First, the situation of coal resources in Inner Mongolia
(1) Coal resources
Inner Mongolia is one of the regions with the richest coal resources in China, with large coal seam area and wide distribution. The whole area is1183,000 square kilometers, and the proven coal-bearing area is120,000 square kilometers, accounting for about 10% of the total area of the whole area. Of the counties in the whole region 10 1, 67 counties store coal resources. The accumulated proven reserves in the whole region are 23 1765438+ 1 100 million tons, accounting for 22% of the national reserves. There are 9 coalfields with proven reserves exceeding1000 million tons, and 6 coalfields with proven reserves exceeding1000 million tons. Among them, Zhungeer coalfield reserves are 25.3 billion tons, Xilingol Shengli coalfield reserves are 26.5438+0.4 billion tons, Hulunbeier coalfield reserves are 26.5438+0.5 billion tons and Dongsheng coalfield reserves are 73.6 billion tons. At present, there are 1228 coal mines in Inner Mongolia, including 67 state-owned key coal mines, 96 local state-owned coal mines and 1065 township collective coal mines. It has formed 10 state-owned key coal production mining areas and four national key construction mining areas such as Shengli, Bai Yinhua, Baorixile and Wan Li, including Uda, Haibowan, Baotou, Pingzhuang, Dayan, Zhalainuoer, Huolinhe, Yimin, Zhungeer and Shendong.
The characteristics of coal resources in Inner Mongolia can be summarized as follows: first, the resources are widely distributed and the total amount is large; Second, the variety is complete and the quality is excellent, mainly low metamorphic bituminous coal and lignite, with low sulfur and high quality coal accounting for 70% of the total reserves and low ash and low sulfur bituminous coal accounting for 60% of the high quality coal; Third, the coal seam is shallow, with many thick coal seams, relatively simple geological structure and hydrogeological conditions, stable horizon, large coalfield and easy mining; Fourth, the main coal measures are rich in biological sources and associated mineral resources, which is conducive to the comprehensive development of other mineral resources.
(2) Production and consumption of coal
Since the Tenth Five-Year Plan, with the rapid economic growth, the demand for energy market inside and outside the region is strong, which has stimulated the rapid development of energy industry in our region, especially the coal industry, and the coal output has increased rapidly. In 2005, the coal output of the whole region reached 256.07 million tons, an increase of 20.60% compared with 2004 and 3 13.62% compared with 2006, which not only greatly exceeded the target of 95 million tons in the tenth five-year plan of the autonomous region, but also exceeded the annual output of 2013,200. During the five years from 2000/kloc-0 to 2005, Inner Mongolia produced 800 million tons of raw coal and exported 455 million tons of coal outside the region, accounting for 57% of the total. Inner Mongolia has become China's coal resource area, export area and export area. By the end of 2005, the installed capacity of thermal power reached19,966,900 kilowatts, and the annual power generation reached10,700,200 kilowatts/hour, an increase of 243.62% over 2000.
With the rapid growth of national energy market demand, large domestic energy enterprises have invested in energy projects in our region, which has promoted the diversification of investment subjects in the coal industry in our region and promoted the rapid growth of investment in the coal industry. In particular, the implementation of coal-electricity integration, coal chemical industry and other projects has promoted the extension of coal industry to upstream and downstream industries and promoted the development of related industries.
Second, the problems existing in the development and utilization of coal resources in Inner Mongolia
The abundant coal resources in Inner Mongolia have provided and will continue to provide reliable energy guarantee for regional economic and social development. However, with the development of energy resources, especially the large-scale development and utilization of coal resources, a series of problems such as energy resources, energy environment, energy efficiency and energy benefits have emerged.
energy resources
The main body of energy resources widely used in modern society is still non-renewable disposable energy resources such as coal, oil and gas. Its geological resources have been generated for millions of years, and the absolute amount of these resources is limited. At present, the wasteful consumption of these resources is the lack of energy resources in the future sustainable development strategy. Therefore, in the strategic management of energy resources, we should carefully evaluate the law and characteristics of energy demand and its growth and change on the basis of fully studying energy demand and social and economic development, and strive to improve the proportion of energy resources exploitation and storage, promote energy resources conservation, and effectively promote the balance between energy production and demand. As for the management strategy of the energy industry, in view of the fact that the ratio of resource mining and storage of small energy production enterprises is generally lower than that of large and medium-sized enterprises, the development of small energy production enterprises should be restricted in areas rich in energy resources.
