矿山地质环境治理恢复基金制度研究[1]

【阅读原文】

刘向敏，余振国

（中国自然资源经济研究院，北京 101149）

摘要：建立矿山地质环境治理恢复基金是落实“放管服”改革要求，推动生产建设矿山生态修复的一项重要保障制度。目前已出台基金管理办法的23个省（自治区、直辖市）的情况看，各地在基金性质、基金计提标准和使用方式上有共性也有差别。基金制度下的矿山生态修复监管主要特点：基金使用三方联动监管常态化、监管部门职责分工明确、信用约束和联合惩处手段加强。基金建立和实施面临的主要问题：基金性质相同但使用范围不统一、动态监管的责任要求加强但抓手减弱、信用惩戒手段增强但不具有强制性。建议从以下几方面加强基金制度对矿山企业生态修复的责任约束力：（1）统一基金使用范围，提升基金制度法律效力；（2）加强分级分类和差别化监管；（3）加强制度衔接，发挥公益诉讼实效；（4）完善信用联合惩戒机制；（5）建立和完善责任终身追究制度；（6）建立市场化的基金管理机制。

关键词：矿山地质环境治理恢复基金；责任约束；监管；信用惩戒

本文引用信息

刘向敏，余振国，矿山地质环境治理恢复基金制度研究[J].中国国土资源经济,2022（01）:35-42

Research on the Fund System of Mine Geo-Environment Management and Restoration

LIU Xiangmin, YU Zhenguo

(Chinese Academy of Natural Resources Economics, Beijing 101149)

Abstract: The establishment of mine geo-environment management and restoration fund is an important guarantee system to implement the reform requirements of "reforms to streamline administration and delegate power, improve regulation, and upgrade services" and promote the production and construction of mine eco-restoration. According to the situation of the 23 provinces (autonomous regions and municipalities) that have issued the fund management measures, there are commonalities and differences in the nature of the fund, the standard of fund withdrawal and the mode of use. The main characteristics of mine eco-restoration supervision under the fund system are as follows: the enterprise-government-public linkage supervision on fund use is normalized, the division of responsibilities of regulatory departments is clear, and credit constraint and joint punishment measures are strengthened. While, the main problems in the establishment and implementation of the fund are as follows: the nature of the fund is identical but the scope of use is not unified; the responsibility requirements of dynamic supervision are strengthened but the effective means is weakened; the means of credit punishment are strengthened but not mandatory. The paper suggests to strengthen the responsibility binding force of the fund system on the eco-restoration of mining enterprises from the following aspects: (1) unify the scope of fund use and enhance the legal effect of the fund system; (2) strengthen the classification and differentiated supervision; (3) strengthen system integration and give full play to the effectiveness of public interest litigation; (4) improve the credit joint punishment mechanism; (5) establish and improve the system of lifelong accountability; (6) establish a market-oriented fund management mechanism.

Keywords: mine geo-environment management and restoration fund; responsibility constraint; supervision; credit punishment