The following is a brief introduction to the background and basic points of the draft strategy, based on the report and relevant information of C.E. Donskoy, Russian Deputy Minister of Natural Resources and Ecology, at the hearing of the Russian Federation Council.
(A) the difficulties and problems of the geological department
After the disintegration of the Soviet Union, during the period of 1990 ~ 2005, Russia did not conduct general survey and exploration, and no decent oil and gas fields and solid mineral deposits were found. In other words, the deposits mined in Russia in the past 20 years are all proved deposits in the Soviet era, and the geological data used are also the data of that period. Since 2005, when the government began to implement the national long-term plan for the geological research of underground resources and the reproduction of mineral raw materials bases in Russia, the geological department has just improved (see the above picture), but it soon encountered the world financial crisis. In 2009, state and private investment in geological exploration dropped sharply. It is predicted that the economic crisis in Russia will last for 2-3 years.
In 2009, the total footage of survey wells and exploration wells planned by Russian oil and gas companies was only 650km, which was 57% lower than that in 2007, namely110 in 990. Such a record only appeared in the Soviet era.
Russian society has a low evaluation of the Department of Geology and is worried about its future. A.A. Ledovski, Chairman of the Russian Federation Underground Resources Utilization Committee, said in a distressing speech at the Sixth All-Russian Geologists' Congress: "I want to remind you that the geological industry has a little prestige in society only because of the development of oil and gas complexes. In addition, most mining companies exclude geological teams as "unprofessional" forces "(ааледовский, 2009a).
вп orlov, an official of the Russian Federation Council, pointed out: "Experts and the public think that the Russian geological exploration department is on the verge of crisis, but this view does not represent the official view" (впорлов, 2009).
In fact, as mentioned above, Russia's mineral raw materials complex accounts for more than 60% of the Russian Federation's budget revenue, more than 35% of its GDP and more than 70% of its total exports, while Russia's expenditure on mineral raw materials complex accounts for less than 0.5% of the Russian Federation's budget expenditure. The mineral raw material complex is the locomotive that leads the Russian economy forward. At least in the next 15 ~ 20 years, all other industrial sectors, including national defense industry, nuclear industry and aerospace industry, cannot replace its position and role.
However, in the past 20 years, Russian geological departments have accumulated more and more serious difficulties and problems, mainly including:
(1) Geological mapping and scientific investigation have long been neglected. The budgetary funds for general geological survey only account for 2.2% of the total budget and extra-budgetary funds of the land survey department, compared with 5% in the Soviet era. Many distant scenic spots don't even have modern geological maps.
(2) The newly added reserves of most minerals can't keep up with the exploitation, and some minerals (such as oil, gold, platinum, copper, uranium, etc. ) The obvious decrease is due to the increased mining intensity.
(3) The organizational structure of the geological department cannot guarantee the completion of the national geological exploration work at the required speed. At present, the total number of employees of geological enterprises supervised by the state is 4.2% of the number of former geological departments of the Russian Federation. There were more than 900 enterprises under the former Ministry of Geology of the Russian Federation. After the reform, 70 enterprises were closed down and transferred, of which 22 were under the jurisdiction of the Underground Resources Utilization Committee and 48 were led by the State-owned Assets Committee of the Russian Federation, and there were no geological experts.
(4) The ranks of cadres are aging. The average age of employees was 50-65 years old in 2008, 45-55 years old in 2000 and 35-45 years old in 1980. The competition between users of underground resources and state-owned enterprises for talents is fierce, the department personnel are unstable and the brain drain is serious. The scientific potential of the geological department is shrinking.
(5) The original production enterprises of geological instruments and equipment have been destroyed, the domestic geological exploration equipment is obsolete, and the geological exploration production relies on imported equipment without restraint.
(6) There is no unified information space.
(7) The national procurement system cannot guarantee the continuous allocation of funds for the whole geological exploration work cycle.
(8) At present, the taxation method of mineral raw materials is not irritating.
(9) Imperfect laws and strict administrative barriers.
(two) the basis of the development strategy of the geological department
The geological department is one of the basic factors that determine the stable development of the country in the medium term. As the foundation of national development, the basic planning (outline) document is based on the basic point of long-term planning of reproduction of mineral raw materials base, because the development of key industries and energy sectors and even the economic and social development of the whole country depend on it. At present, Russia does not have a complete set of planning documents to determine the development direction of mineral raw material bases. Although Russia has a long-term national plan for the geological research of underground resources and the reproduction of mineral raw material bases approved by the government, there is no strategic direction planning document to determine the mechanism to achieve its goals.
