非洲各国矿产资源及矿业法律环境概览 ——刚果（金）篇

非洲各国矿产资源及矿业法律环境概览
——刚果（金）篇Mineral Resources & Mining Legal Environment in Africa — Democratic Republic of the Congo (DRC)

发布日期：2026年7月6日 | 康达律师事务所 · 矿业团队 | KANGDA Law Firm · Mining Practice

???? 本文目录 / Table of Contents

导语：从"世界原料仓库"到全球博弈焦点Introduction

· 2025–2026 政策干预速览Policy Interventions Snapshot

第一部分　矿产资源与矿业产业概览Part I · Resources & Industry

· 一、矿产资源结构与主要矿种Mineral Structure & Major Commodities

· 二、矿业发展现状与趋势Industry Status & Trends

· 三、核心挑战Core Challenges

· 四、趋势展望Outlook

第二部分　矿业监管、外资准入及投资合规Part II · Regulation, FDI Access & Compliance

· 一、刚果（金）外国投资法律制度Foreign Investment Legal Regime

· 二、矿业监管与矿业外资准入制度Mining Regulation & FDI Access

· 三、矿业投资相关合规制度Compliance Requirements

???? 结语：高波动制度环境中的抗风险能力Closing · Resilience under Volatility

导语Introduction

刚果民主共和国（简称"刚果（金）"）位于非洲中部，与九国接壤，是非洲面积第二大国。该国矿产资源极为丰富，素有"世界原料仓库"之称，其钴、铜、钻石等矿产在全球供应链中占据举足轻重的地位。近年来，随着全球能源转型加速，刚果（金）已成为大国博弈的战略焦点。

The Democratic Republic of the Congo (the "DRC"), landlocked in central Africa and bordered by nine countries, is the second-largest country in Africa by area. Blessed with extraordinary mineral endowments, it is widely known as the "World's Raw-Material Warehouse". Its cobalt, copper and diamond resources occupy pivotal positions in global supply chains, and — driven by the global energy transition — the country has become a strategic focus of geopolitical competition.

2025 年至 2026 年，刚果（金）政府以罕见的频率和力度出台了一系列干预措施：钴出口配额强制削减逾五成、战略矿产清单扩容至锂、钽、铌等 7 个矿种、权利金跳涨至 10%、国家战略储备机制上线运行。

Policy intervention snapshot (2025–2026): Between 2025 and 2026, the DRC Government issued a series of interventions at an unusual pace and intensity: a mandatory cobalt export quota cut exceeding 50%, an expansion of the strategic-mineral list to seven minerals (including lithium, tantalum and niobium), a royalty rate hike to 10%, and the launch of a national strategic-reserve mechanism.

对于矿业投资者而言，刚果（金）的机会与风险同样醒目。资源端的优势无可替代——没有哪个国家能短期内替代其钴供应；但政策端的不可预测性正在大幅抬高合规成本和交易风险。电力短缺、物流瓶颈、东部武装冲突，以及 Fraser Institute 政策感知指数全球倒数 10 名的现实，共同构成了投资落地的硬约束。本篇从矿产资源情况、矿业许可制度、外国投资准入、合规要求等多维度出发，系统梳理刚果（金）矿业投资的法律与商业环境，供矿业投资者参考。

For mining investors, the DRC's opportunities and risks are equally striking. On the resource side, no country can replace its cobalt supply in the short term; on the policy side, however, unpredictability is materially raising compliance costs and transaction risk. Power shortages, logistics bottlenecks, armed conflict in the east, and the country's ranking in the bottom 10 globally on the Fraser Institute policy-perception index together form the hard constraints of any investment landing. This article systematically reviews the legal and commercial environment for mining investment in the DRC — from mineral endowment to licensing regime, FDI access and compliance requirements — for the reference of mining investors.

第一部分　矿产资源与矿业产业概览Part I · Resources & Industry Overview

一、矿产资源结构与主要矿种Mineral Structure & Major Commodities

刚果（金）矿产资源种类齐全、储量巨大。有色金属达 20 余种，核心矿种的储量和全球地位如下：

The DRC hosts a complete spectrum of mineral resources with vast reserves. Over 20 non-ferrous metals have been identified. The reserves and global standing of the principal commodities are as follows.

（一）核心矿种概览 / Core Commodities

1. 钴（Cobalt）——探明金属储量 600 万吨，全球总钴储量 1100 万吨，占比 54.55%，全球第一。2024 年产量 22 万吨金属钴，全球总产量 28.8 万吨，占比 76.4%；2025 年产量 23 万吨，占全球 73%。刚果（金）在全球钴供应链中的地位不可替代，是锂电池正极材料的核心原料来源地。

1. Cobalt — proven metal reserves of 6 million tonnes (~54.55% of the world total of 11 Mt), ranking #1 globally. 2024 production: 220,000 t (76.4% of global 288,000 t); 2025 production: 230,000 t, 73% of world output. Indispensable to the global cobalt supply chain and the upstream feedstock for lithium-battery cathode materials.

