The 14th Five-Year Plan for mine safety production

 This plan is formulated in accordance with the Law of the People's Republic of China on Work Safety, the Law of the People's Republic of China on Safety in Mines, the 14th Five-Year Plan for National Economic and Social Development and the Outline of the 2035 Vision Goals, the 14th Five-Year Plan for National Emergency Response System, the 14th Five-Year Plan for National Work Safety and other laws, regulations and plans.

1. Current situation and situation

(1) Results achieved.

 Continuous efforts have been made to implement the production safety responsibility system, eliminate backward production capacity, control major disasters, strengthen scientific and technological safety, and build intelligent mines, and other work has achieved remarkable results in mine safety work across the country, achieving the expected goals set out in the 13th Five-Year Plan.

The work safety situation continued to improve. The number of production safety accidents in mines, the number of deaths, the number of major accidents and serious accidents, and the mortality rate of one million tons in coal mines have achieved "five significant decreases". Compared with 2015, the number of deaths in coal mines and the death rate of one million tons in coal mines in 2020 will decrease by 61.9 percent and 63.6 percent respectively, and major accidents have been effectively curbed. The number of accidents and deaths in non-coal mines decreased by 28.2 percent and 39.2 percent, respectively, and the situation of mine safety production remained stable and improved.

The system of laws, regulations and standards has been gradually improved. It has formed departmental rules and regulations including the "Law of the People's Republic of China on Work Safety", the "Law of the People's Republic of China on Mine Safety" and other laws, the "Regulations on Work Safety Licenses" and the "Regulations on Coal Mine Safety Supervision", and the "Regulations on Coal Mine Safety Regulations" and the "Measures for the Implementation of Safety Production Licenses for non-coal mining Enterprises". Mine safety laws and regulations standard system composed of national and industry standards such as "General Technical requirements for Coal mine Safety Monitoring System" and "Safety Regulations for Metal and non-metal mines".

The responsibility system for work safety has been gradually improved. Establish a mine safety supervision and supervision system of "national supervision, local supervision and enterprise responsibility", improve the production safety responsibility system of "Party and government responsibility, one job and two responsibilities, joint management, dereliction of duty", further strengthen the responsibility of safety supervision and supervision, clarify the daily supervision subject of each mine, and achieve full coverage of supervision and guarantee responsibilities of all tailings pond local government leaders. The safety production responsibility system of all employees of the enterprise is more rigorous, and the main responsibility of the enterprise is further implemented.

Efforts have been made to tackle major disasters. Fully implement the target management of "zero over-limit" of gas and "zero outburst" of dangerous coal seams, and promote the implementation of the provisions of the "Rules for the Prevention and Control of Coal and Gas Outburst". It issued the Notice on Strengthening the Prevention and Control of Rock Burst in Coal Mines, the Work Plan for Containing the "Overhead Storage" Major accidents in tailings ponds, and the Notice on Establishing a Mechanism for Sharing Seismic Information about Rock Burst Mines, and promoted the implementation of measures such as the Rules for the Prevention and Control of Rock Burst in Coal Mines. We have implemented the measures of "three special projects, two exploration and one removal" for water disaster prevention and control, and popularized the application of advanced and applicable technologies such as kilometer-oriented underground drilling RIGS and coal seam permeability enhancement. The level of prevention and control of major disasters has steadily improved. The implementation of a number of major coal mine disasters and tailings reservoir treatment projects, large coal mine gas and water damage accidents decreased by 98% and 95% compared with the "Twelfth Five-Year Plan", and no large accidents occurred in tailings ponds.