(b) Energy efficiency
A number of central enterprises took the lead in developing energy resources and accelerated the development of energy resources. However, because the benefit distribution mechanism has not been straightened out, the interest conflicts between central enterprises and local enterprises, and between the government and local people are escalating, which has affected the orderly development of energy in the future. At present, the actual disposable income left by central enterprises to county-level local finance is 8-9 times different from that of local coal mines. And there is a lack of overall consideration of local long-term industrial planning. Many local governments in energy-producing areas are reluctant to let central enterprises export local disposable energy products at low prices, and hope to take the opportunity of development to develop energy utilization and deep processing projects with higher added value to protect local long-term interests. For example, the main coal producing areas want to control more power plants and high-energy projects, but the central enterprises engaged in one-time energy exploitation basically do not consider local planning, and the long-term industrial development planning in many places is still a "blueprint" for many years.
In the main coal producing areas, on the one hand, it is the expansion and accumulation of foreign capital, on the other hand, it is the competition for interests between local people and local governments. Because of the unbalanced distribution of interests, it has led to a deformed development situation. In the second half of 2003, the competition for resources in Shanxi, Shaanxi and Mongolia became fierce, which made some places eager to introduce energy development and utilization projects on the condition of ceding resources, laying a major security risk for the orderly development in the future; What's more, individuals buy a piece of resources from the government through various means in order to resell resources in the future and make a big profit. This speculation on resources not only breeds corruption, but also disrupts the normal development order.
(c) Energy and environmental issues
The coal-rich areas in Inner Mongolia are all distributed in continental arid and semi-arid climate zones. Soil erosion and land desertification in these areas are quite serious, with low vegetation coverage and very fragile ecological environment. In the process of mining, processing, storage, transportation and combustion, coal will destroy the surface, pollute groundwater resources, emit a lot of sulfur dioxide, carbon dioxide and smoke, and cause air pollution. Thermal power generation needs a lot of water resources, which will further aggravate the shortage of water resources, and the discharged wastewater will pollute rivers, lakes and groundwater. The data show that every 10,000 tons of coal mining can cause 0.2 hectares of grassland or farmland to collapse, and mining 1 ton of raw coal needs to discharge 2 tons of sewage.
The ecology of energy development zones in western Inner Mongolia and the border areas of Shanxi, Shaanxi and Mongolia is very fragile. With the increase of development, geological disasters become more and more serious, groundwater is exhausted, and surface vegetation dies in a large area. However, at present, there is no clear compensation mechanism for mined-out subsidence area, and there is less investment in ecological management and restoration of mined-out area in coal production cost.
(d) Energy efficiency issues
At present, the efficiency of energy exploitation, transportation, processing, transformation and utilization is still very low. On the one hand, there is a shortage of energy, on the other hand, energy waste is amazing. From the perspective of energy utilization efficiency, the total efficiency of comprehensive energy utilization in China is only 33%, which is 10 percentage point lower than that in developed countries. Considering that after mining and transportation, China's total energy efficiency is less than 10%, which means that about 90% of energy resources are lost and wasted in the process of production, processing and transformation, transportation, storage and end use. In 2005, China's energy consumption per 10,000 yuan GDP was 1.22 tons of standard coal, which was far from developed countries or countries with similar development level. The energy consumption per 10,000 yuan output value is 3. 1 times the world average, 4.3 times that of OECD countries and regions and 9 times that of Japan. Relevant data show that the energy utilization efficiency in Inner Mongolia is far below the national average. In 2005, the energy consumption per 10,000 yuan output value in Inner Mongolia was 2.48 tons of standard coal, which was more than twice the national average. The energy consumption per unit industrial added value is 5.67 tons of standard coal/10,000 yuan, which is 2. 19 times of the national average. Compared with Guangdong province, which has the highest energy efficiency, it is 3. 14 times and 5.25 times higher respectively. 90% of the small coal mines in our region use informal coal mining methods, and the resource recovery rate is only 30%.