2. 铜（Copper）——探明金属储量 8000 万吨，全球铜矿总储量 9.8 亿吨，占比 8.16%，全球第四；资源总量 1.11 亿吨。2023 年产量 293 万吨、2024 年产量 302 万吨、2025 年产量 320 万吨，全球第二大产铜国，占全球铜矿产量 13% 左右；矿床平均品位 2.5%+，为全球铜矿平均品位 4 倍（加丹加成矿带独有高品位特征）。

2. Copper — proven reserves of 80 million tonnes (~8.16% of world total of 980 Mt), ranking #4 globally; total resources of 111 Mt. Annual production: 2.93 Mt (2023), 3.02 Mt (2024), 3.20 Mt (2025), making the DRC the world's 2nd-largest copper producer (~13% of global output). Average ore grade exceeds 2.5% — roughly 4× the global average — a hallmark of the Katanga metallogenic belt.

3. 铌钽（Niobium & Tantalum）——钽储量全球占比 45%–80%，2023 年钽金属产量 230 吨；主产区为东刚果伊图里、南基伍省，为全球电子钽原料第一来源地。钽是电子工业和航空航天关键材料。

3. Niobium & Tantalum — tantalum reserves account for 45%–80% of the world total; 2023 tantalum metal output: 230 t. Main production areas: eastern Ituri and South Kivu. The DRC is the world's #1 source of electronic-grade tantalum feedstock, a critical material for electronics and aerospace.

4. 钻石（Diamond）——储量约 2.06 亿克拉，占全球约 23%。2023 年产量 830 万克拉，全球占比 6.3%；原生金刚石集中开赛省、冲积砂矿遍布刚果盆地北部。

4. Diamond — reserves of approximately 206 million carats, accounting for ~23% of the global total. 2023 production: 8.3 Mct (~6.3% of global output). Primary kimberlite deposits concentrate in Kasaï Province; alluvial placers are widespread across the northern Congo Basin.

5. 锂（Lithium）——新兴战略矿产，2025 年正式划入国家战略矿产清单。全国远景锂资源 LCE 超 3000 万吨，近年来成为全球矿业资本关注焦点。马诺诺（Manono）锂矿为世界级硬岩锂矿床之一。

5. Lithium — an emerging strategic mineral, formally added to the national strategic-mineral list in 2025. National prospective LCE resources exceed 30 million tonnes; the Manono hard-rock lithium deposit is among the world's largest. Lithium has become a focal point of global mining capital in recent years.

6. 黄金（Gold）——探明金属储量 353.8 吨，远景资源 1398.8 吨，平均品位 2.8 g/t；砂金集中于东部南北基伍，绿岩型金矿分布在开赛区；2024 年产金 28 吨，手工淘金占全国产金 65%。

6. Gold — proven reserves of 353.8 t; prospective resources of 1,398.8 t; average grade 2.8 g/t. Alluvial gold concentrates in North and South Kivu; greenstone-type deposits are distributed in Kasaï. 2024 output: 28 t, with artisanal mining accounting for 65% of national production.

其他矿种 / Other Commodities：锡金属探明储量 22.5 万吨、锡远景资源量 50.7 万吨；全国高品位铁矿石远景资源量 100 亿吨；镍、铬无独立成型矿床，均为铜钴矿伴生元素，伴生铬镍金属合计估算约 2250 万吨；锰、锌主要为伴生矿产，伴生锰、锌金属资源量分别约 700 万吨。油气方面，刚果（金）仅沿海盆地海上油田实现量产，全国原油总探明储量 1.8 亿桶，海上储量占绝大多数。

Other commodities: Tin — proven 225,000 t / prospective 507,000 t. Iron ore — prospective high-grade resources of 10 billion tonnes. Nickel and chrome have no independent deposits; both occur as by-products of copper-cobalt operations (combined associated Cr–Ni metals estimated at ~22.5 Mt). Manganese and zinc are mainly by-products (~7 Mt each of associated metal resources). Oil & gas: only the offshore coastal basin is productive; total proven crude reserves stand at 180 million barrels, with offshore reservoirs accounting for the vast majority.

600 万吨钴储量（全球第一）Cobalt (#1)

8000 万吨铜储量（全球第四）Copper (#4)

73%全球钴产量占比Cobalt Output Share

23%全球钻石储量占比Diamond Reserves

（二）两大成矿带 / Two Major Metallogenic Belts

1. 中非铜钴矿带（又称加丹加铜钴层控矿带）
该矿带沿卢菲利安造山带横跨刚果（金）南部卢阿拉巴、上加丹加省与赞比亚北部，是刚果（金）矿业核心支柱。矿床以新元古代砂页岩、碳酸盐角砾岩层控型为主；整条跨境成矿带已探明铜金属资源量约 1.87 亿吨、钴金属资源量约 1250 万吨，其中 70% 以上资源赋存于刚果（金）境内。区内铜钴矿床分为两类：一类为铜-钴-铀矿床（层控沉积型，集中于卢菲利安地层罗安群），刚果（金）几乎所有大型铜矿均属此类；另一类为铜-铅-锌矿床（断裂控制脉状，规模偏小，零散分布于成矿带边缘）。

1. The Central African Copper-Cobalt Belt (a.k.a. Katanga Stratiform Cu–Co Belt)
Straddling the Lufilian orogenic belt across Lualaba and Haut-Katanga in the DRC and northern Zambia, this is the backbone of DRC mining. Mineralisation is dominantly Neoproterozoic stratiform sediment-hosted in sandstone-shale and carbonate breccias. Total cross-border resources: ~187 Mt of copper metal and ~12.5 Mt of cobalt metal, of which more than 70% lie within the DRC. Two deposit styles: (i) Cu–Co–U stratiform-sedimentary deposits in the Roan Group of the Lufilian — host to nearly all large DRC copper mines; (ii) Cu–Pb–Zn fault-controlled vein deposits of smaller scale, scattered along the belt margins.

