I. Suggestions on Improving the New Mechanism of Geological Prospecting
The core problem of perfecting the new mechanism of geological prospecting is to properly handle the relationship between the government and the market, and establish a new mechanism of "market allocation, enterprise subject and government supervision" to make the market play a decisive role in the allocation of mineral resources.
1. Define the orientation of "mine" industry and implement unified management of exploration and development.
The first is to define the positioning of the mining industry. The separation system of exploration and mining formed under China's planned economy system stems from the fact that mineral resources exploration belongs to the tertiary industry and mineral resources mining belongs to the secondary industry, which does not conform to the market law and is incompatible with China's market economy system. Under the market economy system, the integration of exploration and mining is inseparable (in mechanism). There is a theoretical basis for classifying exploration and mining as "mining" and positioning them as the primary industry, which is also in line with world practice.
The second is to deepen the reform of the economic system, implement the "multi-department system with organic unified functions, improve the coordination and cooperation mechanism among departments", establish a new mining management system, and implement the "horizontal centralized and unified, vertical classified and hierarchical management" system in mining. Solve the current problems of separation of exploration and mining, horizontal multi-strategies in management, and vertical struggle for power and profit, and solve the problems of overlapping institutions and overlapping responsibilities.
2. Give full play to the indirect management of laws and regulations and the regulatory role of policies.
It is suggested to amend the mineral resources law. To make legal provisions on mineral resources related to national security, sustainable economic and social development, people's livelihood in Hui Ze and intergenerational compensation; Clarify the basic national policy of coordinating mineral resources exploration and development with environmental protection, and coordinating resource conservation and intensive utilization with ecological civilization construction; Make relevant legal provisions on the usufructuary right of mining rights that are compatible with the property law, and form a legal guarantee for the protection of mineral resources and mining development under the new situation.
It is suggested that the current collection method of resource taxes and fees should be adjusted. China's current mineral resources tax and fee system has not adapted to the new situation of mineral resources exploration and development, which is not conducive to the economical and intensive utilization of resources, resulting in unreasonable mineral prices and unfair distribution of mining income, and is not conducive to the transformation of mining development mode. The main problem is that the resource compensation rate of resource assets as monetary assets exhaustion compensation is low (average 1. 18%), and the compensation is insufficient; At present, the resource tax on regulating differential income generated by mineral resources as resource capital in production and operation activities is only partially levied, and the scope of collection should be expanded and ad valorem levy should be made.
It is suggested to solve the problem of alienation of mining right "price" system. At present, the "price" of mining rights is not levied according to the the State Council document, and "alienation" occurs from time to time. The scope of "price" has been expanded, and in some places, all exploration and mining rights, regardless of the investor and whether the mineral land is formed, must be "price"; The amount of "price" exceeds the investment cost of geological exploration; In some places, the expected income from mining is levied in full in advance, and the amount is getting bigger and bigger, far exceeding the resource compensation fee and resource tax. In fact, it is speculating resources. The alienation of "price" system confuses the concepts of "state-owned rights and interests" and "exploration investment rights and interests", disturbs the mining market and causes unfair distribution of mineral resources income. It is necessary to accurately distinguish between state-owned rights and interests and exploration investment rights, establish a separate operation mechanism between state-owned rights and interests of mineral resources and exploration investment rights, and adjust their disposal methods. Revise and improve the evaluation theory and method and related standard system. Under the condition of market economy, the "value of mining rights" (investors' rights and interests) should be determined by the market, and mining rights holders of different ownership systems should trade equally in the market.
It is suggested to solve the dislocation problem of "funds" in some places. The geological exploration fund was established under the condition that the basic market of geological exploration risk in China has not yet been established. Reduce exploration risks, guide social funds, conduct commercial mineral exploration, and indirectly play a financing role for commercial geological exploration. Now some local governments equate the use of geological prospecting funds with government investment in prospecting, competing for power with the market, competing for profits with enterprises and crowding out social funds.
3. Deepen the reform of the administrative management system and handle the relationship between the government and the market.
First, transform government functions and do a good job in public services. Deepen the reform of the administrative system, promote the separation of government and enterprise, government and capital, and government and society, deepen the reform of the administrative examination and approval system, continue to simplify administration and decentralize power, promote the transformation of government functions, create a good development environment for finding a breakthrough, provide quality public services, and safeguard social fairness and justice. At present, some local governments still have too much administrative management in the exploration and development of mineral resources, and there are still problems of separating government from enterprises, separating government from capital, and separating government from society, as well as the problem that the government controls mining rights and integrates managers, owners and operators.