These data not only reflect the current waste of energy use, but also fully show that Inner Mongolia has great potential to improve energy efficiency. It can do a lot in saving energy and increasing efficiency.
Third, the idea of promoting the sustainable development and utilization of coal resources in Inner Mongolia
Energy resources belong to strategic resources. The development, transformation and utilization of energy resources have obvious externalities, that is to say, energy resources not only have the nature of private products, but also have the nature of public products, which determines that the development and utilization of energy resources can be adjusted not only through the invisible hand of market mechanism, but also through the visible hand of government. Facts also show that most countries in the world have government intervention and intervention in energy issues. For the development and utilization of coal as a strategic resource, the central and local governments must consider the development scale, resource connection, industrial upgrading, alternative industry cultivation, ecological environment protection and other issues as a whole, and formulate scientific and reasonable development and utilization planning schemes.
(1) Adhere to energy conservation and revise and improve relevant laws and regulations as soon as possible.
The Energy Conservation Law should be revised as soon as possible. Great changes have taken place in China's energy situation, management system and social environment, and the existing laws can no longer meet the needs of practice. Many regulations are too principled, with many advocacy clauses and few disciplinary clauses, lacking in force and operability. Through revision, improve the government's energy-saving management, supervision and service system, and form a unified and responsible energy-saving management system with division of labor and cooperation. Strengthen the connection between energy conservation law and renewable energy law, and promote the application of renewable energy in construction, transportation and civil fields. Clear national economic policies and specific measures to encourage energy conservation, and establish a mechanism of "whoever saves energy benefits". We can't condone individual wasteful behavior, but the cost is borne by society. Establish an energy-saving oriented fiscal and taxation price policy system, expand the current consumption tax collection scope to non-renewable energy such as coal and its products, and gradually increase the tax rate according to the needs of energy conservation, and finally achieve the policy effect of raising energy costs, encouraging market participants to consciously save energy, and curbing energy waste. We will fully implement the method of calculating resource tax according to reserves, standardize and raise tax rates, and prevent waste and destructive exploitation of resources.
Establish an energy-saving oriented market access system. As soon as possible, formulate and improve energy efficiency standards for various products, industry energy consumption access standards and energy-saving design specifications, and operating standards for energy-using equipment in public buildings. Implement moderately advanced energy efficiency standards for major energy-consuming industries and products, gradually raise the market access threshold, significantly narrow the gap with the advanced level at home and abroad, promote enterprises to accelerate the research and development and production of energy-saving products, and guide social consumption.
Strict energy-saving target responsibility system and energy-saving work accountability system. Governments at all levels should report on energy conservation in their annual government work reports and plan reports. Establish a statistical system and working system to meet the needs of energy conservation.
(2) Establish a "green GDP" accounting system that reflects the cost of resources and environment.
There are many defects in the traditional national economic accounting system. First, it is based on pure economic system analysis, without considering the resources and environment system closely related to economic activities, without reflecting the value of resources, and without including the pollution, destruction and loss of ecological environment; Its input-output accounting does not involve the relationship between stock and flow. For producers, the traditional accounting method does not regard environmental resources as the assets of producers, so that the economic behavior of producers is based on sacrificing the environment. Therefore, we should reflect the true value of resources and environment through "green GDP" and establishing a green accounting system, and use it as an index to assess energy development areas and enterprises, and establish an effective mechanism for sustainable development from the system. At the same time, it is necessary to clarify the property rights of all factors, reverse the traditional concept of production factors, expand the perspective of property rights reform from tangible and intangible assets such as capital and labor to production factors such as resources and environment, clarify the property rights, establish market-oriented property rights trading rules according to the actual situation, and realize the orderly circulation of property rights of production factors such as resources and environment through standardized market behaviors and activities. On the basis of expanding the scope of paid use of natural resources, the system of paid use of natural resources in the whole process is established. The connotation of paid use of resources should include not only the mining price and additional development cost, but also the cost of resource recovery, treatment and renewal.