2. 东部基伍省矿区
该区域是钽、锡、黄金的重要产区；国内规模化锂矿开发集中于南部卢阿拉巴省 Manono 矿区，近年来锂矿开发亦成为热点。但需注意，东部地区长期受武装冲突影响，矿山安全形势严峻。

2. Eastern Kivu Mining Area
A key production base for tantalum, tin and gold. Large-scale domestic lithium development is concentrated at the Manono deposit in southern Lualaba Province. The area has also emerged as a hotspot for lithium in recent years. Note, however, that chronic armed conflict in the east keeps mine-security conditions severe.

总体评价：刚果（金）矿产资源的特征是 "大而全"——储量大、品位高、矿种齐全。与马拉维等非洲小国不同，刚果（金）已是成熟的大型矿业经济体。但资源禀赋是一回事，项目能否顺利建成、稳定运营、安全回款是另一回事。刚果（金）矿业投资的真正难题不在找矿，而在于电力、物流、安全和政策风险的管控。

Overall assessment: DRC mineral resources are characterised as "big and complete" — large reserves, high grades, full commodity coverage. Unlike smaller African peers (e.g. Malawi), the DRC is already a mature large-scale mining economy. Resource endowment is one thing; project delivery, stable operations and safe cash repatriation are another. The real challenge of DRC mining investment is not discovery — it is the management of power, logistics, security and policy risk.

二、矿业发展现状与趋势Industry Status & Trends

1. 经济支柱地位
矿业贡献刚果（金）GDP 32%、全国出口创汇 75%、政府财政收入 45%；铜钴单品占全国出口额超 52%。全国正规就业中矿业占比 21%，手工采矿吸纳超 200 万 灵活就业人口。

1. Pillar of the National Economy
Mining contributes 32% of GDP, 75% of export earnings, and 45% of government fiscal revenue; copper and cobalt alone account for over 52% of total exports. Mining represents 21% of formal employment, while artisanal mining absorbs more than 2 million informal workers.

2. 三大开采阵营

（1）大型规模化正规矿山（现代机械化开采，贡献 90% 铜钴产量）：

2. Three Operating Camps

(1) Large-scale industrial mines (modern mechanised mining, contributing 90% of copper and cobalt output):

中资系（第一大投资主体）：紫金矿业（卡莫阿、马诺诺锂、科卢韦齐）、洛阳钼业（滕凯铜钴）、华友钴业、中国五矿，累计在刚矿业投资超 120 亿美元，控制全国 55% 大型铜钴产能；
Chinese investors (largest bloc): Zijin Mining (Kamoa, Manono, Kolwezi), CMOC (Tenke Fungurume), Huayou Cobalt, MCC — cumulative investments exceeding USD 12 billion, controlling 55% of large-scale copper-cobalt capacity.
欧美跨国：嘉能可（原穆坦达矿山）、艾芬豪（加丹加矿区参股）、巴里克黄金（金矿）。
Western majors: Glencore (former Mutanda), Ivanhoe (Katanga minority), Barrick Gold.

（2）刚果本土国企 Gécamines（国家矿业总公司）
加丹加矿区原始矿权持有人，按 2018《矿业法》无偿持有全部新建矿山 10% 不可稀释国家干股，续期再追加 5% 股权；依托矿权参股各大中外合资矿山，每年分红为刚果财政重要来源。

(2) State-owned Gécamines
The original concessionaire of the Katanga belt. Under the 2018 Mining Code, it holds a free, non-dilutable 10% State interest in all new mines, plus an additional 5% upon each renewal. Through equity stakes in Sino-foreign joint ventures, Gécamines dividends are an important fiscal revenue stream.

（3）手工/小型采矿（ASM，粗放开采）
全国登记小型矿企 + 无证手工矿场超 12 万处，集中东部，贡献 90% 钽铌、65% 黄金、35% 金刚石产量；合规化整改为该国近年矿业改革重点。

(3) Artisanal & small-scale mining (ASM)
Over 120,000 licensed small-scale mines and unlicensed diggings, concentrated in the east, produce 90% of tantalum/niobium, 65% of gold, and 35% of diamonds. Formalisation and compliance reform is a key government priority.

3. 产业链现状 / Industry-Chain Status

上游采矿：高度成熟扩产；
Upstream mining: mature, ongoing capacity expansion.
中游冶炼：本土冶炼薄弱；
Midstream smelting: limited domestic capacity.
下游加工：近乎空白，无电池、金属深加工工厂。
Downstream processing: virtually absent — no battery or metal-fabrication plants.

三、核心挑战Core Challenges

1. 电力供给严重不足
水电季节性减产、电网扩容缓慢，中小矿山供电不稳拖累冶炼产能；公共电力增量有限，自备柴油发电成本持续走高。未来 2 年电网供电增量有限，自备电成本因燃料价格上涨而大幅攀升。

1. Acute Power Shortage
Seasonal hydropower cuts, slow grid expansion, and unstable supply to mid-/small-mines undermine smelting capacity. Public-grid additions over the next two years are limited; captive diesel generation costs have risen sharply with fuel prices.

