美国页岩气开发环境监管制度解析及其对中国页岩气的启示

Environmental regulatory system for shale gas development in the United States and its implications for China's shale gas development

关于美国页岩气开发环境监管体系的有效性长期以来存在争议,其焦点是“哈里伯顿漏洞”是否削弱了监管的能力和效果。为此,梳理了美国页岩气开发环境监管体系和相关法案,以得克萨斯州、宾夕法尼亚州和俄亥俄州等页岩气主产州作为重点对象,研究了页岩气开发作业阶段的州级环境监管特征,最后结合中国页岩气的特点和现状对页岩气环境监管提出了建议。研究结果表明:①美国对页岩气开发实行联邦政府和州政府双重环境监管,且以州政府为监管主体;②联邦政府通过法案提供最低监管标准或者指导性条款,各州政府在监管过程中既可以遵照联邦政府法案,也可以独立制订更高标准的法案;③州级监管具有自主决策、因地制宜的基本特征,因而各州采用的监管工具与强度各不相同;④在现有的监管实践中,州级监管覆盖了页岩气开发全过程,监管标准显著高于联邦政府要求,并不存在明显的漏洞。结论认为,借鉴美国页岩气管理经验,结合中国页岩气特征,提出了中国页岩气开发环境监管应制订专有的法律和规章,明确监管执法标准;加强专业化监管队伍建设,提高监管人员专业能力;鼓励地方政府根据本地区的特点实施差异化监管等建议。

The effectiveness of the environmental regulatory system for shale gas development in the United States has long been a subject of controversy,with the focus on whether the"Halliburton loophole"weakens regulatory capacity and outcomes.To address this issue,this study examines the environmental regulatory system and relevant laws governing shale gas development in the United States,specifically investigating the characteristics of state-level environmental regulation during the operational stage of shale gas development in key production states such as Texas,Pennsylvania,and Ohio.Finally,based on China's shale gas characteristics and current status,suggestions for enhancing shale gas environmental regulation provides are provided.The following research results are obtained.First,shale gas development in the United States is subject to dual supervision by the federal and state governments,with the primary regulatory role lying with the states.Second,the federal government establishes minimum regulatory standards and guidelines through legislation,while the states have the discretion to comply with federal laws or independently enact more stringent regulations during the regulatory process.Third,state-level regulation exhibits characteristics of independent decision-making and adaptation to local conditions,resulting in variations in regulatory tools and intensities across different states.Fourth,existing supervisory practices encompass the entire shale gas development process,with state-level standards significantly surpassing federal requirements and demonstrating no apparent loopholes.In conclusion,several suggestions are made based on the experience of shale gas management in the United States,combined with China's shale gas characteristics:China should establish specialized laws and regulations for shale gas development,clearly defining enforcement standards;Furthermore,efforts should be focused on strengthening the capacity of professional supervision teams and enhancing the expertise of supervisory personnel;Finally,encouraging local governments to implement region-specific regulatory approaches is also recommended.