省级区域多层级一体化国有地方煤矿监管模式优化研究
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摘要
针对现有市属国有煤矿属地监管中出现的诸多问题,以重庆市合川区市属国有煤矿属地监管为对象展进行了一系列的研究工作。首先,描述了合川区属地煤矿的区级、镇街级的监管机构、安全生产运行状况;其次,分析了当前监管中存在的问题和原因,查找监管薄弱环节以及当前地方政府及监管部门履行属地监管存在的关键问题;再次,提出了深入厘清国家监察和地方监管全责、分类别分层级监管、缓解基层监管人员心理压力、统筹开展综合监察等方面的具体解决措施。通过研究,旨在有效整合监管资源、建立网格化监管体系;完善监管制度设计,合理使用监管手段,优化设计属地监管模式;提升队伍业务能力,提高监管效能;推动市属国有煤矿区域一体化属地监管模式、主动稽查的新思路,进一步提高监管效能。
In view of the problems in the supervision of the state-owned coal mines in the existing municipalities,the supervision of the ownership of the state-owned coal mines in Hechuan District of Chongqing Municipality was selected as the research.Firstly,the district-level,town-level supervisory agencies,safety and the status of production operations of the coal mines in Hechuan District were described;secondly,it analyzed the current problems and causes in supervision,and found out the weak links of supervision and the key problems existing in the implementation of territorial supervision by local governments and supervision departments;thirdly,it put forward specific solutions to clarify the full responsibility of state supervision and local supervision,hierarchical level supervision,ease the psychological pressure of grassroots supervisors,and comprehensively carry out comprehensive supervision.Through research,it aims to effectively integrate regulatory resources and establish grid-based supervision system;improve the design of supervision system,rational use of supervision means,optimize the design of local supervision mode;enhance the team′s business capability,improve the efficiency of supervision;promote the state-owned coal mine regional integration of local supervision mode,new ideas of active inspection,further promote improved regulatory effectiveness.
In view of the problems in the supervision of the state-owned coal mines in the existing municipalities,the supervision of the ownership of the state-owned coal mines in Hechuan District of Chongqing Municipality was selected as the research.Firstly,the district-level,town-level supervisory agencies,safety and the status of production operations of the coal mines in Hechuan District were described;secondly,it analyzed the current problems and causes in supervision,and found out the weak links of supervision and the key problems existing in the implementation of territorial supervision by local governments and supervision departments;thirdly,it put forward specific solutions to clarify the full responsibility of state supervision and local supervision,hierarchical level supervision,ease the psychological pressure of grassroots supervisors,and comprehensively carry out comprehensive supervision.Through research,it aims to effectively integrate regulatory resources and establish grid-based supervision system;improve the design of supervision system,rational use of supervision means,optimize the design of local supervision mode;enhance the team′s business capability,improve the efficiency of supervision;promote the state-owned coal mine regional integration of local supervision mode,new ideas of active inspection,further promote improved regulatory effectiveness.
引文
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[8] 谢宪,刘金锋.区域保险市场属地监管问题研究[J].保险研究,2010(11):61-66.Xie Xian,Liu Jinfeng.Research on territorial supervision of regional insurance market[J].Insurance Studies,2010(11):61-66.
[9] 崔德志,唐旻.银监会属地监管模式协调问题的博弈分析[J].东南学术,2012(6):70-78.Cui Dezhi,Tang Min.Game analysis of the coordination of the supervision mode of the banking regulatory commission[J].Southeast Academic Research,2012(6):70-78.
[10] 方灿芬.对“属地管理”与“垂直管理”环保监管改革的探讨[J].环境保护,2016,44(1):34-35.Fang Canfen.Discussion on the environmental protection supervision reform of "territorial management" and "vertical management"[J].Environmental Protection,2016,44(1):34-35.
[11] 周适.环境监管的他国镜鉴与对策选择[J].改革,2015(4):58-68.Zhou Shi.His country′s mirror and countermeasures of environmental supervision[J].Reform,2015(4):58-68.
[12] 关伟.强化监管力量落实属地责任确保首都安全——关于加强街乡安全生产监察力量的若干思考[J].现代职业安全,2009(5):2-5.Guan Wei.Strengthening the supervision force,implementing the responsibility of the land,ensuring the safety of the capital:some thoughts on strengthening the supervision of the production safety of the township[J].Modern Occupational Safety,2009(5):2-5.
