非常规天然气资源开发政策困境及对策建议

Policy Dilemma of Unconventional Natural Gas Resources Development and Suggestions on Countermeasures

近年来,我国非常规天然气勘探开发实现较快发展,煤层气勘探成效显著,产量稳步增长;页岩气勘探获重大突破,产量快速增加。我国页岩气、煤层气等非常规天然气具有持续快速发展的资源基础和潜力,但发展前景充满不确定性,面临的政策困境、问题对非常规资源开发的制约和束缚日益突出,主要体现为矿业权配置、矿业权重叠、资源管理政策、政策配套和协调、政策支持机制与方式5个方面。为加强非常规资源开发,推进油气增储上产,除不断强化关键技术和工程装备攻关外,迫切需要加快构建系统性、综合性、长期稳定、配套协调的非常规天然气资源开发的政策体系。具体对策建议着眼长远,清晰战略定位,加大矿业权竞争性出让力度,推进矿业权流转,促进投资;创新油气矿业权管理机制,探索符合非常规资源特点的矿权管理模式,推进能源资源综合勘查开采;完善政策支持机制和方式,在规范资源开发的同时切实促进开发;改革完善非常规资源开发利益分配机制,充分发挥资源地参与积极性;加强监管,构建央地联合监管新体制机制,着力提高监管专业化水平等。

China’s unconventional natural gas exploration and development has experienced a rapid development in recent years.Remarkable achievements were made in CBM exploration,with the output growing steadily.Important breakthroughs were also made in shale gas exploration,with the output rising rapidly.China’s unconventional natural gas,such as shale gas and CBM,has the basis and potential of resources for sustainable and rapid development.However,the prospect for development is full of uncertainties.The policy dilemma and existing problems have become the bottlenecks affecting development of unconventional resources.These bottlenecks are concentrated in five areas--distribution of royalties,overlapping of royalties,policies on resources management,follow-up and coordinating policies,and policy support mechanism and method.To enhance development of unconventional resources and increase the reserves and production,in addition to continual efforts for research on key technology and engineering equipment,it is of urgency to accelerate construction of a systematic,integrated,long-term,stable and coordinating system of policies for development of unconventional natural gas resources.It is proposed that the concrete countermeasures should be far-sighted and have a clear-cut strategic position.The competitive transfer of royalty should be further deregulated to promote movement and transfer of royalty and stimulate investment.The management mechanism of oil and gas royalty should be innovated in the efforts to find out a royalty management pattern that is in line with the characteristics of unconventional resources,thus promoting integrated prospecting and production of energy resources.It is necessary to perfect the policy support mechanism and substantially promote development on the basis of standardizing resources development.The profit-sharing mechanism for unconventional resources development should be reformed and perfected to bring the initiative of energy involvement into full play.With the greater efforts for supervision,the central and local government should formulate a new joint supervision system mechanism to highlight specialization level of supervision.