Source: National Development and Reform Commission website

Recently, the National Development and Reform Commission, in conjunction with the Ministry of Science and Technology, the Ministry of Industry and Information Technology, the Ministry of Finance, the Ministry of Natural Resources, the Ministry of Ecology and Environment, the Ministry of Housing and Urban-Rural Development, the Ministry of Agriculture and Rural Affairs, the State Administration for Market Regulation, and the State Administration of Foreign Exchange, issued the "Guiding Opinions on the Comprehensive Utilization of Bulk Solid Waste during the 14th Five-Year Plan" (hereinafter referred to as the "Guiding Opinions").

Relevant responsible comrades from the National Development and Reform Commission stated thatBulk solid waste(hereinafter referred to as "bulk solid waste") refers to solid waste of a single type with an annual output of over 100 million tons, including seven categories such as coal gangue, fly ash, tailings, industrial by-product gypsum, smelting slag, construction waste, and agricultural straw. It is a key area for resource comprehensive utilization.During the 13th Five-Year Plan period, approximately 13 billion tons of various bulk solid waste were comprehensively utilized, reducing land occupation by more than 1 million acres, with significant resource, environmental, and economic benefits. Currently,the cumulative stockpile of bulk solid waste is about 60 billion tons, with an annual increase of nearly 3 billion tons. Among them, the utilization rates of solid wastes such as red mud, phosphogypsum, and steel slag are still relatively low, occupying a large amount of land resources and posing significant ecological and environmental safety risks.The comprehensive utilization of bulk solid waste has a long way to go.The "Guiding Opinions" proposed five basic principles for promoting the comprehensive utilization of bulk solid waste in the new era.First, adhere to the combination of government guidance and market leadership.

Improve comprehensive policy measures and fully leverage the decisive role of the market in resource allocation.Second, adhere to the combination of large-scale utilization and high-value utilization.Actively broaden the channels for the comprehensive utilization of bulk solid waste and continuously improve the added value of resource utilization products.Third, adhere to the combination of absorbing existing stock and controlling new increases.Scientifically and orderly absorb existing bulk solid waste and strictly control the new stockpile of bulk solid waste.Fourth, adhere to the combination of highlighting key points and systematic governance.Strengthen the whole-process management of comprehensive utilization of bulk solid waste, and promote the coordination of waste generation, waste utilization, and standardized disposal.Fifth, adhere to the combination of technological innovation and model innovation.Strengthen innovation leadership, break through the technological bottlenecks of comprehensive utilization of bulk solid waste, and cultivate new models for comprehensive utilization of bulk solid waste.The mining industry has sorted out the mining-related information in the "Guiding Opinions" to help readers understand the impact of the "Guiding Opinions" on the mining industry.1. Main Goals

By 2025, the comprehensive utilization capacity of bulk solid waste such as coal gangue, fly ash, tailings (associated minerals), smelting slag, industrial by-product gypsum, construction waste, and agricultural straw will be significantly improved, the utilization scale will continue to expand, the new comprehensive utilization rate of bulk solid waste will reach 60%, and the existing bulk solid waste will be reduced in an orderly manner. The level of comprehensive utilization of bulk solid waste will continue to improve, and the comprehensive utilization industrial system will be continuously improved; key bottleneck technologies will achieve breakthroughs, and a technological innovation system for comprehensive utilization of bulk solid waste will be gradually established; policies, regulations, standards, and statistical systems will be gradually improved, and the system for comprehensive utilization of bulk solid waste will be basically perfected; the integration and symbiosis between industries and the collaborative development model between regions will continue to innovate; the demonstration and leading role of intensive and efficient industrial bases and backbone enterprises will be significantly enhanced, and a new pattern of high-quality development of the bulk solid waste comprehensive utilization industry will be basically formed.

(1) Improve the resource utilization efficiency of bulk solid waste.

