我国油气探采合一制度改革与实践

doi:10.3969/j.issn.1672-7703.2023.06.002

摘要/Abstract

摘要： 为促进油气探矿权和采矿权的有序衔接，针对多年存在的问题，自然资源部于2019年12月印发《自然资源部关于推进矿产资源管理改革若干事项的意见（试行）》，首次提出了油气探采合一的理念。油气探采合一制度结合油气资源勘探开发特点，能够初步解决油气资源勘查阶段获取油气的合法性问题，符合油气勘探开发规律，有助于激发活力，促进上游油气勘探开发，但仍有诸多问题待明确。在梳理报告可供开采区块数据信息基础上，结合调查研究，总结油气探采合一制度执行情况，分析认为油气探采合一制度在执行层面上存在管理需要进一步规范、与当前制度不衔接和监管责任未落实等问题。针对存在的问题，建议从发现可供开采资源的报告期、报告可供开采的油气资源回执两方面规范油气探采合一制度，从矿业权审批、两证管理方面做好探采合一制度与相关行政许可制度的衔接，进一步完善探采合一的监管制度并加快修改法律法规条款，并结合当前油气行业发展形势，提出了油气探采合一“一证式”管理设想。

关键词: 油气矿业权, 探采合一制度, 可供开采资源, 两证管理

Abstract: In order to promote the orderly connection between oil and gas exploration rights and mining rights, and to address long-standing issues, the Ministry of Natural Resources issued the “Opinions of the Ministry of Natural Resources on several issues concerning promoting the reform of mineral resources management (for trial implementation)” in December 2019, in which the concept of the integrated oil and gas exploration and production was first proposed. By considering the characteristics of oil and gas resources exploration and development, the integrated oil and gas exploration and production system enables to preliminarily address the legality of acquiring oil and gas during the exploration stage, which aligns with the laws governing oil and gas exploration and development, and helps stimulate vitality and promote the upstream oil and gas exploration and development. However, there are still multiple issues to be clarified. Based on a review of data and information of exploitable blocks, and supported by investigation and research, the implementation status of the integrated oil and gas exploration and production system is summarized and analyzed, which indicates that there are problems at the operational level, such as the need for further standardization in the management, a lack of alignment with the current system, and an inadequate enforcement of supervisory responsibilities. In view of this, it is proposed to standardize the integrated system from two aspects of the reporting period of the exploitable resources and the issuance of receipts for exploitable oil and gas resources. The connection between the integrated system and relevant administrative licensing systems should be improved at two levels of mining rights approval and two-certificate management. The supervisory system for the integrated system should be further improved and the revision of relevant legal and regulatory provisions should be accelerated. Furthermore, by combing with the current development situation in the oil and gas industry, the concept of a unified management of the integrated oil and gas exploration and production, namely the “one-certificate approach”, is put forward.

中图分类号:

TE02

韩亚琴, 毛俊莉, 司芗, 文雅萍, 姚星. 我国油气探采合一制度改革与实践[J]. 中国石油勘探, 2023, 28(6): 8-14.

Han Yaqin, Mao Junli, Si Xiang, Wen Yaping, Yao Xing. Reform and practice of integrated oil and gas exploration and production system in China[J]. China Petroleum Exploration, 2023, 28(6): 8-14.

