矿业用地制度改革的法理基础与实现路径

doi:10.13776/j.cnki.resourcesindustries.20241120.003

摘要/Abstract

摘要： 为了在国务院“放管服”要求和自然资源部“两统一”职责指引下，深入推进矿业用地全生命周期管理制度改革研究，论文基于“改革逻辑—法理基础—技术路径”的研究框架，从矿业用地存量、增量和流量出发，剖析矿业用地制度改革面临的现实困境，进而运用法治思维厘清矿业用地制度改革的法理基础，最终基于系统观念探索矿业用地制度优化的方向和路径。研究结果表明：1）矿业用地存在存量违法用地较多、增量取得渠道减少、流量盘活难度较大三重困境；2）明确矿业用地概念外延十分必要，特别是采矿用地的概念范围应采用广义方式进行界定；3）协调处理矿业用地相关主体的权利义务关系，应从实体法和程序法两个方面厘清法理逻辑；4）矿业用地制度改革创新的技术路径设计应当注重系统性、整体性、协同性，从规划计划、审批取得、流转退出、监测监管的土地管理全生命周期入手。最后提出矿业用地制度改革的实现路径包括：提出强化规划对用地规模和布局的统筹、探索矿业用地计划指标单列与滚动使用制度、创新灵活多样的矿业用地取得方式、引导激励存量矿业用地退出实现土地增值、建立健全多部门协同推进矿业用地审批与监管工作机制等对策建议，从而为改进矿业用地管理制度、推进“净矿”出让改革提供参考。

关键词: 矿业用地, 改革逻辑, 法理基础, 技术路径, 系统观念

Abstract: In order to advance research on entire-life cycle system reform of mining land use, led by the State Council and the Ministry of Natural Resources, this paper, based on a research framework of “reform logic-jurisprudence-approaches”, analyzes the dilemma in mining land use reform from perspectives of mining land use stock, increment and transfer, legally clarifies the jurisprudence of mining land use system, and presents direction of and approaches to optimizing mining land use system. Mining land use is facing three plights in illegal land uses, reducing land increment and difficulties in activating land transfer. The external expansion of mining land use concept needs to be determined, especially on widely definition of mining land use ranges. Coordination of responsibilities and rights relating mining land uses needs to be determined from material laws and process jurisdiction. Technical approaches to reforming mining land use system should be systematical, entire and collaborative, starting with land administration entire life circle in planning, acquiring through approval, quitting through transfer, supervision. This paper puts forward suggestions on mining land use planning, on singling out and rolling mining land use, on diversifying acquisition of mining land use, on encouraging quitting of mining land stock to add land values, and on improving collaboration on mining land use permitting and supervision. This paper provides references for improving mining land use system and issuing “clean mining land use” transfer.

Key words: mining land use, reform logic, jurisprudence, technical approaches, system concept

中图分类号:

侯华丽, 张惠. 矿业用地制度改革的法理基础与实现路径[J]. 资源与产业, 2024, 26(6): 33-40.

HOU Huali, ZHANG Hui. JURISPRUDENCE OF AND APPROACH TO MINING LAND USE REFORM[J]. Resources & Industries, 2024, 26(6): 33-40.

参考文献

陈文韬, 禚传源, 陈莉, 等, 2022.矿业权“净矿”出让制度探索与实践研究: 以山东省为例[J].矿业研究与开发, 42(1): 193-198.〔CHEN W T, ZHUO C Y, CHEN L, et al.，2022. Exploration and practice research on the “net mine” transfer system of mining rights: taking Shandong province as an example[J].Mining Research and Development, 42(1): 193-198.〕

代亚婷, 王金满, 张雅馥, 2019. 基于博弈模型构建寻找采矿用地退出新途径[J].中国矿业, 28(11): 94-98.〔DAI Y T, WANG J M, ZHANG Y F, 2019. Constructing a new way of mining land withdrawal based on game model[J]. China Mining Magazine, 28(11): 94-98.〕

党新朋, 2010.地与矿的恩恩怨怨: 对当前矿业用地管理的思考[J].中国土地(10): 34-36.

邓元媛, 常江, 冯姗姗, 等, 2022.产权政策视角下废弃矿井采矿用地再开发模式研究[J].煤田地质与勘探, 52(4): 17-24.〔DENG Y Y, CHANG J, FENG S S, et al.，2022. Research on redevelopment model of abandoned mining land from the perspective of property right policy[J].Coal Geology & Exploration, 52(4): 17-24.〕

郭冬艳, 吴尚昆, 侯华丽, 2018. 以制度创新破解矿业用地难题[J].中国土地(3): 47-49.