The foundation for workplace safety was further consolidated. We issued and implemented a standardized management system for safety production in coal mines, and steadily promoted the standardization of safety production in non-coal mines. The construction of a dual prevention mechanism for the hierarchical control of mine safety risks and the investigation and treatment of hidden dangers has been comprehensively promoted, and enterprises are increasingly aware of the management and control of major safety risks, and their ability to investigate and treat hidden dangers has continued to improve. Safety publicity, education and training work has been further strengthened, a new safety training management mechanism of "enterprise independent training, department strengthened assessment, law enforcement and service" has taken shape, and the quality of practitioners has been continuously improved. It released the key research and development catalogue of 38 kinds of coal mining robots in 5 categories, promoted the construction of 494 intelligent mining faces in coal mines across the country, implemented and applied 19 kinds of robots related to coal mine production, and opened a new model of intelligent mining with "patrol and unattended".

Mine industrial structure optimization and upgrading. We deepened supply-side structural reform and continued to promote the elimination and withdrawal of backward production capacity. A total of 5,464 coal mines with a production capacity of 940 million tons were eliminated and retired. The average production capacity of coal mines reached more than 1 million tons per year, and the production capacity of large coal mines with high safety guarantee capacity accounted for about 80%. We have rectified and closed more than 19,000 non-coal mines and tailings ponds, comprehensively reviewed the basic conditions and safety risks of tailings ponds across the country, and continued to promote comprehensive treatment of tailings ponds and goaf areas. Comprehensive treatment of "overhead reservoirs" has achieved notable results.

The level of support for safety science and technology has been continuously improved. China has continued to eliminate backward technology and promote advanced technology and equipment, and released six batches of catalogs for eliminating backward safety technology and equipment in coal mines and four batches of catalogs for promoting advanced applicable technology and equipment, two batches of catalogs for prohibiting the use of equipment and technology in metal and non-metal mines, and one batch of catalogs for promoting new applicable safety technology and equipment. To promote the underground test application of advanced technology and equipment such as large-section rapid anchoring system, full-section tunneling equipment for rock roadway, and large-angle mine shield tunneling machine.

The efficiency of supervision and supervision has been continuously improved. The Manual of Coal Mine Safety Supervision and Law Enforcement has been compiled and improved, and the style of coal mine safety supervision and law enforcement documents has been unified across the country. Formulate inspection and implementation lists and descriptions of coal mine violations and regulations, and further promote the standardized construction of supervision, supervision and law enforcement. Implement the provisions on the implementation of supervision and supervision according to law and according to plan, and formulate measures for the preparation of coal mine safety supervision and supervision and law enforcement plans. Formulate the "Coal Mine Safety Supervision Administrative Punishment Discretion Benchmark" to standardize the discretion of administrative law enforcement. Comprehensively strengthen the "consultation" supervision of non-coal mine production safety experts, risk classification supervision and Internet-assisted supervision, and effectively promote the improvement of the quality of grassroots supervision and law enforcement. We have comprehensively strengthened law enforcement, strict law enforcement, closed-loop law enforcement, open law enforcement and civilized law enforcement in non-coal mine safety supervision and regulation, and the effectiveness of law enforcement has been greatly improved.

Positive progress has been made in making it safer to use information. The first to build coal mine safety risk monitoring "a network", 3,338 coal mine safety monitoring, personnel location monitoring, industrial video "three systems" to achieve data networking, becoming the first batch of national "Internet + supervision" system key demonstration application projects. All tailings ponds above grade 3 in China have realized networking and online monitoring. The coal mine safety supervision and law enforcement system has been continuously upgraded and improved, and intelligent functions such as supervision and law enforcement business, user and data convergence have been fully covered, and the same case has been pushed into trial operation, and a coal mine safety supervision and law enforcement system has been built and promoted throughout the country.

2. Challenges we face.

The development of energy transformation poses a greater challenge to mine safety. For a long time to come, coal will still be the main source of energy in China. With the implementation of The State Council's "Action Plan for Carbon Peaking before 2030", the pace of energy structure adjustment has been accelerated, and the dual control policies and measures for total coal consumption and intensity have become increasingly strict. In order to ensure national energy security, improve the safe supply capacity of strategic mineral resources, and achieve the strategic goal of carbon peaking and carbon neutrality, The high quality development of mine safety will face great challenges.