参考文献

[1] 自然资源部.关于推进矿产资源管理改革若干事项的意见（试行）[EB/OL].(2019-12-31)[2022-05-21]. http://gi.mnr.gov.cn/202001/t20200109_2497042.html.
Ministry of Natural Resources. Opinions on promoting the reform of mineral resources management (for trial implementation) [EB/OL].(2019-12-31)[2022-05-21]. http://gi.mnr.gov.cn/202001/t20200109_2497042.html.
[2] 全国人民代表大会常务委员会.中华人民共和国矿产资源法[Z]. 2009-08-27.
Standing Committee of the National People’s Congress. Mineral resources law of the People’s Republic of China[Z]. 2009-08-27.
[3] 国务院.中华人民共和国矿产资源法实施细则[Z]. 1994-03-26.
State Council. Implementation rules of the mineral resources law of the People’s Republic of China [Z]. 1994-03-26.
[4] 韩亚琴，王升辉，刘立.浅析我国油气试采制度[J].中国矿业，2020,29(5):18-21.
Han Yaqin, Wang Shenghui, Liu Li. Analysis on China’s oil and gas trail production system[J]. China Mining Magazine, 2020,29(5):18-21.
[5] 李国欣，何海清，梁坤，等.我国油气资源管理改革与中国石油创新实践[J].中国石油勘探，2021,26(2):45-54.
Li Guoxin, He Haiqing, Liang Kun, et al. China’s oil and gas resource management reform and innovative practice of PetroChina[J]. China Petroleum Exploration, 2021,26(2):45-54.
[6] 刘娅昭，张海君，刘超英.放开油气勘查开采准入限制对国有大型石油公司勘探开发活动的影响[J].中国石油勘探，2021,26(1):99-107.
Liu Yazhao, Zhang Haijun, Liu Chaoying. Impact of oil and gas exploration and exploitation access release on exploration activities of giant state-owned petroleum enterprises in China[J]. China Petroleum Exploration, 2021,26(1):99-107.
[7] 潘继平.“十四五”油气增储上产的政策困境及对策建议[J].石油科技论坛，2021,40(1):7-14.
Pan Jiping. Policy bottlenecks for increasing oil and gas reserves and production in 14th Five-Year Plan Period and suggestions on countermeasures[J]. Petroleum Science and Technology Forum, 2021,40(1):7-14.
[8] 中共中央办公厅，国务院办公厅.关于统筹推进自然资源资产产权制度改革的指导意见[EB/OL].(2019-04-14)[2022-05-21]. http://www.gov.cn/zhengce/2019-04/14/content5382818_.htm?trs=1.
The General Office of the Central Committee of the Communist Party of China, the General Office of the State Council. Guiding opinions on promoting the reform of the natural resource asset property right system [EB/OL].(2019-04-14)[2022-05-21]. http://www.gov.cn/zhengce/2019-04/14/content_5382818.htm?trs=1.
[9] 韩亚琴，景东升，郭丽娜，等.我国油气资源勘探开发管理模式研究[J].中国矿业，2021,30(6):29-32.
Han Yaqin, Jing Dongsheng, Guo Lina, et al. Research on the management mode of China’s upstream oil and gas resources exploration and development[J]. China Mining Magazine, 2021, 30(6):29-32.
[10] 王升辉，高阳，郭继刚.美国油气资源管理对我国的借鉴[R].北京：自然资源部油气资源战略研究中心，2017.
Wang Shenghui, Gao Yang, Guo Jigang. The reference of United States oil and gas resources management mechanism in China[R]. Beijing: Strategic Research Center of Oil and Gas Resource, Ministry of Natural Resources, 2017.
[11] 郭继刚，申延平，徐静，等.加拿大阿尔伯塔省油气资源管理研究与启示[J].中国矿业，2020,29(4):25-31,66.
Guo Jigang, Shen Yanping, Xu Jing, et al. Study of the management of oil and gas resources in Alberta,Canada and its implications[J]. China Mining Magazine, 2020,29(4):25-31,66.
[12] 田世存，张国庆，孙东方，等.墨西哥油气资源概况及第一轮油气招标简介[J].国际石油经济，2014,22(12):28-35.
Tian Shicun, Zhang Guoqing, Sun Dongfang, et al. Overview of Mexico’s oil and gas resources and the first round of oil and gas bidding[J]. International Petroleum Economics, 2014,22(12):28-35.
