First, the basic situation of commercial mineral exploration
With the westward shift of the national energy development strategy, in the new round of resource development, resource-rich Inner Mongolia has become one of the most important mineral resources development areas in China. Different from the previous development, the new round of development coincides with the strong demand for resources for China's economic development. On the one hand, the state and government have limited funds for resource exploration; on the other hand, a large amount of social "hot money" is rushing into the field of resource exploration and development. In this case, in order to strengthen the government's role in resource allocation, Inner Mongolia Autonomous Region explores the establishment of an investment mechanism to activate exploration funds, and government investment in exploration guides social funds to accelerate the exploration and development of commercial mineral resources, so as to adapt to the exploration of mineral resources, find the best combination of government will and social needs, and guide the surging "mineral resources fever".
(1) The government has invested a lot of money, and social funds have actively entered.
Before 2004, the investment in commercial mineral exploration in Inner Mongolia Autonomous Region basically depended on the national allocation of geological prospecting fees and resource compensation fees.
From 2000 to 20001year, in the commercial geological exploration work in the whole autonomous region, the geological exploration fees and resource compensation fees allocated by the state accounted for 70% of the exploration project funds. From 200/kloc-0 to 2004, the proportion of social capital investment in total exploration funds increased year by year, from 20% and 30% to 60%, and the corresponding proportion of national geological exploration fees and local financial investment in commercial exploration was gradually decreasing. With the expansion of social investment scale, 70% of exploration project investment funds in 2005 were social funds.
In 2002, Inner Mongolia Autonomous Region issued the Notice on Encouraging and Supporting Geological Prospecting Teams at Home and Abroad to Carry out Geological Exploration in Inner Mongolia, which promoted the geological prospecting teams from other provinces and investors with investment strength to invest in commercial risk exploration in Inner Mongolia.
In 2004, in order to strengthen the exploration and development of mineral resources, the government invested 300 million yuan in geological exploration. Among them, 1 100 million yuan was taken from the financial budget of the autonomous region as the start-up capital, and 4 million yuan was taken into account for the agricultural geochemical exploration and investigation project carried out by the Ministry of Land and Resources in Hetao area of the autonomous region. All counties in the Union City took out 654.38 billion yuan from the proceeds from the transfer of mining rights and local finance; The land and resources department raised 654.38 billion yuan. More than 3 billion yuan is mainly used for 93 exploration projects that have been identified.
The decision of the local government to inject 300 million yuan to guide the ownership of the mining rights of investors has brought strong social repercussions. The municipal governments of various leagues are also actively trying to find ways to raise secondary guidance funds, taking measures such as squeezing out a little from the finance at the corresponding level and collecting a little from the mining right management, so as to put more geological prospecting projects in their own jurisdictions, find out the resources and lay the foundation for the transfer of mining rights. In 2004, the investment in commercial exploration in the whole autonomous region reached 654.38+0.69 billion yuan, of which, in 2004, the autonomous region invested 230 million yuan in mineral exploration in four metallogenic belts and eight resource-rich areas; In 2004, enterprises, individuals and other social funds applied for 800 projects, and invested about 654.38 billion yuan in exploration funds, five times that of the previous year (see table 654.38+0). In 2005, the autonomous region will also raise 330 million yuan for geological exploration.
(2) From 2000 to 2002, the number of exploration projects registered in the whole autonomous region remained at about 350 per year. Since 2003, the number of exploration projects has greatly increased.
In 2003, 827 exploration projects were approved in the whole region, with an exploration area of 65,438+870,000 square kilometers. In terms of minerals explored, there are 186 gold exploration projects, 107 copper exploration projects, 94 coal exploration projects, 96 lead exploration projects and 76 iron exploration projects.
In 2004, the whole autonomous region approved more than 0.7 million exploration projects/kloc-0, with an exploration area of 38,000 square kilometers, both more than twice that of 2003, as shown in table 1.
Table1Investment of Geological and Mineral Exploration Funds in Inner Mongolia Autonomous Region from 2000 to 2005
As can be seen from the above data, the capital investment in Inner Mongolia Autonomous Region is directly proportional to the growth of geological and mineral exploration projects.
