The reform of localized management and enterprise management put forward by Guo Ban Fa [1999] No.37 is carried out under the condition that the socialist market economic system has been formed, which is much deeper and more important than the original reform. It can be said that it is of great significance in the reform of geological prospecting units:
(A) the reform of government institutions to promote the reform of geological prospecting units
After the former Ministry of Geology and Mineral Resources was abolished, the newly established Ministry of Land and Resources did not have the function of leading group, which fundamentally cut off the vertical chain of separating government from enterprises and separating political affairs. However, after localization, the government management is completely in accordance with the model of separating government from enterprises and separating political affairs. The provincial government does not specifically manage the business and production of the Geological Exploration Bureau, so it is an innovative management system, which not only excludes the intervention of superiors to subordinates, but also excludes the dependence of subordinates on superiors. This may greatly accelerate the enterprise process of geological prospecting units.
(two) public geological work and commercial geological work run separately.
The difference between the two types of geological work: ① Public welfare is fund operation, write-off after use and career management; Commerciality is the cost of investing in operation and entering mineral products after use, and enterprise management. (2) Public welfare is the financial contribution of the government; Commerciality is the contribution of enterprises (including state-owned enterprises). (three) public geological achievements that are open to the public and provided free of charge; Commercial geological achievements, enterprise monopoly, paid transfer. (4) Public welfare geological work is funded by the government; Commercial geological work is allocated by the market. These four differences determine that geological prospecting units can use geological prospecting fees according to market rules and decide their own commercial investment after implementing enterprise management. If there is no good project, they can not do it and seek other business. For public geological work, there is no need to use the geological prospecting fee base. If the geological survey task is contracted, it is completely a technical labor service activity, and it will be carried out according to the contract. Do it if you have it, or do something else if you don't.
(3) Upper (level) and lower (level) together.
First of all, the Ministry of Land and Resources no longer directly manages commercial geological prospecting units, which is a reform. Secondly, the provincial geological prospecting bureau should also implement enterprise management, and together with its geological prospecting units, become an independent, self-financing, self-restraint and self-development economic entity. The management and interests of the bureau should be linked to the operating results of the geological prospecting units they belong to, and they can no longer command enterprises outside the geological prospecting units.
(4) The reform goal of geological prospecting units is oriented to enterprises, not enterprise management.
In this regard, the "Publicity Outline for the Reform of the Management System of Geological Prospecting Team" issued by the Ministry of Land and Resources clearly points out: "Enterprise management means that the geological prospecting team should gradually change its management mechanism according to the principle of separating government from enterprise, establish and improve the enterprise mechanism, and become the market subject of independent operation, self-financing, self-restraint and self-development." "Geological prospecting units, as enterprises, are free from geographical restrictions and have the right to go to the whole country and even overseas to seek business development according to law."
(5) The base of geological exploration fees remains unchanged (policy capital increase, unified base increase, and relatively unchanged among various units), and at the same time, the reform of geological exploration tasks within the budget is no longer issued.
This in itself is a mechanism and a policy. From then on, whether the geological prospecting units have done well or not, the state will no longer reduce or exempt geological prospecting fees. In other words, in the future, the deepening of enterprise reform in geological prospecting units is no longer to reduce the burden on the country, but to survive and develop themselves, that is, enterprise management is the needs of geological prospecting units themselves.
(6) Geological prospecting units have different starting points, but the reform does not accommodate backwardness, and all units should strive for the upper reaches.
More than a decade ago, the starting point of the reform of "three modernizations" in geological prospecting units around the country was basically the same. Although the preferential policies are basically the same now, after years of enterprise management, their respective economic strength and mechanism transformation degree are quite different. This is why all units have different feelings about this reform. But the market is not sympathetic to the weak, so on the one hand, we should implement enterprise management according to the actual situation of our unit; On the other hand, the goal of reform and the time limit for achieving it cannot be lowered.
