本文關(guān)鍵詞： 高潛水位礦區(qū) 煤糧復(fù)合區(qū) 采煤塌陷 報(bào)損核減　出處：《中國礦業(yè)大學(xué)(北京)》2017年博士論文　論文類型：學(xué)位論文

【摘要】：我國擁有豐富的煤炭資源,煤炭是占總儲(chǔ)量98%以上的能源資源,同時(shí)我國也是世界上第一煤炭生產(chǎn)國和煤炭消費(fèi)大國,原煤在一次能源生產(chǎn)總量中所占的比例保持在70%以上。然而隨著煤炭產(chǎn)量持續(xù)提高,煤炭開采中出現(xiàn)了礦區(qū)生態(tài)環(huán)境問題日益嚴(yán)峻、煤糧復(fù)合區(qū)耕地受損嚴(yán)重、高潛水位采煤塌陷地復(fù)墾難度大、地方政府耕地保護(hù)壓力巨大等一系列問題。目前,我國尚且缺乏高潛水位采煤塌陷耕地報(bào)損的研究和相關(guān)政策,由于各地區(qū)都有嚴(yán)格的耕地保護(hù)指標(biāo),當(dāng)?shù)卣疄榱送瓿芍笜?biāo),對于已經(jīng)毀損需要核減的耕地,并沒有上報(bào)核減和變更用途,導(dǎo)致了大部分礦區(qū)耕地的“圖、文、現(xiàn)場”的不符,嚴(yán)重影響了國家實(shí)時(shí)掌握耕地變更情況。人地之間、地礦之間、礦農(nóng)之間矛盾重重,影響礦區(qū)社會(huì)安定,制約地礦統(tǒng)籌發(fā)展,出臺(tái)耕地報(bào)損核減政策勢在必行。本研究在廣泛文獻(xiàn)查閱與大量資料收集分析的基礎(chǔ)上,以高潛水位礦區(qū)采煤塌陷耕地為研究對象,采用定性和定量相結(jié)合的分析方法,通過大量研究和分析現(xiàn)有政策,發(fā)現(xiàn)其存在的不足,闡述耕地報(bào)損的必然性,并對耕地核減標(biāo)準(zhǔn)進(jìn)行認(rèn)定。進(jìn)一步設(shè)計(jì)采煤塌陷耕地報(bào)損的政策內(nèi)容和制定方法;明確采煤塌陷耕地報(bào)損的審批辦法和程序;制定采煤塌陷耕地報(bào)損的相關(guān)規(guī)范。本文探討了高潛水位地區(qū)因井工開采煤礦導(dǎo)致的耕地破損情況和本區(qū)域煤糧復(fù)合現(xiàn)狀,整理分析了采煤塌陷區(qū)的相關(guān)耕地保護(hù)政策,尤其是積水嚴(yán)重的區(qū)域例如山東省、安徽省、和江蘇省等,并就當(dāng)前存在的問題進(jìn)行了分析和研究;明確塌陷地報(bào)損核減政策的內(nèi)涵,明確規(guī)定了采煤塌陷耕地報(bào)損的不同對象,確定了耕地非完全交付情況下,塌陷區(qū)不同復(fù)墾狀態(tài)的報(bào)損原則。從政府、煤炭企業(yè)和失地農(nóng)民三個(gè)方面分析了高潛水位礦區(qū)采煤塌陷耕地報(bào)損工作的必要性;比照災(zāi)毀耕地相關(guān)政策和生態(tài)退耕還林還草還湖政策,以現(xiàn)有相關(guān)法律政策的運(yùn)行效果和執(zhí)行情況為基礎(chǔ)參考,制定出符合高潛水位礦區(qū)耕地報(bào)損政策。