非洲“就地增值”政策对中国关键矿产供应安全的影响

    Impact of Africa’s “local beneficiation” policies on China’s critical mineral supply security

    • 摘要: 非洲资源国密集出台以出口限制为主要工具、以本地价值链升级为根本诉求的“就地增值”政策,对中国关键矿产供应安全构成系统性挑战。为系统评估该政策影响程度与风险差异,研究梳理2020—2026年十个非洲国家及非洲联盟的“就地增值”政策演变,运用政策强度指数(PII)、赫芬达尔-赫希曼指数(HHI)和供应风险综合指数(SRI)等定量方法,结合典型案例追踪,构建“政策冲击-脆弱性识别-影响分析-风险评估”分析框架。研究发现:①非洲“就地增值”政策在2020—2026年间逐步升级,从单一矿种原矿出口禁令扩展到多矿种精矿全面禁令,政策工具也从一刀切禁令发展为配额制与关税等组合管控方式;②中国六种关键矿产进口来源的HHI值均超过2 500,面临系统性供应集中风险;③出口限制将从原料供给收缩、投资模式转型和大国竞争叠加三个维度冲击中国关键矿产供应安全,其中,钴矿供应风险综合指数高达0.98,处于极高风险区间,政策增量风险(ΔSRI)达0.30;④中国矿业企业正从“采矿-运回”模式向“采矿-就地加工-产品出口”模式转型,中非矿业合作的底层逻辑呈现深层变革趋势。基于上述研究结论,针对性提出主动融入非洲“就地增值”战略框架、构建多元化供应安全体系、完善关键矿产供应链风险预警机制、深化中非矿业合作论坛机制等政策建议,以期为提升中国关键矿产供应链韧性、保障矿产资源安全和推动中非矿业合作高质量发展提供决策参考。

       

      Abstract: African resource-rich countries have intensively introduced “local beneficiation” policies centered on export restrictions as the primary tool and driven by the fundamental objective of upgrading local value chains, posing systemic challenges to China’s supply security of critical minerals. To systematically assess the degree of policy impact and risk differentiation, this study reviews the evolution of “local beneficiation” policies in ten African countries and the African Union from 2020 to 2026. Employing quantitative methods including the Policy Intensity Index(PII), Herfindahl-Hirschman Index(HHI), and Supply Risk Index(SRI), combined with typical case tracking, it constructs an analytical framework of “policy shock-vulnerability identification-impact analysis-risk assessment”. The findings reveal the following: ①Africa’s local beneficiation policies have progressively escalated between 2020 and 2026, expanding from single-mineral raw ore export bans to comprehensive bans on concentrates across multiple minerals, while policy instruments have evolved from blanket prohibitions to combined control measures such as quotas and tariffs. ②The HHI values for China’s import sources of six critical minerals all exceed 2 500, indicating a systemic risk of supply concentration. ③Export restrictions will impact China’s critical mineral supply security through three dimensions—contraction of raw material supply, transformation of investment models, and the superposition of great-power competition—with the Supply Risk Index(SRI) for cobalt reaching 0.98, placing it in the extremely high-risk category, and the policy-incremental risk(ΔSRI) amounting to 0.30. ④Chinese mining enterprises are transitioning from a “mining-shipping back” model to a “mining-local processing-product export” model, reflecting a profound transformation in the underlying logic of China-Africa mining cooperation. Based on the above findings, this study proposes targeted policy recommendations, including actively integrating into Africa’s “local beneficiation” strategic framework, building a diversified supply security system, improving the risk early-warning mechanism for critical mineral supply chains, and deepening the mining cooperation mechanism under the Forum on China-Africa Cooperation, aiming to enhance the resilience of China’s critical mineral supply chain, safeguard mineral resource security, and promote high-quality development of China-Africa mining cooperation.

       

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