论《中华人民共和国矿产资源法》的范式重构与制度革新——基于2024年修订版与旧法的对比分析

On the Paradigm Reconstruction and Institutional Innovation of Mineral Resources Law of the People’s Republic of China: A Comparative Analysis Based on the 2024 Revision and the Old Law

摘要

我国1986 年出台的《矿产资源法》历经 1996 年、2009 年两次修正，虽发挥了历史作用，但在矿业权运行规则、矿区生态治理、战略矿产保障等方面存在短板，难以适配新时代统筹发展与安全的治理需求。2024年11月8日，新修订的《矿产资源法》通过，并于2025年7月1日起施行。本次修法实现了法律框架、核心立法原则、全链条制度体系的系统性重塑。基于库恩的范式理论，通过对比新旧法律文本，阐释修法的范式转型与制度创新，为新法实施提供参考。采用文本分析法与比较研究法，以1986年原版、1996年及2009年修正版为参照，与2024年新法全面对比，聚焦立法理念、矿业权制度、生态保护、资源安全等核心领域，剖析修法逻辑与制度要点，预判实施困境，并提出应对方法。研究表明，此次修法实现了三大范式重构：从资源管理转向国家安全治理、从开发优先转向生态优先、从行政审批转向市场配置，将总体国家安全观贯穿全文。具体创新体现在：在矿业权方面，构建“探采合一”路径，强化探矿权人权益，延长权利期限，放宽流转限制；在生态保护方面，开创性增设“矿区生态修复”独立专章，以责任终身制和费用计入成本为核心，确立全过程修复责任，破解“企业破坏、政府买单”难题；在资源安全领域，新增“矿产资源储备和应急”专章，构建“产品+产能+产地”三位一体的战略性矿产储备体系。此外，新法在矿业用地保障、储量管理等方面也实现突破性制度设计。综上，此次修订立足国情开展深层次制度革命，有效补齐旧法长期存在的治理短板。但新法在实施过程中仍面临新旧制度衔接复杂、配套细则不完善、基层监管能力不足等挑战。据此，提出加快配套法规建设、深化矿地协同机制，强化科技赋能与监管能力等举措，保障新法制度设计转化为实际治理效能，为现代化建设提供可持续的矿产资源供给。

Abstract

China's Mineral Resources Law promulgated in 1986 underwent two amendments in 1996 and 2009. Although it played a historical role, it has shortcomings in the operating rules of mining rights, ecological governance of mining areas, and strategic mineral safeguards, making it difficult to meet the governance needs of coordinating development and security in the new era. On November 8, 2024, the newly revised Mineral Resources Law was adopted and came into force on July 1, 2025. This revision has achieved a systematic reshaping of the legal framework, core legislative principles, and whole-chain institutional system. Based on Kuhn's paradigm theory, by comparing the old and new legal texts, this paper explains the paradigm transformation and institutional innovation of the revision, providing a reference for the implementation of the new law. Using textual analysis and comparative research methods, with the original 1986 version and the 1996 and 2009 amended versions as references, it comprehensively compares them with the 2024 new law, focusing on core areas such as legislative concepts, the mining rights system, ecological protection and resource security, analyzes the logic and institutional points of the revision, anticipates implementation difficulties, and proposes countermeasures. The study shows that this revision achieves three major paradigm reconstructions: from resource management to national security governance, from development priority to ecological priority, and from administrative approval to market allocation, integrating the holistic approach to national security throughout the text.In terms of mining rights, it establishes an “integration of exploration and mining” pathway, strengthens the rights and interests of exploration right holders, extends the term of rights, and eases transfer restrictions. In terms of ecological protection, it pioneeringly adds an independent chapter on “Mine Area Ecological Restoration”, with lifelong accountability and the inclusion of restoration costs in production costs as the core, establishes whole-process restoration responsibility, and solves the problem of “enterprises damage, the government pays”. In the field of resource security, it adds a special chapter on “Mineral Resources Reserves and Emergency Response”, building a three-in-one strategic mineral reserve system of “products + production capacity + production sites”. In addition, the new law also achieves breakthrough institutional design in mining land use guarantee and reserve management. In summary, this revision, based on national conditions, carries out a deep-seated institutional revolution and effectively remedies the long-standing governance weaknesses of the old law. However, in implementation, the new law still faces challenges such as complex linkage between old and new systems, imperfect supporting rules and insufficient grassroots regulatory capacity. Accordingly, measures are proposed to accelerate the development of supporting laws and regulations, deepen the mine-land coordination mechanism, and strengthen technological empowerment and regulatory capacity, so as to ensure that the new law's institutional design is translated into actual governance effectiveness and to provide sustainable mineral resource supply support for modernization.

关键词

产资源法 / 新旧法对比 / 探采合一 / 矿区生态修复 / 战略性矿产资源 / 资源安全

Key words

Mineral Resources Law / comparison of the old and new law / integration of exploration and mining / ecological restoration of mining areas / strategic mineral resources / resource security

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