中国城市矿产政策演化研究

The evolution of urban mining policies in China

城市矿产是工业化和城市化过程的产物,它是蕴藏于城市中有较高经济价值并可回收利用的二次资源,具有载能性、循环性、战略性。随着工业化、城镇化和消费持续升级,"垃圾围城"已然成为中国许多大中城市亟需解决的环境问题,严重阻碍中国的可持续发展。城市矿产变废为宝,能有效化解资源与环境双重约束。为此,中国政府先后出台一系列城市矿产产业政策以推动其快速发展。本文收集1987—2015年国家层面颁布的相关政策文件,在运用内容分析法对政策文本梳理、编码并统计计量的基础上,首先从颁布部门、数量、力度等方面对政策体系进行总体分析,然后构建并运用政策工具-政策作用环节两维度分析框架,探讨中国城市矿产政策体系的演化过程及发展特征。研究发现:(1)从政策发展历程分析,中国城市矿产政策体系经历了依附环境保护政策的孕育期、体系初建的形成期和效力深化的发展期。(2)从政策颁布维度分析,中国城市矿产政策颁布速度逐渐加快,力度逐渐增强,参与机构数量不断增多。(3)从政策工具维度分析,中国城市矿产政策体系以环境型政策为主,逐渐呈现出强化供给型政策的演化趋势。(4)从政策作用环节分析,中国城市矿产政策体系由重点关注回收、深加工环节向关注全产业链环节演变。最后,针对中国城市矿产政策体系演变特征与存在的不足,本文从以下三个方面提出了促进中国城市矿产产业发展的政策建议:一是加强部际联系,完善顶层设计;二是加强消费引导,完善需求型政策;三是立足产品全生命周期,健全产业政策体系。

As an inevitable product of industrialization and urbanization, urban mining with energy-carrying, circular and strategic could be comparably economic valuable and recyclable secondary resources from the city. With China＇ s rapid upgrade of industrialization, urbanization and consumption, ＇ Garbage siege＇ has become an urgent environmental problem, which seriously hinder the sustainable development of China. As urban mining can effectively resolve the dual constraints of resource and environment through turning municipal waste into wealth, Chinese government has issued a series of industrial policies to promote its development. The paper collects a series of urban mining relevant policies issued by Central Government and related departments and ministries from 1987 to 2015. Using the content analysis method and quantitative analysis method, the paper conducts a research on the issuing department, quantity, stringency of urban mining policy texts. Then the historical evolution and development characteristics of China＇ s urban mining policies is explored by establishing the analytical framework of policy instrument and policy impact link. The research results show that （1） the historical evolution of the urban mining policies in China has experienced the pregnancy period attached to environmental protection policies, the initial formative period of the policy system and the developing period of effectiveness strengthen. （2） The speed of China＇ s urban mining policies has been accelerated, with the gradually increase of the stringency and the number of participating institutions. （3） The instrument of urban mining policies in China are mainly based on the environment side policy, with gradually showing the trend of strengthening supply side policy. （4） The impact link of China＇ s urban mining policies has evolved from recycling and deep processing to the whole industrial chain. At the end of the paper, it gives some policy suggestions to promote China＇ s urban mining development, including strengthening cross-sectorat linkages and improving top-level design, enhancing the guidance to the consumers and improving demand side polices, further improving urban mining potlicies based on product lifecycle theory.