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Guiding Opinions of the Development and Reform Commission on the Comprehensive Utilization of Bulk Solid Wastes in the "14th Five-Year Plan"
2021-03-30 06:11:05

Guiding Opinions on the Comprehensive Utilization of Bulk Solid Wastes in the "14th Five-Year Plan"


Development and Reform Huanzi [2021] No. 381


All provinces, autonomous regions, municipalities directly under the Central Government and cities under separate state planning, Xinjiang Production and Construction Corps Development and Reform Commission, Science and Technology Department (Committee), Industry and Information Technology Department (Committee), Finance Department (Bureau), Natural Resources Department, Ecological Environment Department (Bureau), Residential Construction department (commission, bureau), agriculture and rural (agriculture and animal husbandry) department (bureau, committee), market supervision bureau, agency affairs management department:


Comprehensive utilization of resources is an important part of my country's in-depth implementation of the sustainable development strategy. Bulk solid waste (hereinafter referred to as "bulk solid waste") has a large volume, a wide range, outstanding environmental impact, and broad utilization prospects. It is the core area of comprehensive utilization of resources. Promoting the comprehensive utilization of bulk solid waste is of great significance for improving resource utilization efficiency, improving environmental quality, and promoting a comprehensive green transformation of economic and social development. In order to thoroughly implement the spirit of the Fifth Plenary Session of the 19th Central Committee of the Communist Party of China, further improve the comprehensive utilization of bulk solid waste, comprehensively improve resource utilization efficiency, promote the construction of ecological civilization, and promote high-quality development, these guidelines are formulated.


1. Current Status and Situation


(1) The results achieved during the "Thirteenth Five-Year Plan". Since the 18th National Congress of the Communist Party of China, my country has integrated the comprehensive utilization of resources into the overall layout of ecological civilization construction, has continuously improved laws and policies, strengthened scientific and technological support, improved standards and regulations, and promoted the development and growth of the comprehensive utilization of resources industry. Positive progress has been made in various tasks. In 2019, the comprehensive utilization rate of bulk solid waste reached 55%, an increase of 5 percentage points over 2015; among them, the comprehensive utilization rate of coal gangue, fly ash, industrial by-product gypsum, and straw reached 70%, 78%, and 70%, respectively , 86%. During the "Thirteenth Five-Year Plan" period, the accumulated comprehensive utilization of various types of bulk solid waste was approximately 13 billion tons, the occupation of land was reduced by more than 1 million mu, and a large number of comprehensive resource utilization products were provided, which promoted the high growth of coal, chemical, electric power, steel, building materials and other industries. Quality development, resources, environment and economic benefits have been significant, which has played an important role in alleviating the shortage of some raw materials in our country and improving the quality of the ecological environment.


(2) The situation facing the "14th Five-Year Plan". During the "14th Five-Year Plan" period, my country will embark on a new journey of building a socialist modern country in an all-round way. The task of comprehensively improving the efficiency of resource utilization around the theme of promoting high-quality development is more urgent. Affected by factors such as resource endowment, energy structure, development stage, etc., my country's bulk solid waste will still face severe challenges in the future, such as high production intensity, insufficient utilization, and low added value of comprehensive utilization products. At present, the accumulated stock of bulk solid waste is about 60 billion tons, and the annual new stock is nearly 3 billion tons. Among them, the utilization rate of solid waste such as red mud, phosphogypsum, and steel slag is still low, occupying a lot of land resources, and there is a large The hidden danger of ecological environment safety. It is necessary to thoroughly implement the "Law of the People’s Republic of China on the Prevention and Control of Environmental Pollution by Solid Waste" and other laws and regulations, vigorously promote the source reduction, resource utilization and harmless disposal of bulk solid waste, strengthen the entire chain of governance, and strive to resolve outstanding contradictions and problems, and promote The comprehensive utilization of resources industry has achieved new development.


2. Overall requirements


(3) Guiding ideology. Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, thoroughly implement the spirit of the 19th National Congress of the Communist Party of China and the 2nd, 3rd, 4th, and 5th Plenary Sessions of the 19th National Congress of the Communist Party of China, and unswervingly implement the new development concept to comprehensively improve the efficiency of resource utilization As the goal, to promote the green development of the comprehensive utilization of resources industry as the core, strengthen system governance, innovate utilization models, implement special actions, promote the realization of green, efficient, high-quality, high-value, and large-scale utilization of bulk solid waste, and improve the comprehensive utilization of bulk solid waste. Utilize the level to help the construction of ecological civilization and provide strong support for the high-quality development of the economy and society.