[13] 王伟.深化属地管理,完善HSE体系建设[J].中国安全生产科学技术,2010(S1):63-64.Wang Wei.Deepen the management of territories and improve the construction of HSE system[J].Journal of Safety Science and Technology,2010(S1):63-64.
[14] 李全祺.全面覆盖划分属地落实责任——安全属地管理在基层的落实[J].中外企业家,2014(4):197.Li Quanqi.Comprehensive coverage,division of territories,implementation of responsibility,implementation of safe land management at the grassroots level[J].Chinese & Foreign Entrepreneurs,2014(4):197.
[15] 田振胜,徐伟,张昕.基于SMART的属地管理在安全管理中的运用[J].交通企业管理,2017,32(1):97-99.Tian Zhensheng,Xu Wei,Zhang Xin.Application of terrain management based on SMART in security management[J].Transportation Enterprise Management,2017,32(1):97-99.
[16] 王桂兵,张涛,佟陆,等.落实井下作业属地安全管理的方法[J].新疆石油科技,2014(3):73-75.Wang Guibing,Zhang Tao,Tong Lu,et al.Implementation of the method of safe management of underground operations[J].Xinjiang Petroleum Science & Technology,2014(3):73-75.
[17] 张献军,曹兴滨,李乐乐.属地管理实现安全责任落实[J].现代职业安全,2011(10):37-39.Zhang Xianjun,Cao Xingbin,Li Lele.Implementation of security management for territorial management[J].Modern Occupational Safety,2011(10):37-39.
[18] 赵书虹.试论属地化管理实施后的民航机场安全管理[J].全国商情(经济理论研究),2009(19):25-26.Zhao Shuhong.On the safety management of civil aviation airports after the implementation of localized management[J].China Business,2009(19):25-26.
[19] 魏芳.关于煤炭企业职工基本医疗保险统筹属地管理问题的探讨——以新矿集团为例[J].劳动保障世界(理论版),2013(5):37.Wei Fang.Discussion on the management of the basic medical insurance coordination territorial management of coal enterprises:taking Shandong Energy Xinwen Mining Group as an example[J].Labor Security World(Theoretical Edition),2013(5):37.
[20] 胡学义.矿山安全分级监察,属地管理的矿山安全监察模式展望[J].劳动保护科学技术,1998(1):55-59.Hu Xueyi.Mine safety grading supervision,prospects for mine safety monitoring mode under territorial management[J].Science and Technology of Labour Protection,1998(1):55-59.
[21] 刘亭,王廷春,马晓娜.炼化企业作业现场属地安全管理方案探讨[J].炼油与化工,2014(6):47-49.Liu Ting,Wang Tingchun,Ma Xiaona.Discussion on territorial management plan of job site safety in petrochemical enterprises[J].Refining and Chemical Industry,2014(6):47-49.
[22] 王子介.关于安全生产执法分级属地管理模式探究[J].科技与企业,2013(15):53.Wang Zijie.Research on the classification management mode of safety production law enforcement[J].Science & Technology and Enterprise,2013(15):53.
[23] 马颖超.我国应急属地管理原则探析[J].科技视界,2015(34):140-141.Ma Yingchao.Analysis of China′s emergency land management principles[J].Science & Technology Vision,2015(34):140-141.
[24] 佚名.创新监管方式提高监管效能[J].工商行政管理,2010(11):28-29.Anonymous.Innovative supervision method to improve supervision efficiency[J].Biweekly of Administration for Industry and Commerce,2010(11):28-29.
[25] 冯刚.发挥属地监管优势创新城市管理模式——以北京市西城区为例[J].城市管理与科技,2016,18(1):26-28.Feng Gang.Bringing into play the regulatory advantages of the locality.Innovative urban management model:taking Xicheng district of Beijing as an example[J].Urban Management Science & Technology,2016,18(1):26-28.
[26] 步培银,冷宇,周晨旭,等.区域一体化背景下内陆口岸入境验证监管模式探究——以无锡综合保税区入境商品监管模式研究为例[J].商场现代化,2016(15):110-111.Bu Peiyin,Leng Yu,Zhou Chenxu,et al.Research on the inland verification supervision mode of inland ports under the background of regional integration:taking the study of the supervision model of entry commodities in Wuxi comprehensive bonded zone as an example[J].Modernization of Shopping Malls,2016(15):110-111.