The second is to standardize government input and handle the relationship between government input and social input. The Ministry promotes a new geological prospecting mechanism of "public welfare first, business follow-up, fund connection, comprehensive exploration and rapid breakthrough", and its core content is the investment mode and economic relationship of different investors. In order to improve the new mechanism of geological prospecting, it is necessary to standardize investment, especially government investment. At present, the funds for geological prospecting in most provinces (regions) mainly come from "resource compensation fee" and "price", mostly in the form of "provincial finance" and "provincial fund", and the government holds mining rights. It is necessary to standardize the operation mode of "provincial finance" and "provincial fund" for geological prospecting, correct the problems of no distinction between government and capital, no distinction between government and enterprise, no distinction between government affairs and even monopoly of mining rights, give play to the role of the market in allocating resources, and promote the healthy development of the strategic action of prospecting breakthrough.
4. Respect the market rules and improve the mining rights market.
To give full play to the basic role of the market in resource allocation, we must first establish and improve China's unified, competitive, open and orderly mining rights market and mining factor market. It is necessary to establish and improve the operating rules of mining rights market and standardize the operation of mining rights market. At present, the transfer of mining rights is a means for the government to adopt a market approach, not to allocate resources by the market, but to transfer the market is the real market allocation. It is necessary to strengthen the construction of the mining right transfer market and actively play the basic role of the market in allocating resources.
It is necessary to establish and improve a market system that is compatible with the mining market. Strict access system, standardize market behavior; Establish a financing platform for mineral exploration, establish a reasonable investment structure and risk incentive mechanism for mineral exploration, and standardize the mining capital market.
It is necessary to standardize intermediary organizations and give full play to the role of trade associations. Rectify existing intermediary organizations, standardize their qualifications, strictly control, strengthen self-discipline and improve their level.
5. Stimulate the new vitality of all kinds of mining market players.
Deepen reform and stimulate the development vitality of various mining market players. First, deepen the reform of state-owned mining enterprises, and transform them into joint-stock companies, such as Gansu Baiyin Nonferrous Metals Group Co., Ltd. and Hainan Shilu Iron Mine Co., Ltd., from the separation of exploration and mining under the planned economy system to the integration of exploration and mining under the market economy conditions, establish a scientific corporate governance structure, realize the separation of ownership and management rights, and solve the problem of separation of government and enterprises through state-owned holding and equity participation. Enhance the power and stimulate the vitality with the reform of the property rights system, and actively play the role of the market main body.
The second is to guide and support the development of non-public mining enterprises. With the deepening of China's economic system reform and the development of mining industry, non-public mining enterprises have become the main body of the mining market. We should conscientiously implement the two unshakable principles put forward in the report of the 18th National Congress of the Communist Party of China (unswervingly consolidating and developing the state-owned economy and unswervingly encouraging, supporting and guiding the development of the non-public economy), get rid of the shackles of "the surname of the country is the surname of the people", treat the non-public economy equally, use production factors equally, be equally protected by law, support the development of non-public mining enterprises, and make contributions to prospecting breakthroughs.
Second, suggestions on standardizing comprehensive exploration
Comprehensive exploration is a new prospecting model since the implementation of the new geological prospecting mechanism, and has achieved remarkable results in recent years. In the exploration of promoting integration as a whole in China, there are great differences in understanding and actual operation among provinces (autonomous regions and municipalities). Some comprehensive exploration areas include regional geological survey and exploration, coexistence of public welfare and commercial geological work, mixing of business expenses, capital and commercial capital, diversification of mining rights, investment system and exploration subjects. It is necessary to define the connotation of comprehensive exploration and formulate technical standards and exploration laws and regulations accordingly.
1. Connotation of comprehensive exploration
According to the progressive law of prospecting, comprehensive exploration is to select a certain mineral scale area (object) for unified deployment and overall exploration (subject) on the basis of public welfare mineral geological survey and mineral resources potential evaluation. This is a choice made by respecting natural laws and geological work, and it is an overall exploration of a mineral geological body with a certain scale.
To clarify the connotation of comprehensive exploration, we should define the selection of comprehensive exploration area, working procedures, working stages, technical standards and exploration regulations, working quality and its relationship with development, and the distribution of interests in exploration and development from the aspects of geological technical regulations and economic relations.
2. Comprehensive exploration management
For integrated exploration, the government's mining administration is mainly to formulate integrated exploration planning, establish exploration areas and mining rights, formulate exploration technical standards, supervise and manage operations, and create a good policy environment and social environment. The government can't manage mining rights, and it can't be both a referee and an athlete, which runs counter to the market allocation of mineral resources exploration and development.
By strengthening internal management and relying on scientific and technological progress, the main body of the comprehensive exploration market should improve the exploration efficiency, shorten the exploration cycle, realize the exploration objectives and tasks quickly, and obtain the economic benefits of its own development while ensuring the resources for national economic and social development.