2. 钴价大幅波动，长期面临替代压力
国内铜钴放量导致 2025 年初钴价跌至五年低点，政府出台钴出口禁令、配额制后价格大幅反弹。行业测算再生钴占比升至 22%，高镍电池普及，钴需求长期承压。据行业预测到 2030 年镍需求将大幅增长。这对刚果（金）钴产业的长期竞争力构成结构性挑战。

2. Cobalt Price Volatility & Substitution Risk
The surge in domestic Cu–Co output pushed cobalt prices to a five-year low in early 2025, prompting government export bans and quota regimes that subsequently drove sharp rebounds. Recycled cobalt now accounts for ~22% of supply; high-nickel batteries are reducing long-term cobalt demand. Industry projections see substantial nickel-demand growth by 2030 — a structural challenge to DRC cobalt competitiveness.

3. 基础设施落后
刚果（金）幅员辽阔但运输网络严重不足，交通瓶颈制约铜矿出口效率。尽管矿石品位远高于全球平均水平，物流成本对项目经济性的侵蚀不可忽视。

3. Infrastructure Deficit
Vast territory but severely inadequate transport network; bottlenecks erode copper-export efficiency. Despite ore grades well above the global average, logistics costs materially erode project economics.

4. 矿业政策持续收紧
自 2018 年齐塞克迪总统上台以来，刚果（金）政府积极推进新矿业法落实，重新审查中外合作协议，寻求重新谈判以获取更大收益。外资矿企面临的政府谈判压力显著增大。
2025 年 2 月，刚果（金）战略矿产市场监管局（ARECOMS）发布第 001/ARECOMS/2025 号决定，暂停钴产品出口四个月；6 月 21 日 ARECOMS 宣布禁令延长三个月；9 月再次延期至 10 月 15 日；10 月 16 日起，转为出口配额管理制度。

4. Ongoing Tightening of Mining Policy
Since President Tshisekedi took office in 2018, the Government has actively implemented the new Mining Code and re-examined Sino-foreign agreements to renegotiate larger revenue shares — significantly increasing negotiation pressure on foreign miners.
In February 2025, ARECOMS issued Decision No. 001/ARECOMS/2025 suspending cobalt exports for four months; on 21 June the ban was extended three months; in September it was further extended to 15 October; from 16 October the regime converted into a permanent export-quota system.

???? 政策启示 / Policy Takeaway：

从政策演变轨迹看，刚果（金）政府利用出口管制干预市场的先例已经确立，且已形成"禁令—延期—长期配额"阶梯式干预模式，政策干预常态化。投资测算需增设管制情景敏感性分析，不可默认出口自由稳定。

From the perspective of the policy evolution trajectory, the government of the Democratic Republic of the Congo has set precedents for intervening in the market through export controls, and has formed a stepped intervention model of "ban - extension - long-term quota", making policy intervention a regular practice. Investment calculations need to add sensitivity analysis under control scenarios, and free and stable exports should not be taken for granted.

四、趋势展望Outlook

1. 能源转型推升铜钴长期需求
新能源扩张带动电池、电动车产能持续增长，多家机构预测 2030 年全球电动车产量将达 5500 万辆，铜、钴需求同步扩容；刚果（金）资源储备充足，但稳定营商环境是承接增量的核心条件。

1. Energy Transition Lifts Long-Term Cu–Co Demand
Renewable expansion continues to drive battery and EV capacity growth; multiple forecasters project global EV output of 55 million units by 2030, lifting copper and cobalt demand commensurately. DRC resources are ample — but a stable business environment is essential to capture the upside.

2. 产业重心由采掘转向本土深加工
2026 年刚果矿业周媒体主题定为"从采掘走向加工与工业能力"；同年 3 月中刚签署矿业合作备忘录，重点推进本地冶炼与投资权益保护，刚方优先引进可落地完整产业链的合作方。

2. Industry重心 Shifts from Extraction to Local Processing
The 2026 DRC Mining Week adopted the theme "from extraction to processing and industrial capacity". In March 2026 the China–DRC mining cooperation MOU prioritised local smelting and investment-rights protection; the DRC side favours partners bringing complete industrial chains.

3. 锂矿成为核心投资新赛道
紫金马诺诺锂矿 2026 年 6 月投产，美资 KoBold 同步布局锂资源。锂被列为战略矿产，征收 10% 特许权使用费。

3. Lithium Emerges as the New Investment Track
Zijin's Manono lithium project commenced production in June 2026; US-backed KoBold is also deploying capital into lithium. Lithium is classified as a strategic mineral subject to a 10% royalty.

4. 关键矿产地缘竞争持续升温
刚果（金）推行投资多元化策略，2026 年 2 月矿业部长在利雅得未来矿产论坛表示，将面向美国投资者推出矿产项目清单，中资占据主导的市场格局迎来外部竞争。

4. Geopolitical Competition for Critical Minerals Intensifies
The DRC pursues a diversification strategy; in February 2026, the Minister of Mines announced at the Riyadh Future Minerals Forum that a project pipeline would be opened to US investors — bringing external competition to the Chinese-dominated landscape.