(4) Basic principles.


-Persist in the combination of government guidance and market dominance. Improve comprehensive policies and measures, stimulate the vitality of various market entities, give full play to the decisive role of the market in resource allocation, better play the role of the government, and accelerate the development and expansion of a large-scale solid waste comprehensive utilization industry.


——Insist on the combination of large-scale utilization and high-value utilization. Actively broaden the channels for the comprehensive utilization of bulk solid waste, further expand the scale of utilization, strive to eat dry and squeeze out, continue to increase the added value of comprehensive utilization of resources, and enhance the core competitiveness of the industry.


——Insist on the combination of absorbing the stock and controlling the increase. Eliminate large quantities of solid waste in a scientific and orderly manner in accordance with laws and regulations; adopt measures to local conditions and comprehensively implement policies to effectively reduce the intensity of bulk solid waste production and discharge, increase comprehensive utilization, and strictly control the newly added bulk solid waste stockpiles.


——Insist on the combination of highlighting key points and systematic governance. Strengthen the whole process management of the comprehensive utilization of bulk solid waste, coordinate the promotion of waste production, waste utilization and standardized disposal, and strictly adhere to the environmental bottom line of comprehensive utilization and safe disposal of bulk solid waste.


——Insist on the combination of technological innovation and model innovation. Strengthen innovation and leadership, break through the technical bottleneck of the comprehensive utilization of bulk solid waste, accelerate the promotion and application of advanced applicable technologies, strengthen demonstration and leadership, and cultivate a new model of comprehensive utilization of bulk solid waste.


(5) Main goals. By 2025, the comprehensive utilization capacity of bulk solid wastes such as coal gangue, fly ash, tailings (co-associated mines), smelting slag, industrial by-product gypsum, construction waste, and crop straws will be significantly improved, and the scale of utilization will continue to expand and new The comprehensive utilization rate of bulk solid waste reached 60%, and the volume of bulk solid waste was reduced in an orderly manner. The level of comprehensive utilization of bulk solid waste has been continuously improved, and the comprehensive utilization industry system has been continuously improved; breakthroughs have been made in key bottleneck technologies, and a technological innovation system for the comprehensive utilization of bulk solid waste has been gradually established; policies, regulations, standards and statistical systems have been gradually improved, and the system for comprehensive utilization of bulk solid waste has been basically Improvement; continuous innovation of inter-industry integration and symbiosis and inter-regional coordinated development models; intensive and efficient industrial bases and key enterprises' demonstration and leading role have been significantly enhanced, and a new pattern of high-quality development of the bulk solid waste comprehensive utilization industry has basically taken shape.


3. Improve the utilization efficiency of bulk solid waste resources


(6) Coal gangue and fly ash. Continue to improve the level of comprehensive utilization of coal gangue and fly ash, promote the use of gangue and fly ash in engineering construction, subsidence area management, mine filling, and ecological restoration of saline-alkali land and desertified land, and guide the use of coal gangue and fly ash in an orderly manner Ash produces new wall materials, decoration materials and other green building materials, and promotes the application in the agricultural field and the extraction of valuable components under the premise of controllable risks, and strengthens the application and promotion of high-volume and high-value-added products.


(7) Tailings (co-associated mines). Steadily promote the efficient extraction and overall utilization of valuable components of metal tailings, promote the preparation of sand and gravel aggregates, ceramsites, dry-mixed mortar and other sand source alternative materials from mining waste rock and the utilization of gelled backfills, and explore the use of tailings in the field of ecological environment management Of use. Accelerate the comprehensive development and utilization of co-associated mineral resources such as ferrous metals, non-ferrous metals, and rare and precious metals, as well as the cascade recovery of valuable components, and promote the large-scale utilization of residual waste residues after the extraction of valuable metals. Promote the ecological restoration of closed tailing ponds in accordance with laws and regulations, and shall not mine tailings without approval.


(8) Smelting slag. Strengthen the use of industrial synergy, expand the use of red mud and steel slag, increase the proportion of red mud mixed in road materials, and expand the use of steel slag powder as a concrete admixture in construction projects and other fields. Continue to explore other large-scale utilization channels of red mud and steel slag. Encourage the recovery of iron, alkali, and alumina from red mud, and the recovery of valuable components such as rare and scattered metals and rare and precious metals from smelting slag, so as to improve the utilization efficiency of mineral resources, ensure national resource security, and gradually increase the comprehensive utilization rate of smelting slag.