Steadily promote the efficient extraction and overall utilization of valuable components from metal tailings, promote the preparation of sand and gravel aggregates, ceramsite, dry-mixed mortar, and other sand source substitute materials and cementitious backfill utilization from mining waste rock, and explore the utilization of tailings in ecological and environmental governance. Accelerate the comprehensive development and utilization of associated mineral resources such as black metals, non-ferrous metals, and rare precious metals, and promote the large-scale utilization of residual waste after the extraction of valuable metals. Promote ecological restoration of closed tailings ponds in accordance with laws and regulations, and unauthorized recovery of tailings is prohibited.

3. Smelting slag

Strengthen industrial collaborative utilization, expand the utilization scale of red mud and steel slag, increase the proportion of red mud used in road materials, and expand the utilization of steel slag micro-powder as a concrete admixture in construction projects and other fields. Continuously explore other large-scale utilization channels for red mud and steel slag. Encourage the recovery of iron, alkali, and aluminum oxide from red mud, and the recovery of rare and precious metals and other valuable components from smelting slag, improve the efficiency of mineral resource utilization, ensure national resource security, and gradually increase the comprehensive utilization rate of smelting slag.

4. Industrial by-product gypsum

Broaden the utilization pathways of phosphogypsum, continue to promote its utilization in the production of cement and new building materials, and explore its application in soil improvement, underground filling, and roadbed materials under the premise of ensuring environmental safety. Support the use of desulfurization gypsum and citric acid gypsum to prepare new products and materials such as green building materials and gypsum whiskers, and expand the high-value utilization scale of industrial by-product gypsum. Actively explore resource utilization pathways for complex and difficult-to-use industrial by-product gypsum such as titanium gypsum and fluorogypsum.

(2) Promote the green development of comprehensive utilization of bulk solid waste.

1. Promote the green transformation of waste-generating industries to achieve source reduction.

4、工业副产石膏

拓宽磷石膏利用途径，继续推广磷石膏在生产水泥和新型建筑材料等领域的利用，在确保环境安全的前提下，探索磷石膏在土壤改良、井下充填、路基材料等领域的应用。支持利用脱硫石膏、柠檬酸石膏制备绿色建材、石膏晶须等新产品新材料，扩大工业副产石膏高值化利用规模。积极探索钛石膏、氟石膏等复杂难用工业副产石膏的资源化利用途径。

1、推进产废行业绿色转型，实现源头减量

Carry out green design in the waste production industry, fully consider the subsequent comprehensive utilization links in the production process, and effectively reduce bulk solid waste from the source. Vigorously develop green mining, promote the application of the model of not discharging gangue from the well, encourage mining enterprises to use tailings and associated minerals to fill mined-out areas and manage subsidence areas, and promote the on-site disposal of tailings. Carry out green transformation in key industries such as energy, metallurgy, and chemicals, continuously optimize process flows, improve technical equipment, and reduce the intensity of bulk solid waste generation. Promote the self-disposal of bulk solid waste generated from coal gangue, tailings, steel slag, etc., and enhance the purification treatment level of complex and difficult-to-use bulk solid waste such as phosphogypsum and red mud, creating conditions for comprehensive utilization.

2. Promote green production in the waste utilization industry and strengthen process control.

Continuously improve the technical equipment level of waste utilization enterprises and increase the rectification efforts for small, scattered, and polluting enterprises. Strengthen the comprehensive utilization management of bulk solid waste throughout the entire process, and strictly implement environmental pollution prevention responsibilities throughout the process. Promote green transportation of bulk solid waste, encourage the use of specialized transportation equipment and vehicles, and strengthen the management of the transportation process of bulk solid waste. Encourage waste utilization enterprises to carry out clean production audits, strictly implement pollutant discharge standards, improve environmental protection measures, and prevent secondary pollution.

3. Strengthen the standardized disposal of bulk solid waste and safeguard the environmental bottom line.

Strengthen the management of storage and disposal of bulk solid waste, reinforce the main responsibility, promote the construction of storage facilities that meet relevant national standards, achieve safe and classified storage, and eliminate mixed storage. Balance the disposal of increased bulk solid waste and the management of existing stock, increase the comprehensive rectification efforts for bulk solid waste in key river basins and key areas, and improve the long-term environmental protection supervision and management system.