(3) The exploration work has achieved good results.
From 2002 to 2005, the results of commercial mineral exploration increased, but most of them were small and medium-sized mineral resources, 845 anomalies were delineated and 246 small and medium-sized mines and mineralization points were found. Two super-large mines were discovered: Bayinba Silver Polymetallic Mine in Keqi and Haoyaoerhudong Gold Mine in Wuzhong Banner. Other major minerals are iron and non-ferrous metals, and coal mines mainly improve the level of exploration.
Second, the transfer and management of exploration rights
In 2004, Inner Mongolia Autonomous Region sold 67 exploration rights through bidding, auction and auction, and collected 220 million yuan for the transfer of exploration rights. 238 mining rights were transferred, and the realized price was1.1.90 billion yuan.
From 2000 to 2004, the number of exploration rights transfer was relatively small, only a few Chinese-foreign cooperation forms of exploration rights transfer, mostly in the form of pricing shares, and the amount was relatively small. Generally, it is USD 65,438+00 ~ 65,438+03,000. In 2004, more exploration rights were transferred, and 47 exploration rights were transferred. Most minerals are coal and iron, as well as non-ferrous metals. The transfer price of iron and non-ferrous metal exploration rights in the form of one-time sale is generally below 6,543,800 yuan, and the transfer price in the form of cooperative exploration is above 6,543,800 yuan. The transfer price of coal exploration rights is generally between 3 million and 5 million yuan, and large projects are around 30 million yuan. In 2004, the total transfer price was 80 million yuan.
The government of Inner Mongolia Autonomous Region fully controls and allocates mining rights, and encourages geological prospecting units and enterprises to invest, with risks and benefits shared. For the exploration projects entrusted by the government, the exploration right belongs to the government, and the geological prospecting units cannot dispose of it by themselves. Geological prospecting units are wage earners. When the mining right is transferred, the geological prospecting units can obtain a certain proportion of economic benefits, generally 65,438+00%. Geological prospecting units have the strength to buy mining rights. Government-controlled resources have been extended downwards. At present, the competent department of land and resources of the autonomous region stipulates that when the owner applies for mining rights, the government where the project is located needs to sign an opinion, otherwise the department of land and resources of the autonomous region will not accept it.
Third, the reform and development of geological prospecting units
(A) the overall situation of the team
There are mainly three geological exploration teams in Inner Mongolia Autonomous Region: Geological Exploration Bureau, Coal Geology Bureau and Nonferrous Geology Bureau, all of which have been localized. The team size is about 26,000 people (15849, 7,200 and 3,600 respectively), including retirees, and the ratio of on-the-job and retirees is basically1:1. The team structure and pattern of commercial geological prospecting basically continue the situation before localization, but the scale of operation and work content have changed. After localization, all units were in a difficult period until 2003. Since 2003, the autonomous region began to raise funds to invest in basic, public welfare and commercial geological and mineral exploration. Under the situation of strong market demand, social and enterprise investment has surged, especially in coal mine exploration and development. Under the guidance of the spirit of the Notice on Encouraging and Supporting Domestic and Foreign Geological Prospecting Teams to Carry out Geological Exploration in our region, the projects undertaken by geological prospecting units (including national financial and market projects) have begun to grow rapidly and the scale of work has been expanding. Take the Bureau of Coal Geology as an example. In 2004, more than 400 rigs were started, and the construction teams came from all over the country, with large economic scale and many employees.
Basic situation of the third inning:
1. Inner Mongolia Geological Exploration Bureau
1999 localization, * * * has more than 20 secondary units, 32 mining rights in the bureau and more than 300 mining rights in the world. The cost of geological prospecting is 207 million, with 65.438+0.6 million employees, 65.438+0.3 billion retirees, 65.438+0.0 million widows, 40 million laid-off workers and 40 million employees, leaving only 27 million employees, with a per capita income of less than 3,000 yuan. Therefore, the mining right I have has no funds for further exploration, and the degree is low enough to operate in the mining right market.