On June 5438+1October 65438+1October 5, 2008, the 347th meeting of the Russian Federation Council decided to put forward a proposal to the Russian Federation government: to work with the main institutions of the Russian Federation to formulate the development strategy of the geological department until 2030, which includes a series of measures aimed at strengthening the innovation guarantee and cadre guarantee of the geological exploration and production departments, as well as the administration of the Russian Federation.
On June 29th, 2008, the Sixth All-Russian Geologists' Congress made a resolution, suggesting that the government formulate a long-term (until 2030) national strategy for the utilization and reproduction of mineral raw materials bases.
On June 5438+065438+1October 10, a meeting chaired by Prime Minister Putin of the Russian Federation formed a meeting minutes, and instructed the Russian Ministry of Natural Resources and Ecology, the Ministry of Energy, the Ministry of Economic Development, and the Ministry of Industry and Trade to draft a development strategy for the Russian geological sector to 2020 and submit it to the Russian Federation Government. The requirements of the draft include measures to accomplish the following tasks: to provide innovation guarantee for geological departments, to provide technical-technical and cadre guarantee for geological exploration and production, to give full play to scientific potential, to determine the development trend on the basis of analyzing the present situation and increasingly depleted situation of world mineral raw material bases, to clarify Russia's current and future position and role in the global raw material market, and to evaluate the economic and strategic rationality of the development and utilization of Russian raw material bases.
On June 19, 2009, the working meeting of the Security Committee of the Russian Federation, chaired by the Russian President, decided to require the Russian government (вввввввв Putin) to draw up the development strategy of the Russian Ministry of Geology before April 1 0.
Entrusted by the Prime Minister, the Ministry of Natural Resources and Ecology initially plans to formulate the development plan of the geological department until 2020. In order to be consistent with other planning documents and lay a good foundation for the planning of mineral raw materials, the development strategy was later postponed to 2030. The draft strategy for the development of the geological sector is based on the requirements of the Government of the Russian Federation and the Federal Council of Conferences, as well as the objectives and framework entrusted by the Prime Minister of the Government. Reference was made to the Concept of Long-term Social and Economic Development of the Russian Federation to 2020, the National Security Strategy of the Russian Federation to 2020, and the Basic Work Direction of the Government of the Russian Federation to 20 12. It also mentions four development strategies of the Russian Federation, including energy, nuclear energy, transportation and metallurgical industry (up to 2020), and "2000" as far as the Russian Ministry of Geology itself is concerned. The Outline of National Policy in the Field of Mineral Raw Materials and Underground Resources Utilization approved by the government in 2003 and the National Long-term Plan for Russian Underground Resources Research and Reproduction of Mineral Raw Materials Base formulated and approved by the Ministry of Natural Resources of the Russian Federation in 2005 are naturally the compilation of development strategies of the geological department.
(3) Basic points of the draft development strategy of the geological department.
The preface to the draft development strategy of the Ministry of Geology of the Russian Federation briefly discusses the position and role of mineral raw material complex in Russia's economic and social development, the main achievements of geological exploration during 2004-2008, the development trend of mineral raw material bases in the world and Russia under the general trend of economic globalization, and the difficulties and problems faced by the Russian Ministry of Geology. These contents have been reflected in the previous part. The following focuses on the long-term development goals, tasks and problems of the Russian geological department elaborated in the draft strategy.
1. Goals and tasks
This time, the development strategy of the geological department is compiled closely around the reform and development of the geological department. In the minutes of the meeting of heads of ministries and commissions presided over by Prime Minister Putin on the compilation of geological development strategy, it is clearly required that the development strategy should ensure the innovative development of geological departments, solve the technical process and cadre guarantee of geological exploration and production, give full play to scientific potential, and consolidate Russia's position in the global raw material market.
The Concept of Long-term Social and Economic Development of the Russian Federation to 2020 (approved by the Russian Federation Government on June 165438+ 10/7, 2008) proposed to the geological department that efforts should be made to promote the geological research and mineral development of underground resource users; In the exploration and preparation of mineral deposits, establish a "pioneer" company; Restore the national geological exploration agency in distant scenic spots.
The Basic Work Direction of the Russian Federation Government to 20 12 (approved by the Russian Federation Government in 2008 +0 1.07) puts forward more specific requirements: encourage investment to flow to oil and gas field geological exploration and exploitation; Take a set of measures to realize the technical support and cadre support of geological prospecting units, and carry out institutional reform of geological departments on the basis of establishing a large-scale integrated management framework; Cultivate a competitive high-tech packaging service market.
According to the instructions of the above-mentioned documents, the ultimate goal of the development strategy of the Russian geological department is summarized in two sentences in the draft strategy: the sustainable development of the Russian Federation and the consolidation of Russia's position in the global raw material market (Figure 2-36). This ultimate goal depends on the following four key elements, which are actually the goals and expected results in four aspects.