[13] 韩亚琴，司芗，姚星.油气探矿权区块设置与出让管理研究项目[R].北京：自然资源部油气资源战略研究中心，2021.
Han Yaqin, Si Xiang, Yao Xing. Research on the block setting and transfer management of oil gas exploration[R]. Beijing：Strategic Research Center of Oil and Gas Resources, Ministry of Natural Resources, 2021.
[14] 山西省人民政府办公厅.关于完善煤层气试采审批管理工作的通知[EB/OL].(2016-10-17)[2022-05-21].http://www.shanxi.gov.cn/sxszfxxgk/sxsrmzfzcbm/sxszfbgt/flfg_7203/bgtgfxwj_7206/201610/t20161017_254247.shtml.
General Office of the People’s Government of Shanxi Province. Notice on improving the administration of examination and approval of coalbed methane test extraction[EB/OL].(2016-10-17)[2022-05-21]. http://www.shanxi.gov.cn/sxszfxxgk/sxsrmzfzcbm/sxszfbgt/flfg_7203/bgtgfxwj_7206/201610/t20161017_254247.shtml.
[15] 国家安全生产监督管理总局.非煤矿山企业安全生产许可证实施办法[Z]. 2009-06-08.
State Administration of Work Safety. Measures for the Implementation of Work Safety Permits for Non-coal Mine Enterprises [Z]. 2009-06-08.
[16] 韩亚琴，刘立，姚星，等.关于优化油气资源勘探开发行政审批事项的研究[J].中国矿业，2020,29(6):21-26.
Han Yaqin, Liu Li, Yao Xing, et al. Research on optimizing oil and gas exploration and development administrative approval[J]. China Mining Magazine, 2020,29(6):21-26.
[17] 国务院.矿产资源勘查区块登记管理办法[EB/OL].(1998-02-12)[2022-05-15]. http://www.mnr.gov.cn/zt/zh/xzzfgs/yj/fg/201702/t20170206_2029864.html.
The State Council. Measures for the area registration administration of mineral resources exploration and survey[EB/OL].(1998- 02-12)[2022-05-15]. http://www.mnr.gov.cn/zt/zh/xzzfgs/yj/fg/201702/t20170206_2029864.html.
[18] 中国共产党第十九届中央委员会.高举中国特色社会主义伟大旗帜为全面建设社会主义现代化国家而团结奋斗[EB/OL].(2022-10-22) [2023-05-15]. https://www.12371.cn/special/20da/bg/.
The 19th Central Committee of the CPC. Hold high the great banner of socialism with Chinese characteristics and strive in unity to build a modern socialist country in all respects [EB/OL]. (2022-10-22)[2023-05-15]. https://www.12371.cn/special/20da/bg/.
[19] 景东升，韩亚琴，姚星.油气资源上游管理改革研究项目[R].北京：自然资源部油气资源战略研究中心，2020.
Jing Dongsheng, Han Yaqin, Yao Xing. Research project on upstream management reform of oil and gas resources[R]. Beijing：Strategic Research Center of Oil and Gas Resources, Ministry of Natural Resources,2020.
[20] 韩亚琴，姚星，景东升.油气矿业权登记审批支撑与研究[R].北京：自然资源部油气资源战略研究中心，2020.
Han Yaqin, Yao Xing, Jing Dongsheng. Support and research on the registration and approval of oil and gas mining rights [R]. Beijing：Strategic Research Center of Oil and Gas Resources, Ministry of Natural Resources, 2020.
[21] 文雅萍，黄梦曦，卜小平，等.“双随机、一公开”新方式下的油气资源监督管理[J].中国矿业，2019,28(11):78-82.
Wen Yaping, Huang Mengxi, Bo Xiaoping, et al. Oil and gas resource regulatory and management under the new method of “double random, one publicity”[J]. China Mining Magazine, 2019,28(11):78-82.
[22] 韩亚琴.我国油气资源勘查开采管理改革的几点思考[J].中国国土资源经济，2020,33(10):49-53.
Han Yaqin. Thoughts on China’s oil and gas resources exploration and management reform[J].Natural Resource Economics of China, 2020,33(10):49-53.
[23] 韩亚琴，司芗.油气探采一体化管理制度研究项目[R].北京：自然资源部油气资源战略研究中心，2020.
Han Yaqin, Si Xiang. Research on integrated management system of oil gas exploration and development[R]. Beijing：Strategic Research Center of Oil and Gas Resources, Ministry of Natural Resources, 2020.