provincial government took this project as a key project and started construction in June 20 10. At present, the drilling workload of the project has reached 46,000 meters, and the preliminarily proved bauxite resources are (332+333+334) 654.38+100 million tons.
The exploration project of Zhengdao has the following remarkable characteristics: First, the foundation is solid and the selection is correct; Second, overall planning and careful design; Third, multi-subjects, orderly cooperation of various funds, and organic connection between early exploration and late development; Fourth, establish a policy incentive mechanism to mobilize the enthusiasm of state-owned geological prospecting units for prospecting; The fifth is to implement comprehensive exploration and combine Industry-University-Research; Sixth, the government strongly led the promotion and created a good exploration environment.
(2) It is managed by the Provincial Department of Land and Resources, and the provincial geological prospecting fund management department (on behalf of the government) cooperates with the state-owned geological prospecting department for exploration. This year, Guizhou Province decided to start three comprehensive coal exploration areas: Ding Xin coal exploration area in qianxi county, Guizhou Province, Kuwakiba coal exploration area in Xishui County and Heituhe coal exploration area in Xianning County. The Provincial Geological Exploration Fund cooperates with the Provincial Coal Geology Bureau, which undertakes the exploration task.
(3) Management of land and resources departments, and cooperative exploration by local (state) governments and state-owned geological prospecting departments. The whole bauxite exploration project in Kaili-Ping Huang area of Qiandongnan Prefecture is jointly invested by the People's Government of Qiandongnan Prefecture and the Geological Bureau of Guizhou Nonferrous Nuclear Industry with a total investment of 60 million yuan. In order to ensure the smooth progress of integrated exploration, the competent department of land and resources of the state signed an agreement with the mining right holder of non-integrated exploration minerals in the exploration, stipulating the obligations and responsibilities, and the mining right holder promised to support and cooperate with the integrated exploration work and protect the legitimate rights and interests of the existing mining right holder. A cooperative exploration agreement was signed between Tongren Administrative Office and Guizhou Bureau of Geology and Mineral Resources for the comprehensive exploration project of manganese ore in Tongren area of northeast Guizhou. There are more than 20 mining rights in the exploration area, which are specifically handled by the government. At present, the area has invested 50 million yuan, completed the drilling workload of 220,000 meters, and controlled the manganese resources of 6.5438+million tons. At present, Chongqing Wujiang Industrial (Group) Co., Ltd., China Minmetals Group Hunan Jinrui New Materials Co., Ltd. and other enterprises have signed cooperation project agreements of 4.9 billion yuan and 654.38+0.2 billion yuan respectively with Tongren District Administrative Office.
The government department is responsible for handling and coordinating the mining rights related issues in the operation of the above three integrated exploration forms. Generally speaking, the progress is smooth and the results are obvious.
Five, several problems that need to be studied and discussed
Guizhou Province has made active explorations and bold attempts in the operation of the new geological prospecting mechanism and the strategic action of prospecting breakthrough, and accumulated useful experience. At the same time, through the investigation, some problems have also aroused our thinking, which is worth further study and discussion.
(A) government planning regulation and market allocation of mineral resources
At present, the deployment of mineral exploration is basically carried out according to the government's plan, which is formulated according to the supply and demand of mineral resources. This supply and demand situation is global. If every province and every region increases supply indefinitely, it is likely that there will be a national overcapacity. For example, several provinces with large bauxite resources (such as Guangxi, Henan, Shanxi and Chongqing) are engaged in integrated exploration, and there is no unified coordination between them, which will inevitably lead to oversupply in the future. This requires supervision at the national level. If the supply exceeds the demand, it can be reserved, but the reserve also has economic and social benefits.
(b) Comprehensive exploration and replacement of resources.
At present, the "comprehensive exploration areas" identified in the province are basically old exploration areas, which have reached a certain degree of exploration work. At present, most geological exploration forces are concentrated in comprehensive exploration blocks, but the peripheral geological work of comprehensive exploration is still relatively weak. More importantly, due to the lag of basic geological work, the future comprehensive exploration will face problems such as slow prospecting and difficult beneficiation.
