对于非常规天然气补贴“新政”的几点认识

Some insights into the "New Policies" on unconventional natural gas subsidies

2019年6月,财政部发布《关于〈可再生能源发展专项资金管理暂行办法〉的补充通知》(业界称之为非常规天然气补贴“新政”),引起能源界的强烈关注和讨论。为此,对“新政”进行了详细地梳理和解读,认为其具有以下特点:①对非常规天然气补贴的时间和范围均有所扩大,补贴的时限延至2023年,补贴范围从页岩气、煤层气扩大到致密砂岩气;②补贴的对象是开采利用量,这符合市场化改革方向,其中对致密气仅计其开采利用量相较于2017年的增量;③按开发难度分别赋予不同的分配系数,从而给煤层气以优先的待遇,页岩气次之,致密砂岩气居后;④奖增罚减、多增多补;⑤促进取暖季调峰;⑥一定补贴总量下切蛋糕式、事后分配补奖金额。进一步分析了“新政”实施过程中可能面临的问题:①天然气井口产量与商品量间的差额不容忽视;②天然气商品量(利用量)的正确统计事关发展全局,应及时解决;③财政补贴对非常规气发展的促进程度需经实践检验;④应加大对非常规气补贴的总量。结论认为,对非常规油气生产的奖补政策尚需在实践中修改完善,需要在执行前或执行中作出明确的规定或提出对策。

In June 2019,the Ministry of Finance issued the"Supplementary Notice on'Provisional Measures on the Administration of Special Fund for the Development of Renewable Energy'",which is called the"New Policies"on unconventional natural gas subsidies in the energy industry and it arouses intensive concerns and discussions.In this paper,the"New Policies"was analyzed and illustrated.And the following characteristics were summarized.First,the subsidy period and scope of unconventional natural gas are increased.The subsidy period is extended to the year of 2023 and the subsidy scope is expanded from shale gas and coalbed methane to tight sandstone gas.Second,the subsidy object is the exploitation utilization volume,which is in accordance with the direction of market-oriented reform.And for tight gas,only the incremental of exploitation utilization volume compared with that in 2017 is taken into account.Third,different distribution coefficients are assigned on the basis of development difficulty,so the priority is highest for coalbed methane,then shale gas and lowest for tight sandstone gas.Fourth,reward is awarded for the increase and penalty is exerted for the reduction.The more the increase is,the more the subsidy is.Fifth,peak shaving in heating seasons shall be promoted.Sixth,the total subsidy is cut into several parts,and the supplementary reward is distributed afterwards.Then,the problems which may be faced during the implementation of the"New Policies"were analyzed further as follows.First,the difference between the wellhead production of natural gas and the commodity volume shall not be neglected.Second,the correct statistics on the commodity volume(utilization volume)of natural gas is related to the overall development situation and shall be solved in time.Third,practice is the only way to verify the promotion degree of financial subsidy to the development of unconventional gas.Fourth,it is necessary to increase the total subsidy of unconventional gas.In conclusion,the reward and subsidy policies on the production of unconventional oil and gas needs modifying and completing in the practice and the definite regulations or countermeasures shall be prepared before or during the implementation of the policies.