1. Innovate the comprehensive utilization model of bulk solid waste.

Promote "coal gangue underground filling + surface backfilling" in the coal industry to reduce gangue; establish a "tiered recycling + ecological restoration + storage protection" system in the mining industry to promote green mine construction; promote "no solid waste out of the factory" in the steel metallurgy industry to strengthen comprehensive utilization; promote "on-site regeneration + off-site treatment" of construction waste in the construction industry to improve utilization efficiency; carry out "industrial-agricultural integration" in the agricultural sector to promote industrial collaboration; explore standardized recycling and recyclable, high-value regeneration methods for emerging industry solid waste such as retired photovoltaic components and wind turbine blades; promote a regional collaborative model of "public-rail-water combined transport" for bulk solid waste in key areas to strengthen resource allocation. Promote multi-industry and multi-variety collaborative utilization of bulk solid waste according to local conditions, forming a new model of comprehensive utilization of bulk solid waste that is replicable and promotable.

2. Innovate key technologies for comprehensive utilization of bulk solid waste.

Encourage enterprises to establish technology research and development platforms, increase investment in key technology research and development, focus on breakthroughs in core technologies and equipment for source reduction and high-quality comprehensive utilization, and promote the research and development of key technologies for risk control in the utilization process of bulk solid waste. Relying on national-level innovation platforms, support the organic integration of industry, academia, and research, and encourage the establishment of industrial technology innovation alliances and other basic research and development platforms. Increase technological support, include key technologies for comprehensive utilization of bulk solid waste and large-scale high-quality comprehensive utilization technology research and development in national key research and development plans. Revise the resource comprehensive utilization technology policy outline in a timely manner, and strengthen the promotion and application of advanced applicable technologies and integrated demonstrations.

3. Innovate the collaborative utilization mechanism for bulk solid waste.

Encourage multi-industry collaborative utilization, promote the collaborative development of the comprehensive utilization industry of bulk solid waste with upstream industries such as coal, electricity, steel, non-ferrous metals, and chemicals, and deeply integrate with downstream application fields such as construction, building materials, municipal services, transportation, and environmental governance, breaking through bottlenecks and pain points between departments and industries. Promote cross-regional collaborative utilization, establish a cross-regional and cross-departmental linkage coordination mechanism, and promote the collaborative disposal and utilization of bulk solid waste in major national strategic regions such as the coordinated development of Beijing-Tianjin-Hebei, the development of the Yangtze River Economic Belt, the construction of the Guangdong-Hong Kong-Macao Greater Bay Area, the integrated development of the Yangtze River Delta, and ecological protection and high-quality development in the Yellow River Basin.

4. Innovate the management methods for bulk solid waste.

Fully utilize modern information technology means such as big data and the Internet to promote industries, regions, and industrial parks with large amounts of bulk solid waste generation to establish an "Internet + bulk solid waste" comprehensive utilization information management system, improving the information management level of comprehensive utilization of bulk solid waste. Fully rely on existing resources, encourage social forces to carry out transaction information services for comprehensive utilization of bulk solid waste, provide information services for waste production and waste utilization enterprises, and timely publish information on bulk solid waste generation units, generation amounts, quality, and utilization status by variety, improving resource allocation efficiency and promoting an overall increase in the comprehensive utilization rate of bulk solid waste.

To further strengthen the implementation of work, the "Guiding Opinions" propose to implement actions for efficient resource utilization, including the following four specific actions.

1. Backbone enterprise demonstration leading action.

In the field of comprehensive utilization of bulk solid waste such as coal gangue, fly ash, tailings (associated minerals), smelting slag, industrial by-product gypsum, construction waste, and crop straw, cultivate 50 backbone enterprises with strong upstream and downstream industrial driving capabilities, mastery of core technologies, and high market share. Support backbone enterprises to carry out the construction of efficient, high-quality, and high-value comprehensive utilization demonstration projects for bulk solid waste, forming replicable and promotable implementation examples, and playing a leading role.