2. Inner Mongolia Nonferrous Geological Exploration Bureau
There are 3,600 people in the world, including retirees 1395, unemployed and redundant people 1233. In 2000, there were 12 subordinate units, including 2 enterprise units and 2 prospecting units, and only 150 people directly engaged in prospecting. Every year, 56 million yuan is used for geological undertakings, 35 million yuan is used for retirement,/kloc-0.20 million yuan is used for off-duty and redundant personnel, and the remaining 9.2 million yuan is used for base management and social security. There is basically no fund for prospecting.
Master more than 60 mining rights, and some new mining rights are being registered, including the supporting preferential policies for mining rights given by the government in the restructuring. It is estimated that more than 80 mining rights will be achieved in 2005. In fact, the mining rights allocated by the government belong to the government, and the geological prospecting units have some interests.
3. Inner Mongolia Coalfield Geology Bureau
There are 7,200 employees, including 3,700 in-service and 3,500 retired. There are 14 secondary units and 8 geological teams, in addition to 1 oil exploration offices and 1 infrastructure companies, and the base of geological exploration fee for localization is 90 million yuan. In 2003, the market projects and government-commissioned projects increased greatly, and the income surged, but there was no independent mining right.
(2) Commercial mineral exploration
The commercial mineral exploration of the Third Bureau varies according to different situations. On the whole, the scale of their own investment is very small, and the sources of funds are mainly projects entrusted by the government and market projects.
After localization, the Bureau of Geology and Mineral Resources still attaches great importance to mineral exploration. Under difficult circumstances, from localization to 2003, the total investment in geological and mineral exploration reached 40 million yuan, with an average annual investment of about100000 yuan. Great progress has been made since 2004. In 2004, it undertook 2 geological exploration projects subsidized by the central government, 3 resource compensation projects in the autonomous region, 4 state-funded projects and 79 fiscal geological exploration projects at the autonomous region level, with a cumulative investment of 654.38+55 billion yuan, including 3 projects started in that year with an investment of more than 60 million yuan. In 2005, a large number of projects continued to be started. In 2005, the autonomous region undertook nine new coal exploration projects with a capital of 33.5 million yuan, as well as social and enterprise investment projects. Geological prospecting units have the feeling that "spring is coming". At present, the Bureau of Geological Exploration owns about 300 mining rights.
The Bureau of Coalfield Geology has basically undertaken all the projects entrusted by the autonomous region, and has no independent mining right in its hands. Before 2002, the funds for geological and mineral exploration projects from various sources did not exceed 3 million yuan, with little investment from enterprises and society. After 2003, it also began to improve rapidly. In 2003, all kinds of exploration funds reached 654.38 billion yuan, in 2004, 300 million yuan, and in 2005, all kinds of funds reached 400 million yuan, and about 400 rigs were started. However, it is expected that the peak period of investment will soon pass, because the demand of the coal market will change, and the work area with a slightly higher degree of exploration is basically occupied by the owner, while other work areas have a low degree of exploration and high risks.
The Bureau of Nonferrous Metallurgy and Geology also has less investment in exploration. The funds of this bureau are used to guarantee the minimum investment of 69 mining rights, and the others are mainly the central and local resource compensation fees and financial subsidies. From 2002 to 2004, * * * totaled 23,065,438+ten thousand yuan.
(3) Reform of geological prospecting team
The reform of Inner Mongolia Autonomous Region began to develop in depth under the leadership of the government. According to the present situation, regional resource advantages and market development trend of geological prospecting units, the district government believes that we should start with speeding up the reform of geological prospecting units, give strong support in policy and solving practical difficulties, and make them develop healthily to meet the requirements of the new situation. Its guiding ideology is to regard geological prospecting units as wealth rather than burden; Reform should adhere to the direction of enterprise; Adhere to the principle of respecting history and attaching importance to reality; Adhere to the principle of overall planning and steady progress; Adhere to the principle of combining principle with flexibility, and promote the reform and development of geological prospecting units in stability.
