高潜水位采煤沉陷耕地报损核减标准与制度设计

发布时间：2018-01-29 13:17

本文关键词： 高潜水位矿区煤粮复合区采煤塌陷报损核减　出处：《中国矿业大学(北京)》2017年博士论文　论文类型：学位论文

【摘要】：我国拥有丰富的煤炭资源,煤炭是占总储量98%以上的能源资源,同时我国也是世界上第一煤炭生产国和煤炭消费大国,原煤在一次能源生产总量中所占的比例保持在70%以上。然而随着煤炭产量持续提高,煤炭开采中出现了矿区生态环境问题日益严峻、煤粮复合区耕地受损严重、高潜水位采煤塌陷地复垦难度大、地方政府耕地保护压力巨大等一系列问题。目前,我国尚且缺乏高潜水位采煤塌陷耕地报损的研究和相关政策,由于各地区都有严格的耕地保护指标,当地政府为了完成指标,对于已经毁损需要核减的耕地,并没有上报核减和变更用途,导致了大部分矿区耕地的“图、文、现场”的不符,严重影响了国家实时掌握耕地变更情况。人地之间、地矿之间、矿农之间矛盾重重,影响矿区社会安定,制约地矿统筹发展,出台耕地报损核减政策势在必行。本研究在广泛文献查阅与大量资料收集分析的基础上,以高潜水位矿区采煤塌陷耕地为研究对象,采用定性和定量相结合的分析方法,通过大量研究和分析现有政策,发现其存在的不足,阐述耕地报损的必然性,并对耕地核减标准进行认定。进一步设计采煤塌陷耕地报损的政策内容和制定方法;明确采煤塌陷耕地报损的审批办法和程序;制定采煤塌陷耕地报损的相关规范。本文探讨了高潜水位地区因井工开采煤矿导致的耕地破损情况和本区域煤粮复合现状,整理分析了采煤塌陷区的相关耕地保护政策,尤其是积水严重的区域例如山东省、安徽省、和江苏省等,并就当前存在的问题进行了分析和研究;明确塌陷地报损核减政策的内涵,明确规定了采煤塌陷耕地报损的不同对象,确定了耕地非完全交付情况下,塌陷区不同复垦状态的报损原则。从政府、煤炭企业和失地农民三个方面分析了高潜水位矿区采煤塌陷耕地报损工作的必要性;比照灾毁耕地相关政策和生态退耕还林还草还湖政策,以现有相关法律政策的运行效果和执行情况为基础参考,制定出符合高潜水位矿区耕地报损政策。着重介绍政策设计的依据和原则、政策设计的流程、以及政策设计的内容;分析塌陷地报损核减政策的审批制度,从政策审批的运行机制(审批流程、权限和核减方式)、审批所需报备的材料、审批所遵循的原则和标准三个方面进行阐述,另外为了满足管理部门对煤矿区耕地管理、据实报损和审批的需要,创新性提出关于报损核减审批信息化建设的建议,为政策的顺利的实行提供技术保障;明确高潜水位矿区耕地报损核减政策监管的依据和原因,并分析了相关采煤沉陷耕地核减监管部门的组成结构,就实际操作过程中可能存在的违法违纪问题进行了详细的阐述,从过度核减和补偿费用分配两个问题上阐述了政策监管的主要内容和责任追究方式。通过对具体内容的研究,得出主要成果如下:(1)目前现行用地存在报损核减无渠道,耕地保护压力巨大;不完全征收补偿方式,无法解决失地农民社会保障问题;多重税费负担重,煤矿企业资金压力大。(2)报损核减政策作用于确实无法恢复粮食生产能力而复垦为非耕农用地的采煤塌陷稳沉耕地和目前已经达到稳沉条件而未进行复垦治理。(3)报损核减政策设计借鉴灾毁耕地政策和生态退耕政策,设计明确尽可能保护耕地原则和兼顾政府、矿山企业和失地农民三方利益原则,以划分耕地损害等级和确定塌陷耕地报损范围进行报损耕地认定;通过自下而上的层层申报和专家审核,以及自上而下的分批逐级核减、分年度核减和一次性完全核减相结合的方式,从国家宏观层面整体核减采煤沉陷区耕地保有量指标;政府和企业层面进行报损政策补偿;“占补平衡”新举措保障报损耕地平衡;针对过度核减和补偿费分配不合理两大问题进行报损政策监管为主要内容。(4)报损核减的审批应从国家层面加强对规划和计划的宏观管理和调控,并充分放权给地方政府,依赖于信息化手段由地方政府收集报备材料层层申报,以及自上而下的分批逐级核减、分年度核减和一次性完全核减相结合;对今后产生的采煤沉陷地,地方政府提供煤炭开采计划和采煤塌陷地预测结果,经专家论证后由国家根据土地利用规划制定出采煤塌陷耕地核减的年度计划,并将耕地核减指标逐层下达到各地方政府,地方相关部门逐年逐次有计划地进行土地利用变更和调整。(5)通过健全监管机构、完善部门协作和优化监管结构来强化监管部门的职能,对过度核减和补偿费用违法分配使用进行责任追究。
[Abstract]:China has abundant coal resources, coal accounted for more than 98% of the total reserves of energy resources, while China is the world's first coal production and coal consumption, coal accounts for the total primary energy production in the proportion remained above 70%. However, with the coal production continued to improve, in the coal mining occurred the mining area ecological environment problem is becoming increasingly serious, coal grain complex area of farmland damaged, high groundwater level coal mining subsidence land reclamation is difficult, the enormous pressure of local government land protection and a series of problems. At present, our country is lack of research on coal mining subsidence land loss of the high dive and related policies, because all farmland protection indicators strictly in different areas, the local government in order to complete the index, the need to subtract the arable land has been damaged, and no reported reduction and use change, lead to the majority of mining area farmland "map, the scene" Not, seriously affected the country's arable land change. Between the real-time control and between people and land, mining and agriculture, between the contradictions, affect social stability and control area, overall development, the introduction of land loss reduction policy is imperative. This research in a wide range of consulting documents and information collected on the basis of the analysis, with high groundwater level in mining area coal mining subsidence land as the research object, analysis using qualitative and quantitative methods, through a lot of research and analysis of existing policies, finding out the existing problems, the necessity of this land loss, and the reduction of arable land nuclear standard. The content of the policy of further design of coal mining subsidence land loss and make clear the mining method; subsidence land loss of the measures for the examination and approval of the establishment of related specifications and procedures; mining subsidence farmland loss. This paper discusses the Gao Qian water area due to underground coal mine caused by land The damage state and the regional coal grain complex situation, analyzed the related policies of cultivated land protection in coal mining subsidence area, especially the serious water area such as Shandong Province, Anhui province and Jiangsu Province, and analyzes and studies the current problems; the connotation of collapse loss reduction policy, clearly defined the different object of coal mining subsidence land loss, the farmland fully delivered in case the reported loss principle