2. Comprehensive utilization base construction action.

Focusing on key waste-producing industries such as coal, electricity, metallurgy, and chemicals, and around the implementation of major national strategies, build 50 comprehensive utilization bases for bulk solid waste and 50 industrial resource comprehensive utilization bases, promote a batch of advanced applicable technologies and equipment for comprehensive utilization of bulk solid waste, and continuously improve resource utilization efficiency.

3. Resource comprehensive utilization product promotion action.

Incorporate the promotion and use of resource comprehensive utilization products into the creation actions of energy-saving agencies, green schools, and other green lifestyles. Increase government green procurement efforts, encourage party and government agencies, schools, hospitals, and other public institutions to prioritize the procurement of resource comprehensive utilization products such as straw-based environmentally friendly boards, and play a demonstrative role for public institutions. Encourage green buildings to use new wall materials and decorative materials made from bulk solid waste such as coal gangue, fly ash, industrial by-product gypsum, and construction waste. In conjunction with rural construction actions, guide the use of new wall materials in the construction of rural public infrastructure.

4. Action to enhance the system governance capacity of bulk solid waste.

Accelerate the improvement of the comprehensive utilization standard system for bulk solid waste, and promote the connection of standards between upstream and downstream industries. Strengthen the statistical capacity building of the comprehensive utilization industry for bulk solid waste, clarify statistical caliber, statistical standards, and statistical methods, and improve the timeliness and accuracy of statistics. Encourage enterprises to actively carry out evaluations of resource comprehensive utilization of industrial solid waste, continuously improve the evaluation mechanism, strengthen the capacity building of evaluation institutions, standardize the operation and management of evaluation institutions, actively promote the acceptance of evaluation results, and guide enterprises to improve the quality of resource comprehensive utilization products.

1. Strengthen organizational coordination.

Development and reform departments in various regions should work together with departments such as science and technology, industry and information technology, finance, natural resources, ecological environment, housing and urban-rural development, agriculture and rural affairs, market supervision, and administrative affairs management to effectively fulfill their responsibilities. According to their functional divisions, they should establish a work coordination mechanism with clear responsibilities, orderly coordination, and strong supervision, strengthen policy linkage, and comprehensively promote the comprehensive utilization of bulk solid waste in their regions. Each region should track and evaluate the implementation of policies and the development of industries in their area, and regularly report on the comprehensive utilization of bulk solid waste in their region every year.

2. Strengthen legal protection

Actively promote legislation on comprehensive resource utilization, research and formulate management measures for the comprehensive utilization of bulk solid waste such as construction waste and agricultural straw, and encourage local governments to formulate regulations on the comprehensive utilization of bulk solid waste. Strengthen law enforcement supervision, effectively utilize the functions of ecological environment, market supervision, natural resources, and other departments, strictly enforce relevant laws and regulations on solid waste pollution prevention and control, form a comprehensive law enforcement synergy, and increase penalties for relevant illegal entities and behaviors.

3. Improve support policies

Continue to implement preferential policies such as value-added tax, income tax, and environmental protection tax. Encourage green credit and support enterprises in the comprehensive utilization of bulk solid waste to issue green bonds. Encourage local governments to support the development of the resource comprehensive utilization industry. Improve the market access system, strengthen supervision during and after the event, create a fair competitive market environment, effectively enhance the investment attractiveness of the resource comprehensive utilization industry, guide social capital to increase investment in the comprehensive utilization of bulk solid waste, and continuously explore paths and models for promoting the comprehensive utilization of bulk solid waste through market mechanisms.

4. Strengthen publicity and promotion

Organize various forms of publicity activities, using traditional media and new media to promote and popularize knowledge related to the comprehensive utilization of bulk solid waste, and raise public awareness of resource conservation and environmental protection. Fully leverage the guiding role of relevant departments and industry associations, publicize typical cases of comprehensive utilization of bulk solid waste, promote typical experiences, stimulate social investment motivation and vitality, and create a positive atmosphere for the whole society to participate actively.