(1) Geological research of underground resources and reproduction of mineral raw material base: improve the degree of land geological research; Reduce the types of minerals in short supply; Simple reproduction of mineral raw material base.
(2) Rational utilization of underground resources: comprehensive development of multi-component deposits; Increase the processing depth of mineral raw materials; Reduce the impact on ecology.
Figure 2-36 Target direction of development strategy of Russian geological department and expected result of implementing development strategy (quoted from селонской, 20 10)
(3) Regional development: implementing large-scale investment projects in mineral raw materials; Social and economic development in all regions is balanced.
(4) No adverse geological effects and phenomena: improve the safety of residents; Reduce the losses caused by geological disasters and geological phenomena.
The realization of the above four goals will also guarantee the geopolitical interests of the country.
Combining the geological research of underground resources with the reproduction of mineral raw material bases and promoting regional development is to delineate and develop mineral raw material centers.
Each of the above goals can be broken down into a series of more detailed tasks. The draft strategy stipulates four basic work directions.
There are four ways to improve the efficiency of geological prospecting and attract investment: first, continuous improvement: special outline (planning) planning (using mineral raw materials center); Guidelines for allocating and completing national orders; Management system (optimizing the organization of national geological department); National geological supervision system. The second is to develop an information analysis guarantee system. Third, scientific and technological support and innovative development. The fourth is the guarantee of cadres.
2. Improve geological planning based on mineral raw material center.
The concept of mineral raw material center is a special outline (planning) working mode advocated by Russian geological department at present, and it is also a development mode combining the development of geological department with the regional development required by the government. The so-called mineral raw material center refers to the sum of mining facilities (in mining layers), inter-mine transportation or intra-mine transportation facilities and mineral product preparation, registration and shipment facilities connected by the same infrastructure. The basis of realizing the special planning of mineral raw material center is the principle of target planning. With this principle, we can organize the research of mineral raw material bases within the natural boundaries of metallogenic areas and plan the development of resource bases in mineral raw material centers according to the transportation and energy infrastructure and cadre potential in the region, without being restricted by administrative divisions. The medium-term geological exploration work plan and license issuance plan formulated by the geological department in combination with the regional socio-economic development plan can coordinate the work of state organs, regions and enterprises, and make the regional development plan and the research and development of raw material bases cooperate with each other (Figure 2-37).
Determining and developing the mineral raw material center is one of the core tasks of Russian geological department, and it is a concentrated expression of the work tasks in two major fields: geological research of underground resources, reproduction of mineral raw material bases and promotion of regional development.
3. Improve the national order allocation and completion standards.
First of all, according to the national order distribution characteristics of geological exploration work, the Federal Law No.94-Ф 3 should be revised. This is to formulate pricing principles to ensure the transparency of the original price pricing of national contracts; Determine the evaluation criteria of the national order completion effect; Improve the regulatory agencies in the fields of geological research and reproduction of mineral raw material bases.
Figure 2-37 Russian mineral raw material complex development planning document (quoted from селонской, 20 10)
4. Reform the management system of geological enterprises and optimize the organizational structure of national geological departments.
This is the most important content, which largely determines the content of the whole draft strategy. The reform is divided into two steps. The first step is to terminate the across-the-board privatization of state-owned enterprises, which has been completed. The second step is to take organizational-legal measures and administrative measures to build scattered geological enterprises into a coordination system that can ensure the completion of the national functions of the reproduction of mineral raw material bases and the geological research of underground resources.
The organization scheme is: all geological enterprises are organized in three blocks (Figure 2-38). The function of the first block is to store geological information and perform a series of functions of the underground resources utilization committee of the Russian Federation, such as mineral reserves evaluation and mining design document review. The second part is based on the existing famous research institutes in the Russian Federation, which have been transformed into autonomous institutions. They will receive subsidies from the budget of the Russian Federation to provide information analysis guarantee in the process of the Russian Federation Underground Resources Utilization Committee performing its functions of geological research of underground resources and reproduction of mineral raw material bases. The third block is a state-owned geological exploration unit capable of signing contracts. They will operate in the form of unlimited joint-stock companies, and all shares will be owned by the state and under the jurisdiction of the government to ensure the technical completion of geological exploration, mainly the geological exploration part that the state must complete in the early stage of geological research. This state holding company can be called "Russian Geological Company" for the time being, and it will be organized according to types of work and regions. In order to make the corresponding census work evenly cover Russian territory and adjacent sea areas, its workload is enough to support the due level of national geological research.
