Systematic Cognition and Path Optimization of Comprehensive Utilization of Abandoned Mines —— Based on the Theoretical Perspective of Factor Endowment Differences
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摘要:
废弃矿山综合利用是提升资源利用率，促进高质量发展的重要议题，通过系统认知矿山综合利用要素构成、禀赋及其驱动机制，为促进废弃矿山综合利用优化提升提供理论基础和研究思路。通过采用文献综述法和归纳演绎法，梳理了我国矿山综合利用的演进、政策、内涵，结合国内外实例，阐释了矿山综合利用的驱动机制和作用机理；分析了废弃矿山综合利用的要素及其禀赋差异；梳理矿山综合利用业务逻辑和关键技术环节，提出了基于“类型划分-问题识别-潜力评估-运行机制设计-政策创新”的矿山综合利用优化路径。
Abstract:Comprehensive utilization of abandoned mines is an important issue to improve resource utilization and promote high-quality development. By systematically recognizing the composition, endowment and driving mechanism of comprehensive utilization of mines, it provides theoretical basis and research ideas for promoting the optimization and improvement of comprehensive utilization of abandoned mines. This paper adopted the method of literature review, induction and deduction, combs the evolution, policy and connotation of comprehensive utilization of mines in China, and explained the driving mechanism and action mechanism of comprehensive utilization of mines in combination with empirical examples at home and abroad. The factors of comprehensive utilization of abandoned mines and their endowment differences were analyzed. The business logic and key technical links of comprehensive utilization of mines were sorted out, and the optimization path of comprehensive utilization of mines based on "type division - problem identification - potential evaluation - operation mechanism design - policy innovation" was proposed.
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Key words:
- Abandoned mines /
- Comprehensive utilization /
- Cognition /
- Essential factor /
- Route
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表 1 我国矿山生态修复发展演变历程
Table 1. Evolution of mine ecological restoration in China
时间 对象目标 阶段特征 主要政策 1989年以前（萌芽阶段） 造林造田，改善环境、维护矿区安全 受限于社会、经济和技术，处于零星、分散、小规模、低水平状态 以各矿区自发实践为主 1989—2019年（发展阶段） 对矿山损毁土地进行复垦复绿，初步探索建立矿山生态修复市场化制度机制 由“谁损毁、谁复垦”拓展转变为“谁损毁、谁复垦、谁投资、谁受益”；激励措施逐渐明确 《土地复垦规定》《国务院关于全面整顿和规范矿产资源开发秩序的通知》《土地复垦条例》《土地复垦条例实施办法》《矿山地质环境保护规定》《关于加快建设绿色矿山的实施意见》等 2019年至今（综合发展
阶段）较为全面的提出了以市场化方式推进矿山生态修复的一系列激励政策措施 社会投资主体以获得资源使用权或者资本投入资金收益回报等方式，参与矿山生态修复与综合利用，各地涌现出一批模式多样的矿山修复与利用的典型案例 《关于统筹推进自然资源资产产权制度改革的指导意见》《关于探索利用市场化方式推进矿山生态修复的意见》等 
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表 2 我国和部分省份矿山生态修复有关政策设计
Table 2. Relevant policy design of mine utilization in China and some provinces