(7) Integration into the local economy has greatly improved the production and operation environment of geological prospecting units.
Because the main business and diversified management of geological prospecting units are originally a part of local economy and regional economy, for a long time, due to the management of various rules and regulations, their connection with regional economy has been bound. However, localized management has fundamentally solved this problem, which is greatly conducive to the integration of geological prospecting units into the regional economy and is an excellent development opportunity.
Two. Significant progress has been made in the practice of geological work reform.
With the establishment and gradual improvement of the socialist market economic system, China's geological work system and mechanism reform has made important progress. The mechanism of separate operation and coordinated development of public welfare and commercial geological work has been gradually established, and the operation is basically smooth. Investment in geological exploration has increased substantially, and a diversified investment pattern has taken shape. The exploration right market has been gradually improved, and the exploration right transaction has become increasingly active.
(1) The separation of public welfare and commercial geological work has been initially realized.
After years of exploration, the mechanism of separate operation and coordinated development of public welfare and commercial geological work has been gradually established, and the operation is basically smooth. In terms of public welfare geological work, the China Geological Survey was established, and the central and local public welfare geological survey teams were formed. In terms of commercial land use system, the mineral exploration market system was initially established, and the local exploration team realized localized management and upgraded to enterprise management. This provides an organizational framework for the separation of public welfare geological work and commercial geological work. The purpose of government financial investment in geological work has shifted from production to service and macro-control. This fundamental change determines that the management concept, organization and operation mode, view of political achievements and evaluation methods and standards of work results of the government will undergo fundamental changes, which indicates that the macro guidance of the government will also play a role in the direction of separating public welfare geological work from commercial geological work.
(2) The institutional framework of two-level management of geological work has been initially established.
The institutional framework of geological work managed by the central and local governments has been initially established, and positive progress has been made in the construction of public welfare geological survey teams. In the new "Three Definitions" plan of China Geological Survey, it is clearly defined that the Bureau is a vice-ministerial institution directly under the Ministry, responsible for the unified deployment and organization of national basic and public welfare geological surveys and strategic mineral exploration, unified management of national public welfare geological survey teams, and implementation of project contact and business guidance for local public welfare geological survey teams. In order to meet the new requirements of geological survey, a three-level project operation management system of "Geological Survey-six regional geological survey centers-project undertaker" was established. A business management system covering the whole process of geological survey has been basically established, and the procedures and requirements for technical, quality and economic management from project establishment to data collection have been gradually improved. Generally speaking, the geological survey has achieved rules to follow and evidence to follow.
(3) Geological prospecting units have gained valuable experience in enterprise reform.
Since the reform of the management system of geological prospecting team from 65438 to 0999, the localized management of geological prospecting team has been successfully realized. With the attention and support of the local government, the localized geological prospecting team has expanded the service field, integrated into the local economic construction, and gradually promoted enterprise management, and gained many valuable experiences, which are highlighted in the following aspects:
1. Geological prospecting units implement the mechanism of separating government from enterprises.
Because enterprises and undertakings are two completely different operating mechanisms, they must be operated separately, which is conducive to the development of the main business and the stability of the cause. This is a very simple truth in theory, but it is indeed a great progress for geological prospecting units to explore this truth in practice, consciously reform in this direction and turn theory into practice. The grass-roots units we investigated all put forward the idea of separating government from enterprises in geological prospecting units, so there is a general understanding. This move broke through the institutional obstacles of enterprise management and opened up a broad space for enterprise management. Through the separate operation of enterprises and institutions, it not only ensures the double strengthening of public welfare geological work and industrial development, but also maintains the stability of the team.
2. Highlight your own advantages and characteristics to develop the industry.
Through years of work accumulation, geological prospecting units have formed their own advantages and characteristics in geological survey, mineral exploration, engineering survey and construction, property management and other fields. This is the basis of developing industry under the condition of market economy. Only by expanding and extending our own industry can we have a competitive advantage and form a stable industry. Geological prospecting units have experienced various explorations and failures, and finally realized that they should highlight their own advantages and characteristics to develop their industries. Since localization, many geological prospecting bureaus have identified mining, engineering exploration and construction, real estate, jewelry and foreign trade as advantageous industries, and achieved good results through several years of operation. This choice also has universal guiding significance.