第二部分　矿业监管、外资准入及投资合规Part II · Regulation, FDI Access & Investment Compliance

一、刚果（金）外国投资法律制度Foreign Investment Legal Regime

刚果（金）对外国投资实行以《投资法典》为基础、行业特别法律制度为补充的投资监管体系。根据 2002 年《投资法典》及其后续修订规定，除法律明确限制或禁止投资的领域外，外国投资者原则上享有与刚果（金）本国投资者同等的投资权利，可以依法设立外商投资企业、取得经营资格并开展商业活动。刚果（金）投资制度总体形成了"市场准入开放、行业监管并行、投资优惠激励"的法律框架，通过投资登记、行业许可、税收优惠及监管措施对外国投资活动实施管理。

The DRC operates an investment-regulatory system anchored in the Investment Code, supplemented by sector-specific legislation. Under the 2002 Investment Code and its subsequent amendments, except in sectors expressly restricted or prohibited by law, foreign investors in principle enjoy the same rights as Congolese nationals. They may establish foreign-invested enterprises, obtain operating qualifications and carry on commercial activities in accordance with the law. The DRC investment regime has overall formed a legal framework of "open market access with parallel sector-specific regulation and investment incentives", governing foreign investment through investment registration, sectoral licensing, tax incentives and supervisory measures.

需要注意的是，《投资法典》并非适用于所有经济领域。对于具有战略属性或高度监管特点的行业，如矿业、油气、保险、银行金融、军工、爆炸物等领域均不属于《投资法典》的调整范围，而分别适用《矿业法典》《油气法》等行业特别法律。因此，外国投资者进入上述领域时，除符合一般投资法律要求外，还必须取得主管部门依法授予的行业许可。

It should be noted that the Investment Code does not apply across the entire economy. Sectors with strategic attributes or high regulatory intensity — such as mining, oil and gas, insurance, banking and finance, defence and explosives — fall outside its scope and are instead governed by sector-specific laws such as the Mining Code and the Oil & Gas Code. Accordingly, foreign investors entering these sectors must, in addition to general investment-law requirements, obtain the relevant operating licence issued by the competent authority.

刚果（金）负责投资促进及投资优惠管理的主要机构为国家投资促进署（ANAPI）。外国投资者如希望享受《投资法典》规定的税收、关税等优惠待遇，应向 ANAPI 提交投资批准申请，经审查批准后，可依据批准文件向税务、海关等主管机关申请落实相应优惠政策。

The principal DRC agency for investment promotion and incentive administration is the Agence Nationale pour la Promotion des Investissements (ANAPI). Foreign investors seeking the tax and customs incentives under the Investment Code must file an investment-approval application with ANAPI; once approved, they may apply to the tax and customs authorities for implementation of the corresponding incentives on the basis of the approval document.

实务提示 / Practical Note：对于矿业、油气等战略性行业，《投资法典》仅作原则性规定，具体准入与监管以《矿业法典》《矿业条例》及行业特别法为准。投资架构搭建与优惠申请须先识别行业归属，再选择适用法律依据。

Practical note: For strategic sectors such as mining and oil & gas, the Investment Code contains only general provisions; specific admission and supervision are governed by the Mining Code, the Mining Regulation and other sector-specific laws. Investment structuring and incentive applications should identify the sector first and then select the applicable legal basis.

二、矿业监管与矿业外资准入制度Mining Regulation & FDI Access

刚果（金）矿业法律体系以 2018 年《矿业法典》为核心，辅以配套《矿业条例》实施细则，并与环境保护、税收、外汇管理及投资促进等法律共同构成矿业全生命周期监管框架。

The DRC mining-law system is anchored in the 2018 Mining Code, supplemented by the implementing Mining Regulation, and operates together with environmental-protection, tax, foreign-exchange and investment-promotion laws to form a full life-cycle regulatory framework for mining.

（一）矿业监管体系与机构Regulatory Architecture & Institutions

刚果（金）矿业监管由多部门分工协作，主要机构及职责如下：

DRC mining supervision is shared across multiple agencies. The principal bodies and their responsibilities are:

监管机构 Regulator	主要职责 Main Responsibilities
矿业部（Ministry of Mining）	负责制定和执行国家矿业政策，监督矿业法律法规实施等方面的总体管理 Overall administration responsible for formulating and implementing national mining policies, supervising the enforcement of mining laws and regulations, and other related work
矿业登记管理局（CAMI）	负责矿业权"从申请到注销"的全生命周期行政管理 Be responsible for the full-life-cycle administrative management of mining rights "from application to cancellation"
矿业环境保护部门（DPEM）	侧重矿业领域环境技术审查、监督和矿业环境义务执行管理 Focus on environmental technical review, supervision and implementation management of mining environmental obligations in the mining sector
战略矿产市场监管局（ARECOMS）	负责对战略矿产的市场交易、商业流通及价格机制进行监管 Responsible for supervising the market transactions, commercial circulation and pricing mechanisms of strategic minerals

???? 注：监管职能由矿业部统筹，并经 CAMI、DPEM、ARECOMS 等专业机构分工执行。

???? Note: Regulatory functions are coordinated by the Ministry of Mines, executed through specialised bodies including CAMI (cadastre), DPEM (mining environment) and ARECOMS (strategic-minerals market oversight).