The uncertainty of external environment increases the risk of mine safety. Affected by the international situation and the COVID-19 epidemic and other emergencies, the development of the coal industry and mining enterprises has experienced fluctuations. Some enterprises are strapped for funds, have large debts for mining projects, and have problems such as insufficient safety input, disordered mining continuity and unstable team. Affected by factors such as regional supply and demand contradictions and mineral product market fluctuations, it is easy to cause illegal behaviors such as super-strength and super-capacity mining, and increase mine safety risks and accident hazards.

The overall foundation of mine safety is still weak. The concept of safe development is not firmly established, the implementation of the main responsibility of the enterprise is not in place, the implementation of the main responsibility of the multi-level management of the enterprise is diminishing, the system and measures are not targeted, and the site management is not in place. Violations of laws and regulations such as over-layer cross-border mining in coal mines and "one license and multiple mining" in non-coal mines are repeatedly prohibited. Similar accidents happen repeatedly, and the lessons from the accident are not deeply learned. The shortage of professional and technical personnel, recruitment difficulties, serious aging of employees, professional quality and safety awareness need to be improved. The research and development ability of mine safety science and technology is insufficient. There is a big gap between the robot density and the foreign average. The extensive use of new materials, new technologies, new processes and new equipment has brought new uncertain safety risks to production safety.

The risk of disaster becomes more serious with the increase of mining depth. Some coal mines have evolved from low gas to high gas and outburst mines, new coal and rock dynamic disasters coupling coal and gas outburst and rock burst occurred in deep mining, and the threat of confined water in floor became increasingly serious. Water inrush and rock burst occurred in Luohe Formation sandstone aquifer in western coal mines. In non-coal underground mines with Wells deeper than 800 meters, geothermal and rockburst phenomena increase, making it more difficult to lift and ventilate. Research on disaster mechanisms such as coal mine gas outburst and rock burst has not yet made breakthroughs, and the independent innovation capability of key technologies and equipment needs to be improved.

The development of non-coal mines is uneven. The total number of mines is large, the level of mechanization is low, the national metal and non-metal mines are affected by resource endowment, technology and scale, the overall degree of mechanization is low. Small mines account for 86.4% of the total mines, the level of technical equipment is low, and the production mode is backward. The fourth and fifth grade small tailings ponds account for 87.4% of the total tailings ponds. The number of high-risk mines is large, the level of safety assurance is low, and the risk of safety production is high.

The effectiveness of safety supervision and supervision needs to be further improved. The strength of mine safety supervision and supervision does not match the layout of mine production and development, and the distribution is unbalanced. In some areas, there are blind areas in mine safety supervision and its strength is weakened. Some mine safety supervision and law enforcement personnel are afraid of difficulties, lack the ability and initiative to find problems, analyze problems and solve problems. The mechanism of source governance and regular risk management and control has not yet been fully established, the methods and methods of supervision and supervision need to be improved and innovative, and the scientific and technological equipment of supervision and supervision needs to be upgraded. The extensive use of new materials, new technologies, new processes and new equipment has posed new challenges to the professional and technical capabilities of the supervision team.

3. Opportunities for development.

New development stages and new development concepts bring new opportunities.  The concept of "people first, life first" has been deeply rooted in the hearts of the people, and the responsibility system of "Party and government with the same responsibility, one job and two responsibilities, joint management, dereliction of duty and accountability" has been continuously improved. The process of public security in accordance with the law has continued to advance, and "the management of industry must be in charge of safety, the management of business must be in charge of safety, and the management of production and operation must be in charge of safety" has been written into the newly revised Production Safety Law of the People's Republic of China, further clarifying the responsibility for production safety in all aspects, and providing important compliance and guarantee for the work of mine safety.