黄胜开, 2017. 采矿用地取得法律制度研究[M].北京: 中国社会科学出版社.

蒋文翠, 杨继清, 彭尔瑞, 等, 2022. 矿山生态修复研究进展[J].矿业研究与开发, 42(4): 127-132.〔JIANG W C, YANG J Q, PENG E R, et al.，2022. Research progress of mine ecological restoration[J]. Mining Research and Development, 42(4): 127-132.〕

李超峰, 2012. 论我国矿业用地存在的问题及对策:以辽宁省为例[J].中国矿业, 21(9): 1-4.〔LI C F, 2012. Research on problems of mining land: as a case study of Liaoning province[J].China Mining Magazine, 21(9): 1-4.〕

李伟, 2018. 矿业用地与城镇生态用地管理制度研究[M].北京: 中国大地出版社.

李新, 2013. 矿业用地纠纷实务研究[D].哈尔滨: 黑龙江大学.

刘向敏, 余振国, 杜越天, 2021. 矿山生态修复市场化方式实践进展与深化路径研究[J].中国煤炭, 47(12): 66-72.〔LIU X M, YU Z G, DU Y T, 2021. Research on practice progress and deepening path of market-oriented mode of mine ecological restoration[J]. China Coal, 47(12): 66-72.〕

潘文灿, 2017. 对广西平果铝土矿采矿用地方式改革的建议: 广西平果铝土矿采矿用地改革试点10年的成效、问题及措施[J].中国国土资源经济, 30(2): 4-8.〔PAN W C, 2017. Suggestions for the reform with regard to the pattern of land use for mining bauxite in Pingguo of Guangxi: introduction the results they have achieved, the problems they have faced in ten-year experimental reform of land use for mining bauxite in Pingguo of Guangxi, and some addressing methods[J]. Natural Resource Economics of China, 30(2): 4-8.〕

裴兆斌, 翟姝影, 2019. 矿业用地管理法律制度的现状分析: 评《矿业用地管理制度改革与创新》[J].矿业研究与开发, 39(11): 155.〔PEI Z B, ZHAI S Y, 2019. Analysis of the current situation of the legal system of mining land management: a review of the reform and innovation of mining land management system[J].Mining Research and Development, 39(11): 155.〕

任洪涛, 2019. 论我国矿业用地法律制度中的权利冲突与协调[J].中国国土资源经济, 32(2): 25-30,46.〔REN H T, 2019. Discussion the rights conflict and coordination in the legal system of mining land in China[J].Natural Resource Economics of China, 32(2): 25-30,46.〕

夏鹏, 2013. 矿地和谐需管理有道: 现行矿业用地管理存在的问题及对策探析[J].中国土地(6): 44-46.

张德霖, 2021.从系统观视角和生态文明建设逻辑探索矿产资源有效管理与矿业新发展[J].中国国土资源经济, 34(1): 4-10.〔ZHANG D L, 2021. Exploring the effective management of mineral resources and the new development of mining from the perspective of system theory and the logic of eco-civilization construction[J] .Natural Resource Economics of China, 34(1): 4-10.〕

张迪, 2019. 我国矿业权与土地使用权冲突的法律问题研究[D].北京: 中国矿业大学.〔ZHANG D, 2019. Study on legal problems of

conflict between mining right and land use right in China[D]. Beijing: China University of Mining and Technology.〕

赵珂冉, 2020. 矿业用地法律问题探析[J].中国矿业, 29(5): 22-25.〔ZHAO K R, 2020. Analysis of the legal problems of mining land[J].China Mining Magazine, 29(5): 22-25.〕

郑娟尔, 袁国华, 章岳峰, 2015. 矿业用地制度: 问题与对策[J].国土资源科技管理, 32(6): 76-83.〔ZHENG J E, YUAN G H, ZHANG Y F, 2015. Mining land: problems and solutions[J]. Scientific and Technological Management of Land and Resources, 32(6): 76-83.〕

中国土地矿产法律事务中心、国土资源部土地争议调处事务中心, 2013. 矿业用地管理制度改革与创新[M]. 北京: 中国法制出版社

周伟, 白中科, 曹银贵, 2012.我国矿业用地现状及其节约集约利用途径[J].资源与产业, 14(4): 41-46.〔ZHOU W, BAI Z K, CAO Y G, 2012. Status and intensive use of China's mine lands[J]. Resources & Industries, 14(4): 41-46.〕