（二）矿业许可制度与外国投资准入Mining Licensing & FDI Access

矿业许可是矿业权取得与项目落地的核心环节。根据《矿业法典》，主要矿权类型及外资准入情况如下：

Mining titles are the cornerstone of tenure acquisition and project deployment. Under the Mining Code, the principal title types and their FDI access status are:

矿业权类型 Mining Title	外资准入情况 FDI Access
勘查许可证（Exploration License）	允许（ Allowed)
采矿许可证(Mining License)	允许 (Allowed)
小规模采矿许可证(Small-Scale Mining License)	允许 (Allowed)
手工采矿许可证(Artisanal Mining License)	仅限刚果（金）籍成年自然人通过经批准的矿业合作社持有 Only adult natural persons holding Congolese (DRC) nationality may hold shares through approved mining cooperatives
尾矿开采许可证(Tailings Mining License)	允许 (Allowed)

准入提示 / Access Note：手工采矿许可证仅限刚果（金）籍自然人通过合作社持有，外资不得直接申领。外资矿业企业应通过勘查/采矿/小规模/尾矿等许可证类型开展业务。Hand-mining permits may only be held by Congolese (DRC) natural persons through cooperatives, and foreign investors are not allowed to apply directly. Foreign mining enterprises shall conduct their operations via permits of exploration, mining, small-scale mining, tailings and other types.

总体上，刚果（金）的矿业领域允许外资进入，而且外国资本是刚果（金）矿业开发的重要主体。目前中国企业、加拿大企业、澳大利亚企业、南非企业、瑞士企业均大量参与刚果（金）矿业开发。

In general, the mining sector in the DRC is open to foreign capital, and foreign investors constitute a major player in mining development. Chinese, Canadian, Australian, South African and Swiss companies are all extensively involved in DRC mining projects.

三、矿业投资相关合规制度Compliance Requirements for Mining Investment

除矿业许可和外资准入之外，矿业投资者在刚果（金）开展业务还需重点关注环境保护、税费、本地化与社区发展、外汇管理等核心合规事项。以下分项梳理。

Beyond mining titles and FDI admission, mining investors operating in the DRC must focus on key compliance areas — environmental protection, taxation, localisation and community development, and foreign-exchange management. Each is addressed in turn below.

（一）环境保护合规制度Environmental Compliance

刚果（金）对矿业活动实行严格的环境保护监管制度。根据《矿业法典》及《矿业条例》的规定，矿业权人在勘查、建设、开采、矿石加工及矿山关闭全过程中，均负有环境保护义务。

The DRC applies a strict environmental-protection regime to mining activities. Under the Mining Code and its implementing regulation, titleholders bear environmental obligations throughout the exploration, construction, production, ore processing and mine closure stages.

在开展矿业勘查前，矿业权申请人必须编制环境减排与修复计划（PAR），以获得相应的环境合格证书。

Before exploration, applicants must prepare a Environmental Rehabilitation and Remediation Plan (PAR) as a precondition to obtaining the relevant environmental compliance certificate.

在矿业权申请阶段，矿业项目申请人必须提交环境与社会影响评价报告（EIES）以及环境与社会管理计划（PGES），以获得相应的环境证书。

At the title-application stage, applicants must submit an Environmental and Social Impact Assessment (EIES) together with an Environmental and Social Management Plan (PGES) to obtain the corresponding environmental certificate.

在矿山运营阶段，矿业企业必须按照经批准的环境管理方案开展生产活动，并持续履行污染防治、生态保护、土地恢复及矿山关闭治理等义务，拒不履行或违规情节严重的，可能面临罚款、停产整顿、强制环境修复、司法诉讼等后果。

During operations, mining companies must carry out production in accordance with the approved environmental management plan and continuously perform pollution control, ecological protection, land rehabilitation and mine-closure obligations. Failure to comply — or serious non-compliance — may trigger fines, production suspension, mandatory remediation, and judicial proceedings.

环评要点 / EIA Essentials：

勘查前：环境减排与修复计划（PAR）
Pre-exploration: PAR
申请矿权：环境与社会影响评价（EIES）+ 环境与社会管理计划（PGES）
Title application: EIES + PGES
运营阶段：持续履行污染防治、土地恢复、闭坑治理义务
Operations: continuous pollution control, rehabilitation, closure obligations

（二）矿业税费制度Mining Tax & Royalty Regime

总体来看，刚果（金）矿业税费体系已由早期鼓励投资导向逐步转向资源收益分享导向。对于中资企业而言，在项目投资、并购及融资阶段，应重点关注矿产品分类、战略矿产认定、特许权使用费计算基础以及超额利润税适用条件，提前开展税务筹划和财务测算，降低项目运营期间的合规风险和税务成本。

Overall, the DRC's mining-tax regime has shifted from an early investment-incentive orientation towards a resource-revenue-sharing orientation. Chinese investors should — at the investment, M&A and financing stages — pay close attention to mineral classification, strategic-mineral designation, the basis for royalty calculation, and the conditions for application of the super- Profits tax. Early tax planning and financial modelling are essential to mitigate compliance risk and tax cost over the operating life.

