强化矿权区块管理促进油气行业改革

Strengthening Management of Mineral Rights Blocks to Promote Reform in Oil and Gas Industry

改革开放以来,我国颁布了一系列矿权区块管理的法规,取得了明显成效。但我国近年来的油气勘探实践表明,矿权区块管理工作中还存在一些问题:被认为有远景且较易勘探开发的地区基本被全覆盖的情况下,矿权退出执行困难,给现在进行的区块招标带来负面影响;区块管理法规所要求的勘探开发中产生的地质资料上交未能得到充分实施,致使资料的公平利用遇到困难;按矿种划分并占有区块与资源综合勘探开发之间存在矛盾;区块出让收益金难以足额收取以及如何合理使用这部分资金。近年在矿权执行中出现了一些新动向,如外资公司未经区块主管部门同意/备案而作为作业者享有区块开发权,在集团公司内部各单位之间招标进行矿权的流转,各大石油公司形成了常态化的区块群之间的合作。这些动向虽然存在不完全符合矿权区块法规的问题,但在目前条件下也具有对勘探开发的促进作用。加强油气勘探开发区块管理,要从实践中总结经验,找出适合国情的区块退出具体规定;要落实区块管理中有关资料上交和开放的有关规定;建议设立新区新领域勘探的专用基金,国家收取的资源使用费大部分可用于这项基金,取自油气的各种税费也可部分用于充实该基金;同时,要进一步完善有关资源的法规体系。

Since the reform and opening up,China has promulgated a series of laws and regulations on the management of mineral rights blocks and achieved remarkable results.However,China′s oil and gas exploration practices in recent years have shown that there are still some problems worthy of attention in the manage-ment of mineral rights blocks.Difficulty in mineral rights withdrawal has brought negative impact to the cur-rent block bidding while the prospective areas that are easy to explore and develop are basically covered.The submission of geological data generated during exploration and development as required by laws and regula-tions of block management has not been fully implemented,resulting in some difficulties in the fair use of the data.Contradictions exist between the blocks occupied and divided by minerals and the comprehensive ex-ploration and development of resources.And it′s difficult to collect mineral right fees in full and rationally utilize the fees.In recent years,there have been some new trends in the implementation of mining rights.For example,foreign-funded companies have the right to develop the blocks as operators without the consent/recording of the competent authorities of the blocks,bids are invited among all the companies within the corporation for the transfer of mining rights,and normalized cooperation has been formed among major oil com-panies between block groups.Although these trends are not fully in compliance with the laws and regulations of mineral rights blocks,they can promote the exploration and development under the current conditions.To strengthen the management of oil and gas exploration and development blocks,it is necessary to sum up experience from practices and find out specific regulations for block withdrawal suitable for the national condi-tions,and to implement the relevant regulations on data submission and opening in block management.It is recommended to set up a dedicated fund for exploration in new areas.Most of the resource usage fees charged by the government can be used for this fund,and various taxes and fees from oil and gas can be used to replenish this fund.At the same time,the legal system related to resources should be further improved.