3. Implement the integration of exploration and development.
The integration of exploration and development is also the knowledge formed by the grass-roots units we investigated. In recent years, geological prospecting units have gradually moved towards the integration of exploration and development, made major breakthroughs in prospecting work, and achieved relatively stable development benefits, laying a good foundation for the reform of geological prospecting system and the sustainable development of geological prospecting economy.
4. Old people use old methods, and new people use new methods.
One of the biggest difficulties in the commercialization of geological prospecting units is the transformation of employee identity in institutions and enterprises. Because of the stability of the team system, the retirement benefits of public institutions are higher than those of enterprises, so there are great obstacles for employees to transform their professional identity into enterprise identity. Implement the old method for the old and the new method for the new, that is, employees (such as 1993) before the implementation of the policy retain their professional identity after entering the enterprise and enjoy the retirement policy of public institutions after retirement; For new employees in the future, they will be handed over to the talent exchange center for identity agency and will no longer enter the career establishment. In this way, the source of natural expansion of public institutions is cut off, and the goal of complete enterprise can be achieved over time. It is also reflected in the survey that the enterprise of geological prospecting units is not the whole enterprise, but most of them are realized by separating government from enterprises, and a few of them are retained as institutions.
(4) The mining rights trading market was initially established.
The Mining Law revised in 1996 and the three supporting regulations promulgated and implemented in the State Council in 1998 initially established the trading system of mining rights market. In 2000, the Interim Provisions on the Management of Mining Rights Transfer formulated by the Ministry of Land and Resources further standardized and refined the trading methods of mining rights, and made it clear that the methods of mining rights transfer include application for examination and approval, bidding and auction, and the methods of mining rights transfer include sale, investment at a fixed price, cooperation, lease and mortgage. The Measures for the Administration of Bidding, Auction and Listing of Prospecting and Mining Rights issued in 2003 further stipulates the methods and procedures for transferring mining rights, the bidding methods, the contents of public information and market supervision and management. In 2005, the Notice on Standardizing the Authority of Exploration License and Mining License was issued, and in 2006, the Notice on Further Standardizing the Management of Mining Rights Transfer was issued, further improving the mining rights trading system.
However, the construction of mining rights trading platform in China started at 200 1, with two rapid periods. 1. From 200/KLOC-0 to 2003, with the open competition of mining rights and the pilot and comprehensive promotion of paid transfer, most land and resources departments and some municipal (county) land and resources administrations in China established their own trading halls for mining rights transfer. The establishment of mining rights trading platform in this period has obvious government behavior, and the trading service function is mainly the transfer of mining rights in the areas where resources are located, such as Hebei Mining Rights Trading Center. Second, since 2006, with the deepening of "rectifying the order of mineral resources development and resource integration", a new round of mining rights trading platform construction has been set off. In the new period, the mining rights trading center mainly adopts the form of company, and its service function is much broader than that in the previous period, such as the Yunnan mining rights trading center established in July 2006. According to incomplete statistics, there are nearly 20 mining rights trading centers in China, which have strong regional service characteristics. The established mining rights trading center mainly adopts the form of companies and institutions. Generally speaking, China's mining right transaction is in the initial stage of establishment and development.
(V) The diversified pattern of exploration investment has initially taken shape.