著重介紹政策設(shè)計(jì)的依據(jù)和原則、政策設(shè)計(jì)的流程、以及政策設(shè)計(jì)的內(nèi)容;分析塌陷地報(bào)損核減政策的審批制度,從政策審批的運(yùn)行機(jī)制(審批流程、權(quán)限和核減方式)、審批所需報(bào)備的材料、審批所遵循的原則和標(biāo)準(zhǔn)三個(gè)方面進(jìn)行闡述,另外為了滿足管理部門對煤礦區(qū)耕地管理、據(jù)實(shí)報(bào)損和審批的需要,創(chuàng)新性提出關(guān)于報(bào)損核減審批信息化建設(shè)的建議,為政策的順利的實(shí)行提供技術(shù)保障;明確高潛水位礦區(qū)耕地報(bào)損核減政策監(jiān)管的依據(jù)和原因,并分析了相關(guān)采煤沉陷耕地核減監(jiān)管部門的組成結(jié)構(gòu),就實(shí)際操作過程中可能存在的違法違紀(jì)問題進(jìn)行了詳細(xì)的闡述,從過度核減和補(bǔ)償費(fèi)用分配兩個(gè)問題上闡述了政策監(jiān)管的主要內(nèi)容和責(zé)任追究方式。通過對具體內(nèi)容的研究,得出主要成果如下:(1)目前現(xiàn)行用地存在報(bào)損核減無渠道,耕地保護(hù)壓力巨大;不完全征收補(bǔ)償方式,無法解決失地農(nóng)民社會(huì)保障問題;多重稅費(fèi)負(fù)擔(dān)重,煤礦企業(yè)資金壓力大。(2)報(bào)損核減政策作用于確實(shí)無法恢復(fù)糧食生產(chǎn)能力而復(fù)墾為非耕農(nóng)用地的采煤塌陷穩(wěn)沉耕地和目前已經(jīng)達(dá)到穩(wěn)沉條件而未進(jìn)行復(fù)墾治理。(3)報(bào)損核減政策設(shè)計(jì)借鑒災(zāi)毀耕地政策和生態(tài)退耕政策,設(shè)計(jì)明確盡可能保護(hù)耕地原則和兼顧政府、礦山企業(yè)和失地農(nóng)民三方利益原則,以劃分耕地?fù)p害等級和確定塌陷耕地報(bào)損范圍進(jìn)行報(bào)損耕地認(rèn)定;通過自下而上的層層申報(bào)和專家審核,以及自上而下的分批逐級核減、分年度核減和一次性完全核減相結(jié)合的方式,從國家宏觀層面整體核減采煤沉陷區(qū)耕地保有量指標(biāo);政府和企業(yè)層面進(jìn)行報(bào)損政策補(bǔ)償;“占補(bǔ)平衡”新舉措保障報(bào)損耕地平衡;針對過度核減和補(bǔ)償費(fèi)分配不合理兩大問題進(jìn)行報(bào)損政策監(jiān)管為主要內(nèi)容。(4)報(bào)損核減的審批應(yīng)從國家層面加強(qiáng)對規(guī)劃和計(jì)劃的宏觀管理和調(diào)控,并充分放權(quán)給地方政府,依賴于信息化手段由地方政府收集報(bào)備材料層層申報(bào),以及自上而下的分批逐級核減、分年度核減和一次性完全核減相結(jié)合;對今后產(chǎn)生的采煤沉陷地,地方政府提供煤炭開采計(jì)劃和采煤塌陷地預(yù)測結(jié)果,經(jīng)專家論證后由國家根據(jù)土地利用規(guī)劃制定出采煤塌陷耕地核減的年度計(jì)劃,并將耕地核減指標(biāo)逐層下達(dá)到各地方政府,地方相關(guān)部門逐年逐次有計(jì)劃地進(jìn)行土地利用變更和調(diào)整。(5)通過健全監(jiān)管機(jī)構(gòu)、完善部門協(xié)作和優(yōu)化監(jiān)管結(jié)構(gòu)來強(qiáng)化監(jiān)管部門的職能,對過度核減和補(bǔ)償費(fèi)用違法分配使用進(jìn)行責(zé)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.

【學(xué)位授予單位】：中國礦業(yè)大學(xué)(北京)
【學(xué)位級別】：博士
【學(xué)位授予年份】：2017
【分類號】：F323.211;TD88

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