Key points of reform:
1. Transfer the social functions of geological prospecting units to local governments.
According to the reform direction of enterprise geological prospecting units, the primary and secondary schools and technical schools managed by the Third Bureau, including personnel (including retired), assets and funds, are included in local management. The adjustment funds are based on the funds allocated by the higher authorities in 2004, and the existing difference (referring to the difference between the current wage subsidy standard for school personnel in geological prospecting units and the standard for similar local personnel) is allocated to the local area by the finance of the autonomous region and the Third Bureau at a ratio of 50% each for 3 years. After that, the local finance is responsible for the funds needed by the school.
2 retirees and on-the-job personnel funds are managed separately.
At the end of 2004, the funds for retirees registered in geological prospecting units were set aside from the financial allocation base of local geological prospecting units and managed separately. In 2004, retirement expenses (wages, subsidies, benefits payable) and medical insurance expenses (8,000 yuan per retiree, calculated according to the actual expenditure of the year) were taken as the base, which were managed and distributed by the original unit. Later, the national policy wage adjustment and other capital increase expenses and the corresponding policy subsidies issued by the autonomous region were fully allocated by the autonomous region finance to ensure that retirees have a sense of security and medical care. After the reform, if the registered employees of the original institutions meet the retirement conditions, the retirement expenses shall be deducted from the geological prospecting funds (per capita expenses of the employees after deducting the expenses of retirees according to the fund base of geological prospecting units); The labor contract personnel who used to work in institutions shall be implemented according to the relevant social security retirement policies of the autonomous region government.
After the funds for retirees are listed separately, the management of retirees in various geological prospecting bureaus will still be undertaken by each bureau, and no new institutions and establishments for managing retirees will be added. The Department of Land and Resources of the Autonomous Region should strengthen the management and guidance of the retirement work of geological prospecting units.
3. On-the-job personnel are responsible for their own profits and losses.
Reform the way of financial subsidies. On-the-job personnel take the geological exploration budget of Inner Mongolia Geological Exploration Bureau, Nonferrous Geological Exploration Bureau and Coal Geology Bureau in 2005 as the base, and after deducting retirees' funds and transferred school funds respectively, the remaining part is used as the fund base, and quota management, lump-sum use and self-financing are implemented, and the income-generating part of each unit is left to each unit. The expenses for new employees include salary, subsidy, welfare, social insurance, housing accumulation fund, etc. , solved by the employer itself, without increasing financial allocation.
4. Expand the autonomy of employing people
After the reform of financial subsidy mode, the enterprise establishment will no longer be approved, and the original enterprise establishment of geological prospecting units will be registered and managed according to the actual number of registered people, and files will be established. If one person is reduced, the establishment will be reduced accordingly. Newly-hired personnel are employed by their own units, sign labor employment contracts with the employed personnel, and participate in endowment insurance according to the provisions of the basic endowment insurance for enterprise employees. 3. The number of leadership positions and internal institutions of the Geological Exploration Bureau and its subordinate units shall be adjusted by themselves. The existing leaders of internal organs and subordinate units shall be registered and managed, and the newly recruited leaders shall no longer determine the administrative level.
5. Enterprise management is implemented within geological prospecting units.
6. Strengthen the management of geological prospecting units.
7. Corresponding reform policy support
(1) In the past and now, the mineral land invested by the state and autonomous regions and explored by geological prospecting units was paid for transfer, and the exploration fund was withdrawn at 10% of the evaluation price to support the geological prospecting work as a whole. With the deepening of enterprise reform, this ratio will gradually increase. The extraction of exploration funds collected by the autonomous region finance, earmarking.
(2) In the process of enterprise restructuring, the geological prospecting units apply for transferring or transferring the prospecting and mining rights that have been obtained by the state-funded exploration and formation of mineral land, and if they meet the requirements and are approved, part or all of the price will be converted into the state capital of the state-owned geological prospecting units.
(3) Actively strive for the support of the central government. In the future, all the policy subsidies for localized geological prospecting units arranged by the central government will continue to be used for geological prospecting units.
(4) Geological exploration projects arranged by the government of the autonomous region every year shall give priority to geological exploration units in the autonomous region under the same conditions.