矿业领域核心税费种类及税率/费率如下：

The core taxes, royalties and rates applicable to mining are:

税费种类 Tax / Royalty	税率 / 费率 Rate
企业所得税(Corporate Income Tax)	30%（适用矿业企业） 30% (Applicable to mining enterprises) 30% (Applicable to mining enterprises)
超额利润税(Windfall profits tax)	固定税率 50% (Fixed tax rate of 50%)
矿业特许权使用费（资源税） Mining Royalty (Resource Tax)	铁及铁质金属：1%；普通有色金属（铜等）：3.5%；战略矿产（钴等）：10% Iron and ferrous metals: 1%; Common non-ferrous metals (copper, etc.): 3.5%; Strategic minerals (cobalt, etc.): 10%
矿业权面积税（地表税） Mining Right Area Tax (Surface Tax)	按矿权类型、占地面积、持有年限分档征收 Levy fees by tiers based on mineral right type, land area occupied and holding term
矿权 / 股权转让溢价税 Tax on premium from mining right/equity transfer	矿权出售、矿业企业股权 / 资产并购产生的溢价，需单独计入所得税税基计税 Premiums generated from the sale of mining rights and the equity/asset mergers and acquisitions of mining enterprises shall be separately included in the tax base for income tax calculation.

税费种类

Tax / Royalty

税率 / 费率

Rate

企业所得税(Corporate Income Tax)

30%（适用矿业企业）

30% (Applicable to mining enterprises)

超额利润税(Windfall profits tax)

固定税率 50%

(Fixed tax rate of 50%)

矿业特许权使用费（资源税）

Mining Royalty (Resource Tax)

铁及铁质金属：1%；普通有色金属（铜等）：3.5%；战略矿产（钴等）：10%

Iron and ferrous metals: 1%; Common non-ferrous metals (copper, etc.): 3.5%; Strategic minerals (cobalt, etc.): 10%

矿业权面积税（地表税）

Mining Right Area Tax (Surface Tax)

按矿权类型、占地面积、持有年限分档征收

Levy fees by tiers based on mineral right type, land area occupied and holding term

矿权 / 股权转让溢价税

Tax on premium from mining right/equity transfer

矿权出售、矿业企业股权 / 资产并购产生的溢价，需单独计入所得税税基计税

Premiums generated from the sale of mining rights and the equity/asset mergers and acquisitions of mining enterprises shall be separately included in the tax base for income tax calculation.

税负关注点 / Tax-Focus Points：

特许权使用费按矿种分档：战略矿产 10%、普通有色金属 3.5%、铁及铁质金属 1%，矿种认定直接影响税负；
Royalties vary by mineral — strategic 10%, base metals 3.5%, iron & ferrous 1%. Mineral classification directly drives the royalty burden.
超额利润税固定税率 50%，涉及超额利润触发条件与计算口径；
Super-profits tax carries a flat 50% rate; trigger thresholds and calculation bases matter.
矿权 / 股权转让溢价须单独计入所得税税基，并购交易须专门测算溢价税负担；
Premia from title/equity transfers must be separately added to the corporate-income-tax base; model premium tax in M&A.

（三）本地化要求与社区发展制度Localisation & Community Development

1、股权结构本地化：
采矿项目申领许可/矿权转让时，必须无偿向政府出让 10% 不可稀释国有干股，采矿许可证每续期 1 次向政府额外转让 5% 的股权。同时，刚果（金）籍自然人必须在矿业公司中持有至少 10% 的股份。

1. Equity localisation:
Upon grant of a mining title or transfer of an existing one, the holder must transfer to the State 10% of the equity as a free, non-dilutable interest. Each renewal of the mining licence triggers an additional transfer of 5% of the equity to the State. In addition, natural persons of Congolese nationality must hold at least 10% of the shares in the mining company.

人力资源用工本地化：
矿业权人应优先雇佣具备相应资格的刚果籍人员，并制定员工培训和技能提升计划，应根据项目运营阶段逐步提高本地员工在管理、技术及生产岗位中的比例。

Employment localisation:
Titleholders must prioritise hiring qualified Congolese nationals, formulate staff-training and skill-upgrading plans, and progressively increase the share of local employees in management, technical and production positions as the project advances through its operating phases.

分包业务本地化：
为矿业公司提供服务的分包商，必须是依据刚果（金）法律设立、由刚果（金）籍自然人持股 ≥ 51% 的本地企业。

Sub-contracting localisation:
Any sub-contractor providing services to a mining company must be a locally-incorporated entity under DRC law, with at least 51% of its equity held by natural persons of Congolese nationality.

4、社区与属地化发展义务：
采矿权持有人，自其采矿权颁发之日起，最迟在开工前六个月内，须制定并与项目所在地社区签署社会责任书，明确其对受采矿活动影响的当地社区的社会责任。企业还须按照法律规定向社区发展基金缴纳不低于年度营业额 0.3% 的资金，专项用于矿区周边道路、医疗、教育等民生项目。

4. Community & territorial development obligation:
Within six months before commencement of operations (and in any event no later than from the date of title issuance), the mining-title holder must prepare and execute a Social Responsibility Agreement with the local project-area community, specifying its obligations to communities affected by mining activities. The company must also contribute no less than 0.3% of annual turnover to a Community Development Fund for the exclusive benefit of neighbourhood projects — roads, healthcare and education — around the mining area.

本地化合规速查 / Localisation Compliance Checklist：

???? 政府 10% 不可稀释干股 + 续期每次再 5%（永久递增）；
State free carry 10% non-dilutable, +5% per renewal (cumulative).
???? 刚果（金）籍自然人持股 ≥ 10%；
≥10% Congolese natural-person shareholding.
???? 分包商须为 本地持股 ≥ 51% 的刚果法人；
Sub-contractors must be locally incorporated with ≥51% Congolese natural-person equity.
???? 开工前 6 个月内签署社会责任书；
Social Responsibility Agreement signed within 6 months pre-operation.
???? ≥ 0.3% 年度营业额缴入社区发展基金；
≥0.3% of annual turnover to the Community Development Fund.