发文主体 名称 主要政策 中共中央
国务院《关于统筹推进自然资源资产产权制度改革的指导意见》 为鼓励和引导公众参与矿山生态修复工作，基于“谁修复、谁受益”原则，在满足一定条件的情况下，允许社会投资主体获得一定期限的自然资源资产使用权等 自然资源部 《关于探索利用市场化方式推进矿山生态修复的意见》 赋予和保障修复/投资主体后续土地使用权或投资收益、盘活存量矿地资源、矿山存量建设用地修复后的腾退指标或耕地复垦指标在一定范围内流转使用，合理规范使用历史遗留露天开采类矿山修复工程中的废弃矿山土石料等 广东省委 广东省人民政府 《中共广东省委 广东省人民政府关于全面推进自然资源高水平保护高效率利用的意见》 生态保护修复主体可依法依规取得一定份额的自然资源资产使用权，支持设立市场化运作的生态保护修复基金；推进矿产资源开发整合和综合利用 山东省自然资源厅等部门 《关于印发山东省矿山生态修复实施管理办法的通知》（鲁自然资规
〔2021〕2号）投资主体有权获得有偿调剂收益；生产类矿山依法取得的存量建设用地和历史遗留矿山废弃建设用地复垦为耕地的，按照有关规定，节余的建设用地指标可在全省范围内流转使用等 黑龙江省自然资源厅 《关于探索利用市场化方式推进矿山生态修复的实施意见》 突出规划引领拓宽实施路径；鼓励和支持对矿山进行修复和综合性利用；建立“差别化”供地机制；切实盘活矿山存量建设用地；规范利用废弃矿山土石料等 贵州省自然资源厅 《贵州省探索利用市场化方式推进矿山生态修复实施办法》 利用矿山修复后的土地发展非永久性附属设施，在一定条件下，允许其用地不征收（收回）、不转用，按现土地用途管理；利用矿山修复后的国有建设用地发展教育、科研等产业，鼓励土地使用人有偿取得土地使用权等 江西省自然资源厅 《江西省关于探索利用市场化方式推进矿山生态修复的实施办法》（赣自然资规〔2020〕1号） 差别化供应土地；盘活存量用地；土石料综合利用等
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表 3 我国部分典型废弃矿山利用情况
2 Table 3. Utilization of some typical abandoned mines in China
名称 矿山类型 利用方向 江西省寻乌县稀土矿山 稀土矿 生态+光伏、生态+扶贫、生态+旅游 湖南省娄底市冷水江锑煤矿 煤矿 生态观光+矿业文化+地质研学+红色教育 河南省三门峡市小秦岭国家级自然保护区 金矿 自然保护区，生态+教育、生态+旅游 重庆市渝北铜锣山矿山公园 石灰岩 矿山公园，生态+旅游、生态+康养、生态+科普 安徽省淮北市绿金湖湿地公园 煤矿 城市湖景公园，生态+旅游、生态+文化 浙江德清县洛舍镇东衡村[30-31] 采石场 垦造水田，生态+产业 上海洲际世茂仙境酒店[4] 采石场 酒店，生态+产业 湖北黄石国家矿山公园[4] 金属矿 矿山公园，生态+旅游、生态+文化 广东茂名油页岩矿山公园[32-33] 油页岩矿 城市湖景公园，生态+旅游、生态+文化 广东梅州客天下酒店 采石场 酒店，生态+产业、生态+旅游、生态+文化 江苏徐州潘安湖矿区湿地公园[4] 煤矿 湿地公园，生态+旅游、生态+文化
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表 4 废弃矿山的基础理论与综合利用的内涵关联
Table 4. Connotative relationship between basic theories and comprehensive utilization of abandoned mines
类别 基础理论 理论内涵 与矿山综合利用
的关联核心理论 辅助理论 属性类 要素禀赋理论 区位理论、辐射理论、梯度理论、“山水林田湖草是生命共同体”理论、空间规划理论、空间结构理论、产权理论 各事物的区位不是相互孤立的，而是相互联系的，每一种区位的选择必然引起连锁反应，进而影响整体的结构和功能 矿山开采阶段就应充分考虑后续的综合利用需求，而矿山的地理区位是其关键 功能类 可持续发展理论 区域经济理论、资源优化配置理论、平衡发展理论、景观生态学理论、区域经济一体化理论、两山理论 资源的分配在时间和空间上均应体现出一种公平关系和合理性，以达到最佳的综合效益 矿山的综合利用应基于自然环境的容量、非再生资源的数量、可再生资源承载力为限 利用类 需求—供给理论 “资源-资产-资本”理论、用途管制理论、系统理论、全寿命周期理论、不可逆过程理论、区域产业结构变动导向理论、人地耦合理论 生产与消费的对立关系，需求反映商品价格与需求量的关系；供给反映商品价格与供给量的关系 矿山综合利用应是基于废弃矿山综合价值，由市场需求和供给关系决定的自发活动，全面考虑其在区域内的
作用
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表 5 废弃矿山资源要素分类
Table 5. Schematic of resource endowment of abandoned mines
类别 变量要素 属性 矿产品类型、废石（矿产）储量 空间 区位、道路通达度、地类 效益 生态效益、经济效益、社会效益 社会 公众意愿、公众参与、社会关注程度、权益、
产权、产业、市场功能 矿产品、生态本底、生态系统服务、
景观、文化、娱乐安全 生态安全、人身安全、财产安全 技术 资源回收利用、开采、提炼、浓缩 政策 规划、用途管制、产品交易、指标流通、
指标交易、资金投入
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