3. Distribution and coordination of interests of all parties in comprehensive exploration.
Comprehensive exploration involves the interests of investors, exploration subjects, local governments and people in comprehensive exploration areas. The coordination of interests of all parties in the comprehensive exploration area is directly related to the success or failure of comprehensive exploration. The government and the competent department of mineral resources should focus on integrating the allocation of mining rights in exploration, clarify the rights and interests of each subject, and rationally coordinate the distribution of interests, which is very important to mobilize the enthusiasm of each exploration subject, promote the operation of the new mechanism, and achieve a major breakthrough in prospecting.
Three. Suggestions on strengthening basic geological work and promoting prospecting breakthrough by relying on scientific and technological progress.
With the increase of geological prospecting investment and the improvement of geological prospecting system and mechanism, the main contradiction affecting geological prospecting will become a scientific and technological problem. At present, there have been problems such as nowhere to put funds, low-level duplication of projects, low efficiency of prospecting and low quality of work. Strengthening management and relying on scientific and technological progress to achieve a breakthrough in prospecting is a real change in the development mode of mineral resources exploration and development.
1. Strengthen study and promote innovation of geological prospecting thinking.
Thinking innovation is the potential to achieve a breakthrough in prospecting. At present, the breakthrough of mineral exploration in China is coming rapidly, and the vast number of geologists are not well prepared in thought, knowledge and thinking. It is necessary to arrange different forms of study, training and exchange, improve their thinking and innovation ability, and tap the potential of prospecting breakthrough. Such as the re-understanding of China metallogenic background, marine resources, characteristics of China mineral resources, new minerals and new ways of development and utilization. The transformation from the kingdom of freedom to the kingdom of necessity is a powerful driving force to achieve a breakthrough in prospecting.
2. Improve the quality of geological exploration deployment.
Deployment quality is the first quality. At present, 78 comprehensive exploration areas have been deployed to make breakthroughs in prospecting, which need to be continuously optimized in practice.
Deployment should be based on demand-driven, problem-oriented, crossover, integration, big information and big data. Geological work has expanded from serving economic development to serving economy, society, ecology and people's livelihood. The field of geological exploration has expanded from the traditional bedrock to consider the earth's surface and deep crust. New minerals and new ways of development and utilization provide a basis for scientific deployment.
3. Strengthen the basic geological survey
In recent years, the important progress of prospecting work is based on the accumulation of geological work for many years, especially the basic geological survey and resource potential evaluation, which provides an important basis for the overall exploration of the constituency. According to the investigation of various provinces (regions), some provinces (regions) are obviously insufficient in integrating exploration and adding new reserve bases. In 14, the investment in basic geological survey is low (about 30%), and the investment in local basic geological survey is even lower.
It is necessary to improve the understanding of the importance of basic geological survey in improving the level of earth science and promoting geological prospecting, correctly handle the relationship between basic geological survey and current prospecting breakthrough, coordinate current and long-term, effectively strengthen basic geological survey, increase the investment ratio of basic geological survey in central public welfare geological work, increase the investment of local basic geological survey, adopt new technologies and methods, strengthen management, improve the level of basic geological work, and ensure the sustainable development of comprehensive exploration.
4. Relying on scientific and technological progress to achieve a breakthrough in geological prospecting.
With the expansion of geological survey service field and the increase of prospecting difficulty, some traditional theories can no longer guide geological prospecting, and some technologies and methods can't meet the new requirements of geological prospecting, so new prospecting theories and technologies and methods are needed to support it in order to improve geological prospecting ability.
Formulate policies and measures to promote geological prospecting by relying on scientific and technological progress, encourage and motivate production units, scientific research units, scientific research workers and front-line workers in geological prospecting, carry out theoretical research on geological prospecting, form prospecting techniques and new methods of comprehensive analysis, comprehensive exploration and comprehensive evaluation, and solve the problems that some traditional geological theories are ineffective in guiding geological prospecting and some traditional outdated technical methods are inefficient on the whole, so as to improve the level of geological prospecting.
Four, on the overall coordination of mineral resources exploration and development and ecological construction and environmental protection suggestions.
One of the outstanding problems to be solved in geological prospecting is the contradiction between resource development and environmental protection. How to coordinate the exploration and development of mineral resources with the environmental protection of ecological construction should be based on the overall pattern of "five in one" of economic construction, political construction, cultural construction, social construction and ecological civilization construction in Socialism with Chinese characteristics, based on the requirements of ecological civilization construction, and carry out economic and social construction on the premise of respecting nature, conforming to nature and protecting nature. The construction of ecological civilization should be guided by environmental protection and resource development, giving priority to protecting the ecological environment, rationally deploying the exploration and development of mineral resources, and realizing the coordinated development of ecological environment protection and mineral resources development.