（四）外汇管理与利润汇回制度Foreign-Exchange Control & Repatriation

刚果（金）对矿业领域实行特殊外汇监管制度，在保障外国投资者合法收益汇出的同时，对矿产品出口收入、外汇账户管理等实施严格监管。

The DRC applies a special foreign-exchange regulatory regime to mining. While safeguarding the legitimate repatriation of foreign-investor proceeds, the regime strictly supervises mineral-export receipts and foreign-exchange account management.

1. 矿产品出口收入管理：矿业产品出口所得外汇收入原则上应在货物出口后的规定期限内收回。2018 年修订后的规定将该期限调整为自货物离开刚果（金）领土或相关装运节点起 45 个日历日内完成外汇收入收取。

1. Mineral-export receipt management: Foreign-exchange proceeds from mineral exports must in principle be collected within a prescribed period after the goods leave the country. The 2018 amendment sets this period at 45 calendar days from the date the goods leave DRC territory or the relevant shipment point.

2. 出口收入汇回比例：处于投资回收阶段的矿业企业，可将不超过 40% 的出口销售收入留存在境外主要账户或债务服务账户中，用于偿还境外融资本金、利息及相关费用；其余 60% 的出口收入须在收到境外账户款项后 15 日内汇入刚果（金）境内主要账户，用于居民利益的开支。

2. Export-revenue repatriation ratio: Mining companies in the investment-recovery phase may retain up to 40% of export sales proceeds in offshore main or debt-service accounts for servicing offshore financing principal, interest and related fees. The remaining 60% must be remitted within 15 days of receipt into the company's onshore main account in the DRC, for use on resident-benefit expenditure.

外汇合规要点 / FX Compliance Essentials：

???? 出口外汇须在货物离境后 45 日内收回；
Export FX to be collected within 45 days of shipment.
???? 投资回收阶段可境外留存 ≤ 40%，用于偿还境外融资本息；
During investment-recovery: up to 40% may be retained offshore for debt service.
???? 其余 60% 须在收到境外款项后 15 日内汇回境内；
The remaining 60% must be repatriated onshore within 15 days of receipt offshore.

结语Closing

总体来看，刚果（金）凭借其在全球关键矿产供应链中的核心地位，持续吸引国际资本进入矿业领域，但其投资环境已明显从"资源驱动型开放"转向"资源主权强化下的强监管模式"。特别是 2025 年以来，围绕钴等战略矿产实施的出口配额、价格干预及国家储备机制，进一步凸显出矿业政策的高度主动性与不确定性。

Overall, leveraging its pivotal position in global critical-mineral supply chains, the DRC continues to attract international capital into its mining sector. Yet its investment environment has clearly shifted from "resource-driven openness" to a "strong-regulatory model under reinforced resource sovereignty". In particular, since 2025, export quotas, price interventions and the national strategic-reserve mechanism surrounding cobalt and other strategic minerals have further underscored the high assertiveness and uncertainty of mining policy.

对于外国投资者而言，刚果（金）矿业项目的核心挑战也转向制度适应能力的竞争：一方面需要应对矿业许可、税费及外汇监管等硬性制度约束；另一方面亦需在本地化用工、供应链分包、社区发展及环境治理等方面构建长期合规体系。在政策干预常态化与监管多部门联动强化的背景下，任何单一环节的合规缺失，都可能对项目的稳定运营与现金流安全产生放大效应。因此，在进入刚果（金）矿业市场时，投资者应将法律尽调与商业可行性评估同步前置，从而在高波动的制度环境中提升项目的抗风险能力与长期可持续性。

For foreign investors, the core challenge in DRC mining projects has shifted to a contest of institutional adaptability: on one hand, coping with the hard constraints of mining licensing, taxation and foreign-exchange regulation; on the other, building long-term compliance systems covering localised employment, supply-chain sub-contracting, community development and environmental governance. Against a backdrop of normalised policy intervention and multi-agency enforcement, any single compliance gap can have an amplified impact on stable operations and cash-flow security. Accordingly, when entering the DRC mining market, investors should front-load legal due diligence in parallel with commercial-feasibility assessment to enhance resilience and long-term sustainability in a highly volatile institutional environment.

中资矿业企业"出海"建议 / Recommendations for Chinese Miners Going Overseas：

???? 法律尽调前置：项目级法律、税务、矿权稳定性尽调与商业可行性同步开展；
Front-load legal DD: project-level legal/tax/tenure-stability diligence in parallel with commercial feasibility.
???? 协议稳定化：争取通过《采矿公约》锁定关键税费与稳定性条款；
Stabilisation via Mining Convention to lock key fiscal and stabilisation terms.
???? 本地化合规体系：本地化用工、采购、ESG 与社区关系管理机制；
Build localisation: labour, procurement, ESG and community-relations mechanisms.
???? 外汇与资金管理：设立多层外汇风险预警，提前规划利润汇出与资金回流路径；
Multi-layer FX-risk alerts and pre-planned profit-repatriation / capital-flow routes.
???? 争议解决与退出机制：在股东协议及《采矿公约》中预先设计仲裁条款（如 ICC / ICSID）与有序退出机制。
Pre-engineer ICC / ICSID arbitration and orderly-exit clauses in SHA & Mining Convention.