[27] 一财网.食药监管由“垂直”向“属地”转型事权落实是关键[J].食品安全导刊,2015(15):14.Yicainet.The transition of food regulation from "vertical" to "territory" is the key to implementation[J].Food Safety Guide,2015(15):14.
[28] 王惠生.属地化监管长效机制之探讨[J].中国食品药品监管,2009(6):26-27.Wang Huisheng.Discussion on the long-term mechanism of localization supervision[J].China Food Drug Administration,2009(6):26-27.
[29] 牛立东.资源整合煤矿安全监管信息化模型研究与实践[D].北京:中国矿业大学(北京),2014.
[2] 国务院安委会办公室.关于加强基层安全生产网格化监管工作的指导意见[J].中国安全生产科学技术,2017(11):21.Office of the Security Council of the State Council.Guiding opinions on strengthening the supervision of grassroots safety production grid[J].Journal of Safety Science and Technology,2017(11):21.
[3] 葛丰.从金融办到金融局金融业属地监管当进一步加强[J].中国经济周刊,2017(45):5.Ge Feng.From the financial office to the financial bureau,the supervision of the financial industry is further strengthened[J].China Economic Weekly,2017(45):5.
[4] 尹振东,桂林.垂直管理与属地管理的监管绩效比较——基于事中监管的博弈分析[J].经济理论与经济管理,2015,35(4):5-12.Yin Zhendong,Gui Lin.Comparison of regulatory performance between vertical management and territorial management:based on game analysis of in-process supervision[J].Economic Theory and Business Management,2015,35(4):5-12.
[5] 耿欣,何峰.地方政府如何更好履行属地风险防范职责[J].金融与经济,2017(11):73-77.Geng Xin,He Feng.How local governments can better perform their risk prevention duties[J].Journal of Finance and Economics,2017(11):73-77.
[6] 陈明机,李祎.村镇银行属地局与并表局加强联动监管的新探索[J].中国农村金融,2012(18):76-78.Chen Mingji,Li Wei.The new exploration of the joint supervision of the village and town banks and the consolidated bureau[J].China Rural Finance,2012(18):76-78.
[7] 黄陶.国有商业银行“扁平化”改革后“属地监管”的难点及工作建议[J].区域金融研究,2006(4):48-51.Huang Tao.Difficulties and work suggestions of "regional supervision" after the "flattening" reform of state-owned commercial banks[J].Regional Finance Research,2006(4):48-51.
[8] 谢宪,刘金锋.区域保险市场属地监管问题研究[J].保险研究,2010(11):61-66.Xie Xian,Liu Jinfeng.Research on territorial supervision of regional insurance market[J].Insurance Studies,2010(11):61-66.
[9] 崔德志,唐旻.银监会属地监管模式协调问题的博弈分析[J].东南学术,2012(6):70-78.Cui Dezhi,Tang Min.Game analysis of the coordination of the supervision mode of the banking regulatory commission[J].Southeast Academic Research,2012(6):70-78.
[10] 方灿芬.对“属地管理”与“垂直管理”环保监管改革的探讨[J].环境保护,2016,44(1):34-35.Fang Canfen.Discussion on the environmental protection supervision reform of "territorial management" and "vertical management"[J].Environmental Protection,2016,44(1):34-35.
[11] 周适.环境监管的他国镜鉴与对策选择[J].改革,2015(4):58-68.Zhou Shi.His country′s mirror and countermeasures of environmental supervision[J].Reform,2015(4):58-68.
[12] 关伟.强化监管力量落实属地责任确保首都安全——关于加强街乡安全生产监察力量的若干思考[J].现代职业安全,2009(5):2-5.Guan Wei.Strengthening the supervision force,implementing the responsibility of the land,ensuring the safety of the capital:some thoughts on strengthening the supervision of the production safety of the township[J].Modern Occupational Safety,2009(5):2-5.
[13] 王伟.深化属地管理,完善HSE体系建设[J].中国安全生产科学技术,2010(S1):63-64.Wang Wei.Deepen the management of territories and improve the construction of HSE system[J].Journal of Safety Science and Technology,2010(S1):63-64.
[14] 李全祺.全面覆盖划分属地落实责任——安全属地管理在基层的落实[J].中外企业家,2014(4):197.Li Quanqi.Comprehensive coverage,division of territories,implementation of responsibility,implementation of safe land management at the grassroots level[J].Chinese & Foreign Entrepreneurs,2014(4):197.