of subsidence area of different reclamation status. From the three aspects of the government, farmers and landless coal enterprises, analyzes the necessity of land subsidence in coal mining work loss high phreatic water level; according to the relevant policies and ecological disaster destroyed arable land forest and grass still lake policy to run the effect of the existing relevant laws and policies and the implementation of the basis of reference, to develop in line with high groundwater level in mining area of cultivated land loss policy focuses on policy design. The basis and principles, policy design, policy design and content; analysis of collapse loss reduction policy approval system, operating mechanism from the policy approval (approval process, authority and reduction), required for approval of the filing materials, the three aspects of principles and standards of approval described, in addition in order to meet the management of the land management of Coal Mine District, according to the reported loss and approval, put forward a reduction of reported loss examination informationization construction suggestions of innovation, to provide technical support for the smooth implementation of the policy; clear the high water level of cultivated land loss reduction policy and regulatory basis, and analyzes the structure of cultivated land reduction the relevant regulatory authorities of mining subsidence, it elaborates the actual operation of the law and discipline problems may exist in the process, from excessive reduction and compensation cost allocation on the two issues discussed The main contents and accountability of regulatory policy. Through the study of specific content, the main results are as follows: (1) the current land there is no channel loss reduction, the huge pressure of cultivated land protection; incomplete expropriation compensation method, can not solve the social security of landless peasants; multiple tax burden, the capital of coal enterprise pressure. (2) reported loss reduction policy does not effect on the recovery of grain production capacity for non coal mining and reclamation farming agricultural land subsidence and land subsidence has now reached the condition without reclamation collapse. (3) reported loss reduction policy design from disaster destroyed arable land policy and ecological restoration policy, clear design as far as possible the principle of protection of arable land and take into account the government, mining enterprises and farmers interests of the three parties principle, to determine the damage level of arable land and arable land subsidence land loss identified by self under reported loss range; While the layers of reporting and expert review, and top-down step by step reduction of annual reduction in batches, and completely reduced disposable combination, from the national macro level overall reduction of coal mining subsidence area of cultivated land; for the reported loss compensation policy of government and enterprise level; "balance" new initiatives to protect cultivated land loss balance; for excessive reduction and compensation unreasonable distribution of two big issues reported loss of policy regulation as the main content. (4) reported loss reduction of the approval of the national level should be to strengthen the macro management of planning and scheduling and control, and full power to the local government, rely on the means of information reported by the local government to collect material layers the declaration, as well as the top-down step by step reduction of annual reduction in batches, and the combination of one-time reduction completely; the future of coal mining subsidence land, the local government coal mining plan Planning and mining subsidence prediction results, by experts from countries according to land use planning to develop coal mining subsidence land reduced the annual plan, the cultivated land reduction index layer issued to the local governments, local authorities have planned year by year successive changes and adjustment of land use. (5) through sound regulatory bodies improve the Department collaboration and optimize the regulatory structure to strengthen the functions of the regulatory authority, the use of excessive reduction of accountability and compensation cost of illegal distribution.

【学位授予单位】：中国矿业大学(北京)
【学位级别】：博士
【学位授予年份】：2017
【分类号】：F323.211;TD88

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