In recent years, China's investment in geological exploration has greatly increased, and a diversified investment pattern has taken shape. With the rapid increase of social funds, the total amount of financial funds is also increasing. Central and local geological exploration funds have been established to actively explore effective ways to make up for the shortage of risk exploration market. However, from the perspective of investment structure, the proportion of social capital investment is constantly higher than that of financial funds. It can be seen that the investment of central finance, local finance and social funds in geological work has further formed the diversification of geological exploration investment, and social capital has gradually become the main body of mineral exploration market investment. In 2000, the proportion of social funds in total exploration investment was only about 30%, and it rose to about 70% in 2005. Among the exploration funds invested by the government, the proportion of provincial financial funds has gradually increased, from 40% of the total national financial exploration investment in 2000 to more than 80% in 2005. In 2009, the national basic geological survey and solid mineral exploration invested 27.7 billion yuan, of which social investment accounted for 67%. Although affected by the international financial tsunami, the proportion of social capital investment has not decreased significantly, which shows that social capital is still very optimistic about the mineral resources exploration and development industry.
Third, there are problems.
In the face of the new situation, there are still some inadaptability in China's geological work system and mechanism, mainly in four aspects: First, China's venture capital market is not in place and there is a lack of financing channels through the stock market. At present, the investment in mineral exploration is mainly invested by enterprises and institutions, and the central and local financial investment also accounts for a large proportion (30% ~ 40%). Second, the "two subjects" of geological work are not in place. The construction of public welfare geological team is not strong, and the number and structure of the central public welfare geological team are far from the ability of combining elite soldiers with modernization, investigation and scientific research, undertaking major strategic tasks and fighting tough battles. The local public welfare geological team has not been built yet. The localization of geological prospecting team is progressing slowly, and it has not really become the main body of exploration market, and the intermediary service institutions of mining industry are not perfect. The market system needs to be further improved and the construction of market players needs to be vigorously promoted. Third, the unified deployment and organization of strategic mineral exploration are not in place. The national geological work has not formed a unified deployment and implementation mechanism, the cooperation between government and enterprises is not enough, the organic connection of various geological exploration funds is not enough, and the organic combination of exploration and development is not enough. As a result, the basic work of important metallogenic belts is seriously insufficient, the reserve base of important mineral resources is scarce, and the national geological work has not formed a joint force, which has affected a major breakthrough in geological prospecting. Fourth, the geological survey lacks a long-term mechanism. At present, normal work and abnormal work are carried out in the form of national special projects, which affects the stability of geological teams and the sustainability of geological work. The reasons for the problems in the geological work system and mechanism are as follows:
(A) government functions need to be further implemented.
In the government geological work, there are problems of absence, dislocation and offside in different fields to varying degrees. The management of some administrative organs is still accustomed to project management and technical management, emphasizing examination and approval and neglecting supervision. In some places, administration according to law cannot be adhered to, and government decrees are not smooth. In some places, the scope is expanded without authorization, and all exploration rights are sold by means of "bidding, auction and hanging".
The legal construction of exploration management and the construction of law enforcement team can't keep up with the development requirements of exploration market, and there is a lack of effective supervision means and supervision and inspection efforts for circle exploration, false exploration, insufficient investment in effective exploration and irregular behavior of geological prospecting industry.
(B) the construction of public welfare geological work team is not in place
The public welfare geological survey team is small in scale, with structural shortage of talents, lack of professional teams such as oil and gas strategic survey and strategic mineral exploration, lack of field first-line geological survey personnel and leading talents, and weak ability of investigation and research, especially field investigation. Regular funds are insufficient, regular funds are short, and they basically rely on special funds to operate, lacking a stable source mechanism for sustainable development; Lack of equipment and base support, lack of renewal mechanism of geological equipment; The base construction can not meet the needs of team development, especially the lack of geological research and experimental bases in Beijing.
The management relationship between bureaus, institutes and institutes needs to be straightened out, the central and local public welfare teams are not closely linked, and the local public welfare geological survey team has not yet been established.