The reform of mine safety system brings new opportunities. The mine safety supervision and supervision system of "national supervision, local supervision and enterprise responsibility" has been further improved, and the production safety management system that combines strict hierarchical governance with industry governance, government governance and social governance has been gradually improved. Strengthen the supervision and inspection of local governments to implement the territorial supervision responsibility for mine safety, promote local mine safety supervision departments to strengthen supervision and law enforcement, strictly investigate and punish violations of laws and regulations in accordance with the law, urge enterprises to implement the main responsibility for production safety, establish and improve the internal mechanism of self-restraint and continuous improvement, and bring new opportunities for mine safety work.

The optimization of energy consumption and production structure brings new opportunities. With the reform of energy consumption structure, the elimination and withdrawal of backward production capacity has been further promoted, and the industrial structure of mines has been continuously optimized. Taking large modern coal mines with high safety level as the main body has become the development direction of coal industry. Through the elimination and closure, integration and reorganization, and upgrading, the industrial structure of non-coal mines has been continuously optimized. Mine safety production capacity and disaster prevention and control capacity have been further strengthened, bringing new opportunities for stable and good mine safety production.

Technological innovation brings new opportunities. A new round of scientific and technological revolution and industrial transformation is accelerating, a large number of advanced technologies and equipment such as mining, mining and production, disaster prevention and control are widely used, and safety risk management and control technologies and measures are constantly improving. With the deep integration of 5G, artificial intelligence, cloud computing and other new generation information technologies into mines, intelligent equipment and robots are widely used, and the pace of intelligent mining construction is accelerating. Less human or unmanned mining has gradually become a reality, and scientific and technological innovation provides new impetus for mine safety production.

Second, guiding ideology and planning objectives

(1) Guiding ideology.

 To protect the life safety of employees as the fundamental purpose, improve the mine safety supervision and supervision system, strengthen the system concept, adhere to law and order, science and technology strong safety, source management, precise prevention and control and social co-governance, fundamentally eliminate hidden dangers of accidents, fundamentally solve problems, comprehensively improve the comprehensive management efficiency of mine safety, and achieve high-quality development of mine safety.

(2) Basic principles.

-- Upholding the leadership of the Party. 

-- Pursuing safe development. 

-- Upholding law and order. We will improve the system of regulations and standards for mine safety, improve laws, regulations, rules and standards related to mine production safety, strengthen supervision, supervision and law enforcement of production safety, and raise the level of legalization of production safety.

-- Addressing the root causes. 

-- Adhering to science and technology to strengthen security. Strengthen scientific and technological research on mine safety, comprehensively improve the level of scientific and technological equipment, promote the transparency of mine geology, the precision of disaster warning, the intelligent mining, the information of supervision and supervision, and the unmanned disaster relief exploration, and constantly improve the essential safety level of mines.

-- Adhering to precision prevention and control. Establish a dual prevention mechanism for hierarchical enterprise risk management and control and hidden danger investigation and management, implement hierarchical and classified supervision and supervision according to the risk level, deepen the "Internet + supervision and supervision", promote the professionalization, precision, standardization, and informatization of law enforcement, and improve the efficiency of supervision and supervision.

-- Upholding social co-governance. Promote the implementation of the leadership responsibilities of local party committees and governments at all levels, the responsibility of departmental supervision and supervision and the main responsibility of enterprises, guide the participation of social forces, and build a social co-governance system for mine safety.

(3) Planning objectives.

By the end of the "14th Five-Year Plan", the mine safety regulations and standards system is more complete, the safety production responsibility system is more sound, the safety prevention and control system is more scientific, the safety supervision and supervision system is more perfect, the information and intelligent level is greatly improved, the basic support ability is significantly enhanced, the supervision and supervision efficiency is significantly improved, and the comprehensive management efficiency of mine safety has made significant progress. The total number of accidents has continued to decline, and major accidents have been effectively curbed.