The selection and deployment of comprehensive exploration should fully consider the sustainability of geological prospecting and resource supply, adhere to the principle of overall reservation and phased allocation, strengthen basic geological work and promote the breakthrough of prospecting. Therefore, it is necessary to summarize the first round of comprehensive exploration, select the second round of comprehensive exploration area from the exploration areas outside the planning, and solve the problem that comprehensive exploration is difficult to replace resource selection by strengthening basic geological work. This cycle will be beneficial to the rolling exploration of the whole package.
(c) Which comes first, "concentration of funds" or "business follow-up"?
In the process of implementing the new geological prospecting mechanism, there are two different understandings of "public welfare first, capital connection and business follow-up" and "public welfare first, business follow-up and capital connection". One understanding is that the new geological prospecting mechanism of the Ministry of Geology is "commercial follow-up" before "capital docking" because under the current situation that mineral resources are in short supply, it can directly enter social funds, increase exploration investment, and effectively solve the problem of insufficient supply of mineral resources; There is also an understanding that geological prospecting fund is an important link between the preceding and the following. Before the "commercial follow-up", government funds were mainly used, which not only realized the macro-control function, but also played a role in sharing the exploration risks of investors. Based on this, the research group thinks it is necessary to further accurately grasp the positioning of geological prospecting funds and clarify the investment of the two funds. Based on the background that the risk exploration capital market has not yet formed, the fund should return to its essence and play its role in reducing exploration risks, not just as a supplement to special financial funds.
(d) Risk sharing and rights allocation during exploration.
How to further improve the rights and interests management, establish a reasonable interest distribution mechanism and mobilize the enthusiasm of all parties is the key to ensure the breakthrough in prospecting. In the operation of the new geological prospecting mechanism in Guizhou Province, the exploration progress is emphasized, and the handover scheme is formed after the exploration results are obtained. The separation of exploration and mining rights, post-evaluation and interest distribution of all parties are left in the post-disposal. Whether these practices will bury hidden dangers for future benefit distribution needs further study and long-term follow-up observation.
(V) Reform and development of geological prospecting units
With the overall start of the reform of state institutions, how to reform state-owned geological prospecting units has become a hot topic for discussion. The management system of geological work in Guizhou Province has entered a difficult exploration process and achieved remarkable results, but the problems reflected in the reform process, such as many problems left over, heavy social burden and great difficulties for enterprises, are equally prominent.
In the critical period of comprehensively promoting the reform of state institutions, the reform of state-owned geological prospecting units is facing a rare opportunity. The focus of this reform is to determine the scale of geological exploration teams engaged in public welfare services from the perspective of economic, social, ecological and people's livelihood needs for geological work in the new period. The difficulty is how to study the ability and conditions that regional economic scale and marketization can provide for geological prospecting units transformed into enterprises. Therefore, it is suggested that the competent department of geological prospecting industry should seize this favorable opportunity, take the reform spirit of state institutions as the guidance, start from the characteristics of geological prospecting industry, sum up the reform experience of geological units, and put forward guiding opinions on the reform of geological industry of state institutions.
(six) the environmental problems of geological exploration work
Geological prospecting needs a good policy environment and working environment. The provincial government attaches great importance to the external working environment of geological prospecting in the comprehensive exploration area. Through extensive publicity, signing letters of commitment at different levels, creating a good exploration environment, and the mechanism of responsible person runs through the grassroots, ensuring the smooth development of prospecting work. However, in the field of non-key exploration, the working environment needs to be improved. In addition, it is necessary to have a good policy environment and working environment in land acquisition compensation and geological working conditions, and to have clear implementation standards and operational norms.
(The original geological work strategy study reference 2011September 15 was co-authored by Yu, Wang, Chen and others)