(9) Industrial by-product gypsum. Broaden the use of phosphogypsum, continue to promote the use of phosphogypsum in the production of cement and new building materials, and explore the application of phosphogypsum in soil improvement, underground filling, and roadbed materials under the premise of ensuring environmental safety. Support the use of desulfurized gypsum and citrate gypsum to prepare green building materials, gypsum whiskers and other new products and materials, and expand the scale of high-value industrial by-product gypsum utilization. Actively explore resource utilization methods of complex and difficult-to-use industrial by-product gypsum such as titanium gypsum and fluorogypsum.


(10) Construction waste. Strengthen the classification and recycling of construction waste, standardize the construction and operation of construction waste storage, transfer and resource utilization sites, and promote the application of construction waste comprehensive utilization products. Encourage the application of construction waste recycled aggregates and products in construction engineering and road engineering, as well as the use of construction waste for earthwork balance, forestry soil, environmental treatment, sintered products and backfilling, etc., to continuously improve the quality of utilization and expand the scale of resource utilization.


(11) Straws of crops. Vigorously promote the comprehensive utilization of straw and promote the improvement of quality and efficiency of the comprehensive utilization of straw industry. Adhere to the priority of agricultural use, continue to promote the use of straw as fertilizer, feed and base material, and give full play to the combined functions of straw arable land conservation and planting and breeding. Expand the use of straw clean energy, encourage the use of straw and other biomass energy for heating and gas heating, optimize the rural energy structure, and promote the application of biomass natural gas in the industrial field. Continuously broaden the utilization of straw as raw materials, encourage the use of straw to produce environmentally friendly panels, carbon-based products, polylactic acid, paper pulp, etc., and promote the conversion of straw resources into high value-added green products. Establish and improve the straw collection, storage and transportation system, carry out professional and refined transportation and management services, and open up the "first kilometer" of the development of the straw industry.


4. Promote the green development of comprehensive utilization of bulk solid waste


(12) Promote the green transformation of the production and waste industry and achieve reductions at the source. Carry out the green design of the waste production industry, fully consider the follow-up comprehensive utilization link in the production process, and effectively reduce the bulk solid waste from the source. Vigorously develop green mining, promote the application of gangue not leaving the well model, encourage mining companies to use tailings and co-associated mines to fill mined areas, control subsidence areas, and promote the realization of local tailings consumption. Carry out the green transformation of key industries such as energy, metallurgy, and chemical industry, continuously optimize technological processes, improve technical equipment, and reduce the intensity of bulk solid waste generation. Promote the self-elimination of bulk solid wastes such as coal gangue, tailings, steel slag, etc., and promote the improvement of the purification treatment level of complex and difficult-to-use bulk solid wastes such as phosphogypsum and red mud to create conditions for comprehensive utilization. Promote green construction in the field of engineering construction, promote waste pavement materials and in-situ recycling of demolition waste, and implement classification management of construction waste, source reduction and resource utilization.


(13) Promote green production in the waste industry and strengthen process control. Continue to improve the level of technology and equipment of waste-utilizing enterprises, and increase efforts to rectify large and small scattered and polluting enterprises. Strengthen the management of the whole process of comprehensive utilization of bulk solid waste, and strictly implement the responsibility for the prevention and control of environmental pollution in the whole process. Promote the green transportation of bulk solid waste, encourage the use of special transportation equipment and vehicles, and strengthen the management of the bulk solid waste transportation process. Encourage waste-use enterprises to conduct clean production audits, strictly implement pollutant discharge standards, improve environmental protection measures, and prevent secondary pollution.


(14) Strengthen the standardized disposal of bulk solid waste and keep the bottom line of the environment. Strengthen the management of bulk solid waste storage and disposal, strengthen the main responsibility, promote the construction of storage facilities that meet the relevant national standards, realize safe classified storage, and eliminate mixed discharge and mixed piles. Coordinate and take into account the incremental consumption and inventory control of bulk solid waste, increase the comprehensive rectification of bulk solid waste in key river basins and key regions, and improve the long-term environmental protection supervision and management system.