[15] 田振胜,徐伟,张昕.基于SMART的属地管理在安全管理中的运用[J].交通企业管理,2017,32(1):97-99.Tian Zhensheng,Xu Wei,Zhang Xin.Application of terrain management based on SMART in security management[J].Transportation Enterprise Management,2017,32(1):97-99.
[16] 王桂兵,张涛,佟陆,等.落实井下作业属地安全管理的方法[J].新疆石油科技,2014(3):73-75.Wang Guibing,Zhang Tao,Tong Lu,et al.Implementation of the method of safe management of underground operations[J].Xinjiang Petroleum Science & Technology,2014(3):73-75.
[17] 张献军,曹兴滨,李乐乐.属地管理实现安全责任落实[J].现代职业安全,2011(10):37-39.Zhang Xianjun,Cao Xingbin,Li Lele.Implementation of security management for territorial management[J].Modern Occupational Safety,2011(10):37-39.
[18] 赵书虹.试论属地化管理实施后的民航机场安全管理[J].全国商情(经济理论研究),2009(19):25-26.Zhao Shuhong.On the safety management of civil aviation airports after the implementation of localized management[J].China Business,2009(19):25-26.
[19] 魏芳.关于煤炭企业职工基本医疗保险统筹属地管理问题的探讨——以新矿集团为例[J].劳动保障世界(理论版),2013(5):37.Wei Fang.Discussion on the management of the basic medical insurance coordination territorial management of coal enterprises:taking Shandong Energy Xinwen Mining Group as an example[J].Labor Security World(Theoretical Edition),2013(5):37.
[20] 胡学义.矿山安全分级监察,属地管理的矿山安全监察模式展望[J].劳动保护科学技术,1998(1):55-59.Hu Xueyi.Mine safety grading supervision,prospects for mine safety monitoring mode under territorial management[J].Science and Technology of Labour Protection,1998(1):55-59.
[21] 刘亭,王廷春,马晓娜.炼化企业作业现场属地安全管理方案探讨[J].炼油与化工,2014(6):47-49.Liu Ting,Wang Tingchun,Ma Xiaona.Discussion on territorial management plan of job site safety in petrochemical enterprises[J].Refining and Chemical Industry,2014(6):47-49.
[22] 王子介.关于安全生产执法分级属地管理模式探究[J].科技与企业,2013(15):53.Wang Zijie.Research on the classification management mode of safety production law enforcement[J].Science & Technology and Enterprise,2013(15):53.
[23] 马颖超.我国应急属地管理原则探析[J].科技视界,2015(34):140-141.Ma Yingchao.Analysis of China′s emergency land management principles[J].Science & Technology Vision,2015(34):140-141.
[24] 佚名.创新监管方式提高监管效能[J].工商行政管理,2010(11):28-29.Anonymous.Innovative supervision method to improve supervision efficiency[J].Biweekly of Administration for Industry and Commerce,2010(11):28-29.
[25] 冯刚.发挥属地监管优势创新城市管理模式——以北京市西城区为例[J].城市管理与科技,2016,18(1):26-28.Feng Gang.Bringing into play the regulatory advantages of the locality.Innovative urban management model:taking Xicheng district of Beijing as an example[J].Urban Management Science & Technology,2016,18(1):26-28.
[26] 步培银,冷宇,周晨旭,等.区域一体化背景下内陆口岸入境验证监管模式探究——以无锡综合保税区入境商品监管模式研究为例[J].商场现代化,2016(15):110-111.Bu Peiyin,Leng Yu,Zhou Chenxu,et al.Research on the inland verification supervision mode of inland ports under the background of regional integration:taking the study of the supervision model of entry commodities in Wuxi comprehensive bonded zone as an example[J].Modernization of Shopping Malls,2016(15):110-111.
[27] 一财网.食药监管由“垂直”向“属地”转型事权落实是关键[J].食品安全导刊,2015(15):14.Yicainet.The transition of food regulation from "vertical" to "territory" is the key to implementation[J].Food Safety Guide,2015(15):14.
[28] 王惠生.属地化监管长效机制之探讨[J].中国食品药品监管,2009(6):26-27.Wang Huisheng.Discussion on the long-term mechanism of localization supervision[J].China Food Drug Administration,2009(6):26-27.
[29] 牛立东.资源整合煤矿安全监管信息化模型研究与实践[D].北京:中国矿业大学(北京),2014.