(5) In 2005, a special fund of160,000 yuan was cut out from the geological prospecting budget, returned to the reduction channel and included in the fund base.
(6) Before the reform of geological prospecting units, the pension insurance, housing and reform expenses of registered employees were treated equally with similar personnel in other institutions in the autonomous region and implemented simultaneously.
Four. Discussions and suggestions on relevant issues
Some problems existing in the commercial geological prospecting work in Inner Mongolia Autonomous Region are similar to those in Shanxi Province, which have been discussed and put forward in the report "Investigation on Commercial Geological Prospecting Work in Shanxi Province", so this article will not repeat them here. Now I would like to put forward my understanding and suggestions on the following issues.
(A) should further clarify the rights and responsibilities of governments at all levels in the management of mineral resources.
At present, many local governments implement comprehensive control and allocation of mineral resources within their jurisdiction, and stipulate in the documents of the competent department of land and resources of Inner Mongolia Autonomous Region that projects not signed by the League (city) government will not accept applications; 70% of the transfer price of mining rights remains in the local area, and 30% is collected by the office; And the government's regulations on resource allocation. This leads to: how does the state ownership of mineral resources reflect? Where are the boundaries of powers and responsibilities of governments at all levels in managing mineral resources? How does the country realize the unified management of mineral resources? If these problems are not solved in time, the order and management of mineral exploration and development will be chaotic. Therefore, it is necessary to further clarify the functions of governments at all levels in mineral resources management as soon as possible, and combine unified management with classification, scale and grading management.
(2) Attention should be paid to "safeguarding rights" and "staking a horse".
Due to historical reasons and their own work characteristics, there are still many continuous exploration projects after the localization of geological prospecting units affiliated to various departments of the central government. Due to the long exploration period, weak foundation of geological prospecting units and insufficient investment in actual geological exploration, only the minimum investment in exploration can be completed according to the requirements of laws and regulations. Some of them can't meet the strict requirements of laws and regulations, and there is a phenomenon of "safeguarding rights and protecting land", which will affect the prospecting results and market construction of geological prospecting work.
On the other hand, in terms of mining right investment, there are still different degrees of private capital "staking" phenomenon. For example, in Inner Mongolia, a private investor bought a prospecting land with an area of 1.000 yuan/square kilometer, but actually did not conduct formal geological exploration.
(3) Exploration needs to be standardized and managed urgently.
In the process of investigation, many mining managers believe that there should be a clear and specific threshold condition for the acquisition of exploration rights, and it should not be just who pays the highest price that anyone can get the mining right. The exploration and development of mineral resources are highly scientific, professional and technical, and mineral resources are non-renewable resources. Therefore, once the mine owner does not follow the rules, it will cause great waste and damage to the national resources, and this waste and damage has already occurred in many places. For example, some private investors, after obtaining the mining right, even hired many shepherds, using simple magnetic equipment to dig outcrops on the mountains and find abnormal points to mine iron ore. But in fact, this phenomenon is not caused by investors with different identities investing in mining rights. The main reason is that there is no access for mining rights holders and the standards and conditions for effective supervision and management of their exploration activities.
(D) hidden dangers of sustainable development and supply of mineral resources
At present, most of the mining rights or exploration objects are mineral anomalies or occurrences discovered in the 1980s and 1990s, and most of the current exploration funds are invested in these places, while very few of them are used for risk exploration or general survey in blank areas, basically eating the property left over from the past. Therefore, the current "fire storm" trend of commercial mineral exploration will not last forever. Judging from the rapid economic development in China, the strong demand for resources will remain for a long time, so the pace of resource development will be faster and faster, and it is difficult to meet the needs of sustainable economic development only by relying on the family property left over from the past. Therefore, how to encourage and promote appropriate scale funds to invest in the exploration and discovery of new mineral resources is an unavoidable major issue related to the sustainable supply of mineral resources.
