自然资源领域矿山安全生产职责边界划分现状、存在问题及建议

    Current situation, existing problems and suggestions of the boundary demarcation of mine safety production responsibilities in the field of natural resources

    • 摘要: 为摸清自然资源领域矿山安全生产职责边界及存在问题,不断完善安全生产管理体制机制,笔者主要通过参加国务院安全生产委员会办公室综合检查组、自然资源部安全生产督导检查、召开专家咨询会等方式,收集整理相关第一手资料,以大量实地调研和实证研究为主,首次系统开展自然资源领域矿山安全生产责任边界和职责划分研究,并对相关部委及河北、山西、内蒙古等25个省(区、市)和新疆生产建设兵团的矿山安全生产职责进行对比分析,得出如下认识:自然资源部属于对安全生产负有管理责任的主管部门,矿产资源管理的核心是科学配置资源,促进矿产资源的合理开发利用;《中华人民共和国矿产资源法》《中华人民共和国矿山安全法》等法律法规均没有明确煤矿、非煤矿山安全生产的行业主管部门;按照各部委“三定规定”,工业和信息化部、国家能源局理应分别是煤矿和非煤矿山安全生产的行业主管部门,但各省(区、市)煤矿和非煤矿山的安全生产行业监管部门差别较大,尤其是非煤矿山,全国仅河北、山西两省的自然资源部门被指定为非煤矿山的行业主管部门,是否合适,值得商榷;应急管理部门与自然资源部门在闭库尾矿库安全隐患核查、治理验收等安全生产监管责任主体不够明确,销号尾矿库是否纳入地质灾害范畴存在争议;历史遗留形成的无主矿山废弃矿井,监管责任主体不够明确,易造成监管缺位。据此,提出如下建议:一是强化安全生产的顶层设计,建议从法律法规层面明确各部委之间矿山安全生产监管责任边界,明确煤矿和非煤矿山安全生产的行业主管部门;二是强化矿产资源开采方案的宏观指导作用,科学配置资源,依法科学合理设置矿业权是自然资源部门矿产资源管理的核心职责;三是进一步加强自然资源部门与应急管理等矿山安全生产监管部门之间工作协调联动机制。

       

      Abstract: In order to find out the boundaries and existing problems of mine safety production responsibilities in the field of natural resources, and continuously improve the safety production management system and mechanism, the author mainly collects and organizes relevant first-hand information by participating in the comprehensive inspection team of the Office of State Council Work Safety Committee, the supervision and inspection of work safety by the Ministry of Natural Resources, and holding expert consultation meetings. Based on a large number of field research and empirical research, this paper systematically carries out the research on the boundary and division of mine safety production responsibilities in the field of natural resources for the first time, compares and analyzes the mine safety production responsibilities of relevant ministries and commissions, 25 provinces (autonomous regions and municipalities) including Hebei, Shanxi, Inner Mongolia, etc, and the Xinjiang Production and Construction Corps, and draws the following understandings. The Ministry of Natural Resources is the administrative department responsible for managing safety production. The core of mineral resource management is the scientific allocation of resources and the promotion of rational development and utilization of mineral resources. The laws and regulations such as the Mineral Resources Law of the People’s Republic of China and the Mining Safety Law of the People’s Republic of China do not specify the industry regulatory authorities for coal mine and non-coal mine safety production. According to the “the three-dimensional regulations” of various ministries and commissions, the Ministry of Industry and Information Technology and the National Energy Administration should be the industry regulatory authorities in charge of coal mines and non-coal mines safety production responsibilities, but the supervision departments of safety production industry of coal mines and non-coal mines in various provinces (autonomous regions and municipalities) are quite different, especially for non-coal mines, and only the natural resources departments of Hebei and Shanxi provinces are designated as the industry regulatory authorities of non-coal mines, which is appropriate and debatable. The emergency management and natural resources departments are not clear enough in the safety production supervision responsibility such as the verification of potential safety hazards and the acceptance of closed tailings ponds, and there are disputes over whether the sales tailings ponds are included in the category of geological disasters. Abandoned mines without owners formed by historical legacies have unclear regulatory responsibilities, which can easily lead to a lack of supervision. The following suggestions are put forward: firstly, to strengthen the top-level design of safety production, and it is recommended to clarify the boundary of mine safety production supervision responsibilities between ministries and commissions from the level of laws and regulations, and clarify the industry authorities in charge of coal mine and non-coal mine safety production; secondly, to strengthen the macro guiding role of the mineral resources exploitation program, scientifically allocate resources, and scientifically and reasonably set up mining rights in accordance with the law is the core responsibility of the mineral resources management of the natural resources department; thirdly, to further strengthen the coordination and linkage mechanism between the natural resources department and the emergency management and other mine safety production supervision departments.

       

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