矿山闭坑机制认识与思考

Understanding and reflection on international mine closure practices

作为促进矿业可持续发展和矿山企业社会责任履行的国外最佳实践,矿山闭坑生命周期规划和有效实施机制对于优化矿产资源的开发利用及其经济社会效益至关重要,取得了国际矿业界广泛共识并受到国际社会高度关注。面向我国新时期"五位一体"建设布局和经济社会发展转型,国内矿业界需要进一步解放思想、积极采用矿产资源开发先进理念。为此,本文系统深入地分析了国外矿山闭坑机制的最佳实践与做法,包括国际组织动态、部分国家的法律及规制以及产业组织的最佳实践,找出了闭坑机制及其运行的关键要素,包括闭坑规划及计划、利益相关方参与、财经保障、闭坑方法及标准、采后监测维护、矿地责任交接等,并针对我国矿山闭坑相关法规标准及规划缺乏、社会成本考虑不足、利益方参与不善等问题,给出了关于闭坑复杂性及迫切性、社区及利益相关方权益关注、政府规制及指导监督、矿山闭坑与项目生命周期关系等方面的思考,以期有助于改善我国闭坑管理机制,促进矿产资源可持续利用与企业社会责任水平的提升。

This paper attempts to present typical mine closure approaches through reviewing mine closure guidelines and best practices internationally to raise awareness ,promote understanding ,and build capacity of mine closure based mine life cycle in China .Specifically ,the paper reviews closure guidelines from international agencies such as World Bank and International Finance Corporation ,etc .selected nations such as Australia ,Canada ,and Namibia ,and sectoral organizations such as International Council on Mining and Metals （ICMM） ,and introduces some core issues of mine closure including integrated planning ,stakeholder identification and communication ,cost estimation and financial assurance ,closure implementation ,closure completion criteria ,and closure monitoring and maintenance .In the end ,facing the status quo including lacking relevant laws and regulations ,ignoring social‐economic issues ,neglecting long‐term impacts and the stakeholders involvement ,the paper gives some advices for the development of China’s management system from the perspectives of the complexity and urgency ,the protection of civil rights ,the regulation of governments and the combination with mine life‐cycle ,which aims to improve the economic efficiency of mineral resources and the social inclusiveness ,harmony ,and equity .