(E) the sustainable development of private enterprises
Yitai Group is the only private listed coal enterprise in Inner Mongolia Autonomous Region, and it is one of the backbone enterprises with an annual output of15.6 million tons, and plans to build a large-scale coal base of 13 in China. Yitai Group is listed as one of the key enterprises with an annual output of 50 million tons of coal by Inner Mongolia Autonomous Region. Based on this output and enterprise existence 100 year, the company must have at least 5-8 billion tons of recoverable reserves of coal resources, but now, Yitai Group has only 2.2 billion tons of resources.
In the national planned 13 coal base, the reserve resources of large state-owned enterprises such as Shenhua Group have been guaranteed, but private enterprises as backbone enterprises, such as Yitai Group, are facing the contradiction between enterprise development and insufficient reserve resources.
(VI) The management of geological prospecting industry needs to be strengthened urgently.
The competent department of land and resources shall strengthen the management of geological exploration industry and strengthen macro-control, coordination, supervision and guidance services. The industry management opinions reflected in this survey mainly include:
(1) Strengthen geological exploration planning. According to the needs of national economic development, in the long run, we should rationally plan public welfare geological work and commercial geological work, and do a good job of connecting them so that the former can provide effective services for the latter.
Geological exploration planning should be incorporated into the national economic and social development planning and the provincial people's government planning, and macro management should be carried out through planning to provide basic data for comprehensive planning and planning, provide a basis for the development of geological exploration work, and guide the healthy and orderly development of the exploration right market.
(2) straighten out the investment channels of state budget funds, unify management and strengthen supervision. At present, the investment channels include national investigation fund, central mineral resources compensation fee, state financial subsidy, crisis mine exploration fund, funds invested by relevant departments in the State Council, provincial mineral resources compensation fee (some cities and counties also have mineral resources compensation fee), provincial mining right "price" income, exploration fund and poverty alleviation fund in the business expenditure of state-owned geological prospecting units, etc. Due to too many affairs, too many policies, too many fund channels and too chaotic project management, a project can apply for multiple exploration funds repeatedly, which is characterized by unclear property rights, scattered and extensive management, poor supervision, increased cost and low exploration quality, and is prone to "loopholes". It is suggested that relevant departments should establish a coordination mechanism, give full play to the enthusiasm of all parties, and achieve better exploration results with less investment.
There is also a late investment in budget funds, and the results must be delivered in the same year, which does not conform to the laws of geological work and is difficult to guarantee the quality of work.
(3) Strengthen the construction of laws and regulations. It is suggested that the competent department of land and resources should gradually formulate or clarify the norms and technical standards for commercial geological exploration, standardize market behavior and strengthen supervision and management. Carry out the contract management system of geological exploration projects.
It is suggested that the competent department of land and resources should study and formulate exploration market price standards in different regions through intermediary agencies or directly affiliated research institutions, and publish them regularly for local reference. At present, there is no reasonable market price reference standard for commercial mineral exploration projects in the bidding process, and the fund gap of similar projects is large, which affects the exploration quality. The exploration project funded by the state is lower than the actual market price according to the budget standard of public welfare geological work of the State Geological Survey in previous years. The construction unit is at a disadvantage in the market competition. In the fierce competition, it is unprofitable to lower the price and win the bid.
(4) Efforts should be made to improve the external environment of exploration. At present, there are contradictions between exploration and land management departments, mining enterprises, forestry, agriculture and environmental protection departments. The phenomenon of civil strife, excavation and indiscriminate mining within the scope of legal exploration rights is more serious.
(5) Strengthen information exchange. Provide services for geological prospecting units and all walks of life, including the release and use of public welfare geological achievements, mining rights market information, new theories, technologies and new processes of geological exploration.
(6) Pay attention to the construction of talent team and improve the quality of geological exploration. On the contrary, it is agreed that the lack of talents can no longer adapt to the development of geological prospecting, especially the lack of technical backbone, and the quality of geological prospecting has declined. At present, the training situation in colleges and universities is unknown, and geological prospecting units can't enter people, and it is difficult to retain those who have entered. Most of the geological technicians in private mining enterprises are hired by geological teams with high salaries, and a small number are temporarily hired by retired geological personnel. The situation is really not optimistic. Under the market economy system, how to solve this problem should be considered by the relevant industry management departments.