(C) the construction of market players is not in place
The supporting policies for the reform of state-owned geological prospecting units are not in place, the reform of enterprises is slow, the transformation of "100 bureaus and 1000 teams" into enterprises has not been broken, and the construction of market players is far from in place. With the deepening of the financial system reform such as centralized and unified management of the national treasury, the incompatibility between the enterprise management system and the enterprise operation mechanism has become increasingly prominent, and "taking the enterprise road with a career hat" has encountered increasingly prominent institutional and institutional obstacles. The administrative subordination relationship between the geological prospecting units managed by the central government and the geological prospecting units managed by the local government is different, and both of them have the problem of unsatisfactory management system.
At present, state-owned geological prospecting units are not real enterprises, so it is difficult to call them qualified market entities. The basic status quo is that public and business are not divided, business and enterprises are mixed, and goals are diversified, which leads to business failure and enterprise failure. The prospecting mechanism relying on financial input has not fundamentally changed, and the investment of geological prospecting units has not been capitalized, so it is difficult to achieve a virtuous circle.
(D) unified deployment and coordination is not enough
The unified deployment and coordination of geological work is not enough, and the central and local financial funds and commercial exploration investment lack unified deployment and overall coordination, and lack of organic connection, which makes it difficult to form an overall exploration.
Under the condition of socialist market economy, mineral exploration mechanism should be a platform for diversified investment. All kinds of funds are willing to come in to participate in exploration, and the enthusiasm of all parties can be mobilized, so that * * * can promote the breakthrough of prospecting and make * * * develop together. However, there are still many traces of planned economy in the current mechanism, which does not reflect the essence of diversified investment, and the positioning and benefit distribution mechanism of investors are unreasonable, which does not fully mobilize the enthusiasm of all parties. The central special management is decentralized, and it is difficult for the central and local governments to link with enterprises; Public welfare geological work is out of touch with commercial mineral exploration, and some national special projects have failed to achieve the goal of effectively stimulating social investment; Lack of financial subsidy system for risk exploration commonly used abroad, insufficient driving force for risk exploration, and insufficient mobilization of the enthusiasm of geological prospecting units.
(5) The integration mechanism of exploration and development has not yet been formed.
Mining enterprises "use mines instead of looking for mines" and rely on the state to allocate resources to solve the "resource crisis". Mining failed to effectively explore, and exploration and development failed to achieve integration. The technological advantages of geological prospecting units and the capital advantages of large mining enterprises have not been organically combined, and the mechanism of compulsory withdrawal of exploration blocks has not been effectively implemented.
(6) The public geological work lacks a stable investment mechanism.
The degree of basic geological work is an important standard to measure the progress and level of national geological work. The basic geological work lacks a stable investment mechanism, and the public welfare geological survey team often lacks business funds seriously, basically relies on special funds to operate, and lacks a long-term mechanism for sustainable development, which leads to unstable teams and unstable work.
(vii) Need to further strengthen the data packet service.
There is no centralized management of achievements, original and physical geological data in the country; Geological survey data such as geological survey, mineral resources, hydraulic environment and physical and chemical remote sensing are scattered in several units; A complete geological data information product system has not yet been formed, and the clustering service of geological survey information needs to be accelerated. The main difficulties are as follows:
1. The policies and regulations of geological data information service are not matched.
The policies and regulations on the confidentiality and protection of geological data are not matched, which restricts the development of socialized service of geological data.
2. The degree of integration and development of geological data information is not enough.
The consciousness of transforming geological data into service products is not strong, and information mining is not enough, which limits the depth and breadth of service work.
3. The construction of geological data information sharing platform lags behind, and the progress of digitalization and networking is slow.
The construction of a unified platform for national geological data service lags behind, and geological data scattered in different majors and units cannot effectively provide services. The decentralized management of data information has formed an information island, and the technologies and systems on which storage, maintenance and service depend are heterogeneous in a large number, with low standardization. The digital accumulation of geological data is still insufficient, and there is no effective mechanism for updating, maintaining and accumulating. The digitization degree of geological data in China is 40%, while the digitization degree of National Geological Archives is only 30%, which restricts the improvement of modern service level of geological data.