The establishment and improvement plan of "Russian Geological Company" is divided into three steps. In the first stage, based on an existing enterprise, the person in charge is determined, and after the management organization is established, the management company is established to play the role of "Russian geological company", as the lead company, and initially as the shareholders of all geological enterprises. The second stage is to reduce the cost of the holding company, improve its efficiency and build its effective operation mode, and the role of the management company in this stage is to establish an effective organizational structure. In the third stage, "Russian Geological Company" will perform the functions entrusted to it according to the established target model. The main function of the management company at this time is to manage the activities of "Russian Geological Company" and supervise the operation of the whole system.
The above reorganization plan has been studied before and approved by the Prime Minister. At present, the necessary legal and normative documents for the implementation of the second phase plan are being drafted.
5. Continuously improve the geological supervision system.
It is required to standardize the deposit development procedure, determine the geological exploration stage, and specify the technical design coordination method related to the utilization of underground resources in detail. In terms of geological research and reproduction of mineral raw material bases, it is also necessary to formulate the working stages of completing national orders and the requirements of competitors, formulate transparent sanctions for violating the terms of underground resources utilization, and stipulate the formal reasons for changing or terminating the right to use underground resources.
Figure 2-38 Improving the management system (optimizing the organization of the national geological department) (quoted from селонской, 20 10)
6. Reduce administrative barriers and implement economic stimulus.
There are four measures to reduce administrative barriers:
Improve the supply of underground resources of great significance to the Russian Federation.
Make use of the applicant's principle to provide underground resources lots, simplify procedures and shorten the time limit for obtaining geological exploration work permits.
Simplify the procedure of providing deep exploration rights to users of underground resources, and simply correct the boundaries of underground resources by using geological exploration results.
For the reserves of deeper strata and adjacent mined-out areas, users of underground resources are given the right to increase reserves.
Economic stimulus measures to promote geological research of underground resources, reproduction of mineral raw material bases and rational utilization of underground resources include:
Improve the principle of compensation for users of underground resources and increase the reward for the first discoverer.
Implement a new tax system and change it to profits tax.
Improve the tariff collection mechanism for mineral raw materials and their processed products.
Reduce restrictions on foreign investment in geological exploration.
Tax incentives for innovation in developing scarce minerals and low-profit deposits.
Improve the classification system of mineral reserves and resources (especially when calculating recoverable reserves, more consideration should be given to the economic factors of deposit mining).
Attract small and medium-sized enterprises to participate in geological exploration and cultivate venture capital market.
:: Incorporate the requirements for processing mineral raw materials in the Russian Federation into the licensing agreement.
7. Establish a unified underground resource information management system.
This task was put forward by Russian Prime Minister Vladimir Putin at the meeting of the State Reserve Board in the summer of 2009. Geological information of the Russian Federation collected by different departments and aspects related to the development of mineral raw material bases should be incorporated into the vertical comprehensive information system as the basis for the management decision of the highest administrative organ in the field of underground resources utilization (Figure 2-39).
Figure 2-39 Building an Integrated Information Collaboration System (quoted from селонской, 20 10)
The core of this comprehensive information cooperation system includes Russian land research data, national mineral reserves balance table, mineral deposits and occurrences table, national underground resources geological research work register and license register. By signing the information exchange agreement between departments, we can obtain mineral exploitation information, raw material market information, infrastructure information and technical support information. All this information is sent to the Government Information Center of the Russian Federation.
In addition to the above tasks, in the aspect of geological information management and guarantee, a series of specific measures (omitted) are put forward to improve the information analysis guarantee system of each link of geological information circulation chain (collection, storage and use).
8. Scientific and technological support and innovative development of geological departments
The proposed measures include: allocating national direct investment and formulating innovative projects for national projects that private investment cannot solve; Innovative activities in the field of underground resources utilization adopt lease financing; Providing state guarantees to private investors who lend or cooperate for innovative projects; Provide tax incentives for enterprises that carry out innovative activities; Promote the commercialization of various forms of scientific and technological products (patents, use rights, technical secrets of scientific research achievements of underground resources and their incorporation into legal capital, etc.). ); Developing business incubators and scientific polygons; Consolidate advanced scientific and technological achievements in the form of national standards, technical operating procedures and departmental normative documents.
9. The cadres' guarantee in the geological department
This is a very urgent task for the Russian geological department at present, and it is planned to take the following measures to train professional talents: (1) popularize mining-geological professional knowledge among the younger generation; Improve the personnel training system of mining geology (higher education and secondary professional education). Therefore, it is necessary to bring teaching resources and syllabus into Russia's unified geological continuing education system and establish regional practice centers for students majoring in mining geology to carry out teaching practice. Ensure the competitiveness of material remuneration of employees in geological departments; Establish a reserve of leading cadres in the geological department.