(3) Establish a compensation mechanism for resource and environmental losses as soon as possible
The development and utilization of energy resources (mainly non-renewable resources) will inevitably lead to changes in the value of resources. If the relationship between resource property rights is clear and the cost structure is reasonable, then this loss can be compensated reasonably through the equivalent exchange between the supply and demand sides of energy products; On the other hand, if the value of energy products deviates from the price, the economic development of the area where energy products are purchased is at the expense of the sustainable development of the energy development area. According to the theory of sustainable development, the development of a country or region is sustainable only when its total capital stock (natural capital, human capital and product capital) keeps a certain growth over time. Therefore, it is necessary to establish the concept of sustainable income, that is, the depreciation of resources should also be included in the sales price of products, so that the main body of energy development can obtain reasonable income through the market exchange of energy products to compensate resources. Here, user cost method and net price method can be used to calculate the total value of resources by analyzing the total reserves, mining quantity, mining years, mining cost and resource rent.
It is necessary to establish reasonable trade synergy between regions as soon as possible. Because the social and economic development of the eastern, central and western economic belts in China is unbalanced and the gap is widening, the establishment and operation of a unified domestic market may make the environmental problems and interest problems based on the market operation relationship more prominent. The unequal trade structure between the underdeveloped areas in the west and the developed areas in the east, the formation of high-tech industries in the developed areas in the east and the relocation of industries with high energy consumption and high pollution to the west, and the support given by the western region at the expense of resources, environment and interests in the development of the east all make obvious differences in environmental damage responsibility, environmental protection ability and economic benefit distribution. However, the sustainable development of different regions in terms of economic development level, scientific and technological competitiveness, human capital stock and so on is seriously asymmetrical, which makes the trade relationship between regions increasingly complex and makes the terms of trade in the western resource export areas deteriorate. Therefore, it is very urgent and necessary to establish unified rules to coordinate trade relations between regions.
(D) the establishment of a standardized and orderly financial transfer payment system
Inner Mongolia has many environmental problems and heavy historical burdens. The state should increase the financial transfer payment to Inner Mongolia, clarify the proportion and increasing proportion of transfer payment to Inner Mongolia in a certain period, ensure the share of central government transfer payment to Inner Mongolia, and focus on supporting economic construction and environmental governance in Inner Mongolia.
In view of the abnormal industrial development in Inner Mongolia and the situation that the energy industry is dominated by coal development, the central government should increase investment, strengthen infrastructure construction and promote the adjustment of regional industrial structure. The central government should strongly support the structural adjustment policies adopted by local governments, especially in the fields of complementary industries, industrial substitution and the development of high-tech industries. Low-interest or interest-free loans and tax relief policies will be given to some resources comprehensive utilization industries and renewable energy development industries. At present, due to the limited local financial resources, the matching fund policy actually limits Inner Mongolia's ability to win central construction funds. Therefore, from the perspective of "compensation", it is worth considering changing the requirement of matching funds to the full transfer payment of project construction funds by the central government.
(five) adhere to the multi-functional, environmental protection priority, reduce the consumption of non-renewable resources.
On the basis of actively and effectively promoting energy conservation and efficiency improvement, through the guidance of industrial policies, we will vigorously adjust the structure of energy production and consumption, reduce the consumption of conventional energy such as coal in a planned and step-by-step manner, encourage and support the production and consumption of clean energy and new energy such as natural gas, wind energy and solar energy, and gradually increase the proportion of clean energy in energy consumption.
More than 70% of China's energy consumption comes from coal, and methane produced by coal mining accounts for the first place in global greenhouse gas emissions. The research results show that the total coalbed methane resources in China are 3 1.46 trillion cubic meters, equivalent to 45 billion tons of standard coal, among which the coalbed methane resources in Shanxi, Shaanxi and Mongolia gas-bearing areas are the largest, accounting for more than 1.25 trillion cubic meters of the total coalbed methane resources in China. Among them, the estimated reserves of shallow coalbed methane resources over 2000 meters in Inner Mongolia are 7 trillion cubic meters. If coalbed methane is developed and utilized in various mining areas, it will create considerable economic, environmental and social benefits.