5. Promote the innovative development of comprehensive utilization of bulk solid waste


(15) Innovate the comprehensive utilization model of bulk solid waste. Promote "gangue underground filling + ground backfill" in the coal industry to promote gangue reduction; establish a "cascade recovery + ecological restoration + storage protection" system in the mining industry to promote the construction of green mines; promote "solid waste without leaving the factory" in the iron and steel metallurgical industry "Strengthen the full quantitative utilization; promote the "in-situ regeneration + off-site treatment" of construction waste in the construction industry to improve utilization efficiency; carry out "industrial-agricultural complex" in the agricultural field to promote industrial collaboration; target emerging photovoltaic modules, wind turbine blades, etc. For industrial solid waste, explore standardized recycling and recyclable and high-value recycling methods; promote the regional coordination model of "road, iron and water combined transportation" for bulk solid waste in key areas, and strengthen resource allocation. Promote the multi-industry and multi-variety collaborative utilization of bulk solid waste according to local conditions, and form a new development model for the comprehensive utilization of bulk solid waste that can be replicated and promoted.


(16) 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 source reduction and harm reduction and high-quality comprehensive utilization of key core technologies and equipment, and promote the research and development of key technologies for risk control during the use of bulk solid waste. Relying on the national innovation platform, support the organic integration of production, education, research and application, and encourage the construction of basic research and development platforms such as industrial technology innovation alliances. Intensify scientific and technological support, and incorporate key technologies for the comprehensive utilization of bulk solid waste and research and development of large-scale and high-quality comprehensive utilization technologies into the national key research and development plan. Revise the technical policy outline for the comprehensive utilization of resources in a timely manner, and strengthen the popularization and application of advanced applicable technologies and integrated demonstrations.


(17) Innovate the collaborative utilization mechanism of bulk solid waste. Encourage the coordinated utilization of multiple industries, promote the coordinated development of the bulk solid waste comprehensive utilization industry and upstream coal power, steel, non-ferrous, chemical and other industries, and deepen integration with downstream construction, building materials, municipal, transportation, environmental governance and other product applications, and open up inter-departmental , Inter-industry congestion and pain points. Promote cross-regional coordinated utilization, establish a cross-regional and cross-departmental linkage coordination mechanism, promote 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, the ecological protection and high-quality development of the Yellow River Basin, etc. Co-processing and utilization of bulk solid waste in major national strategic areas.


(18) Innovate bulk solid waste management methods. Make full use of modern information technology such as big data and the Internet to promote the establishment of an "Internet + bulk solid waste" comprehensive utilization information management system in industries, regions and industrial parks that generate a large amount of bulk solid waste, and improve the information management level of bulk solid waste comprehensive utilization . Fully rely on existing resources, encourage social forces to carry out bulk solid waste comprehensive utilization transaction information services, provide information services for waste production and waste utilization enterprises, and timely release bulk solid waste generation units, production volume, quality and utilization status, etc., to improve The efficiency of resource allocation promotes the overall increase in the overall utilization rate of bulk solid waste.


6. Implementation of efficient use of resources


(19) Key enterprises demonstrate and lead actions. In the field of comprehensive utilization of bulk solid waste such as coal gangue, fly ash, tailings (co-associated mines), smelting slag, industrial by-product gypsum, construction waste, crop straw, etc., cultivate 50 companies with strong upstream and downstream industry driving capabilities and mastery A comprehensive utilization backbone enterprise with core technology and high market share. Support key enterprises to carry out the construction of demonstration projects for the comprehensive utilization of high-efficiency, high-quality, high-value bulk solid wastes, form reproducible and extendable implementation examples, and play a leading and leading role.


(20) Construction of comprehensive utilization bases. Focusing on key waste production industries such as coal, electric power, metallurgy, chemical industry, etc., around the implementation of major national strategies, build 50 bulk solid waste comprehensive utilization bases and 50 industrial resource comprehensive utilization bases, and promote a batch of advanced and applicable technology and equipment for bulk solid waste comprehensive utilization , And continuously promote the improvement of resource utilization efficiency. In the main grain and cotton production areas, focusing on agricultural wastes, we will build 50 industrial-agricultural complex circular economy demonstration parks to continuously improve the comprehensive utilization of agricultural and forestry wastes.


(21) Promotion of comprehensive utilization of resources products. Incorporate the promotion and comprehensive utilization of resources into green life creation actions such as energy-saving institutions and green schools. Increase the government's green procurement efforts, encourage party and government agencies, schools, hospitals and other public institutions to give priority to purchasing products for comprehensive utilization of resources such as straw environmental protection panels, and give full play to the demonstration role of public institutions. Encourage green buildings to use new wall materials and decoration materials using coal gangue, fly ash, industrial by-product gypsum, construction waste and other bulk solid waste as raw materials. Combined with rural construction activities, guide the use of new wall materials in the construction of rural public infrastructure.


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