1. Leading environmental protection and resource development with the construction of ecological civilization.
The deployment of geological exploration should obey and serve the overall layout of ecological civilization construction. Environmental protection and resource development should be guided by the theory of resource environmental value. The ecological value and productivity value of resources and environment are unity of opposites in resources and environment. Human beings should not only seek survival in the process of realizing ecological value, but also seek development in the process of realizing production value. The balance between ecological value and production value is the fundamental guarantee of sustainable development. Do a good job in land planning and optimize the spatial development pattern of land. On the basis of the evaluation of the carrying capacity of resources and environment, according to the principle of the balance of population, resources and environment and the unity of economic, social and ecological benefits, the ecological protection, resource development and livable urban and rural areas are divided, the functional orientation is defined, and the national land planning is formulated. Follow the principles and spatial scope of land planning, formulate corresponding exploration and development plans for mineral resources and put them into practice. Control the development intensity, adjust the spatial structure and promote the intensive and efficient production space.
2. Promote "Area Protection" with "Point Development"
In China, the Qinghai-Tibet Plateau, Daxing 'anling and Qinba areas are not only important ecological function areas, but also important metallogenic areas. We should give priority to the ecological environment, develop in protection and protect in development, promote the construction of a resource-saving and environment-friendly society, and promote "surface protection" with "point to area". According to the requirements of national and regional economic and social development, based on the carrying capacity of ecological environment, the scale of mineral land and other factors, "point development" and "area protection" should be considered as a whole.
"Point development" should explore and develop mineral resources with the strictest access threshold, the most advanced management concepts and methods, the most advanced professional teams and technical equipment, strictly protect the ecological environment, rely on scientific and technological progress, economize and intensively use resources, share development benefits with people in mining areas and jointly protect the ecological environment.
The "point development" of mineral resources not only provides mineral resources for economic construction, but also provides material basis and financial support for ecological environment protection. Point development promotes "overall protection", promotes the coordinated development of mineral resources exploration and development and ecological environment protection, and realizes a win-win situation.
3. Formulate and implement an ecological compensation system that reflects the relationship between market supply and demand, reflects ecological value and intergenerational compensation.
Establish and implement an ecological compensation system aimed at protecting the ecological environment and promoting the harmonious development between man and nature, and adjust the relationship of stakeholders in ecological protection according to ecological value and ecological protection cost. The basic principles are "who protects whose interests" and "unity of responsibility and rights".
To implement the ecological compensation system, it is necessary to establish an ecological compensation platform that combines government-led and market transactions, negotiate and discuss different compensation types, compensation subjects, compensation contents and compensation methods, and organize their implementation.
The main body of compensation for ecological environment damage and pollution caused by basic geological work, mineral prospect investigation and partial census is the government; The main body of compensation for ecological environment damage and pollution caused by mineral exploration is enterprises. For the loss of ecological value in the working area or mining area, the compensation standard is determined according to the cost of restoring the ecological environment.
Five, suggestions on actively and steadily promoting the reform of state-owned geological prospecting units
State-owned geological prospecting units have made great contributions to the development of China's geological undertakings and still play a major role in the current strategic action of geological prospecting breakthrough.
The reform of state-owned geological prospecting units has gone through a period of arduous exploration, with remarkable results and great development. However, there are many problems left over and heavy social burden. Whether and when to become an enterprise has been debated endlessly, with unclear goals and inconsistent pace. The guiding opinions of the central authorities on promoting the reform of public institutions by classification provide a rare opportunity for the reform of state-owned geological prospecting units. The focus of this reform is to determine the scale of geological survey teams engaged in public welfare services according to the needs of economy, society, ecology and people's livelihood in the historical period of building a well-off society in an all-round way. The difficulty lies in the ability and conditions to study and determine the regional economic scale and marketization degree of geological prospecting units transformed into enterprises.
It is suggested that the competent department of geological prospecting industry should seize this favorable opportunity, take the spirit of the central document as the guide, sum up the experience and lessons of the reform of geological prospecting units from the characteristics of the geological prospecting industry, put forward a clear reform direction, straighten out the management system, improve the policy environment, solve the problems left over from history, implement the guiding spirit of the central classification to promote the reform of geological prospecting units and institutions, actively, steadily and orderly promote the development of geological undertakings and promote the breakthrough of geological prospecting.
(The original "Expert Suggestions of Consulting and Research Center of Ministry of Land and Resources" was published in 2065 438+03. 09, and was co-authored by Yu, Wang, Chen and Chen. )