油气“探采合一”制度的实践与思考:以中国石油天然气集团有限公司为例

    Practice and reflection on the “integration of exploration and production” system for oil and gas: a case study of China National Petroleum Corporation

    • 摘要: “探采合一”制度是我国创新性将原先分立的油气探矿权、采矿权合二为一的重大管理举措,基本解决了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,促进了上游油气勘探开发一体化和上产增储一体化,但仍有诸多问题亟待明确。基于油气“探采合一”制度的背景分析,总结了制度实施以来中国石油天然气集团有限公司报告可供开采区块情况及矿业权管理实践和成效,认为油气“探采合一”制度解决了中国石油天然气集团有限公司多年来油气探采衔接管理上存在的问题,取得了三个方面的新进展:全面摸清矿业权家底,促进探矿权与采矿权阶段有序衔接;建立健全审核及预警机制,加快探转采节奏;实行精细化管理模式,规范油气勘探开采秩序。但现行制度仍存在报告期限不符合非常规油气及超深层资源等复杂油气藏勘探开发周期,难以实现探采矿权有序衔接;对于部分低品位资源或其他原因无法转采区块无特殊政策,难以实现探转采;部分区块用地审批衔接不畅,难以实现合规化管理等诸多问题。据此,提出三方面完善建议:针对各类特殊情形规定不同的转采期限,确保所有类型井探采有序衔接;对于无法按期转采情况允许企业中止或延期,长远角度加快探转采节奏;加强“探采合一”配套制度的衔接和细化,实现油气勘探开采有序开展。

       

      Abstract: The “integration of exploration and production” system is a significant management initiative in China that innovatively consolidates the previously separate oil and gas exploration rights and mining rights. It fundamentally resolves the legal issues of producing hydrocarbons during the exploration phase, aligns with the principles of oil and gas exploration and development, and promotes the integration of upstream exploration and production as well as the integration of production increase and reserves growth. However, numerous issues still require clarification. Based on an analysis of the background of the “integration of exploration and production” system for oil and gas, this paper summarizes the reported blocks available for production and the practices and effectiveness of mining rights management within China National Petroleum Corporation (CNPC) since the implementation of the system. It is concluded that the “integration of exploration and production” system has addressed long-standing issues in the management linkage between exploration and production at CNPC, achieving progress in three key areas: comprehensively clarifying the inventory of mining rights, facilitating the orderly transition from the exploration rights phase to the mining rights phase; establishing and improving review and early warning mechanisms to accelerate the pace of conversion from exploration to production; implementing a refined management model to standardize the order of oil and gas exploration and production. Nevertheless, the current system still faces several challenges, including: reporting deadlines that do not conform to the exploration and development cycles of complex reservoirs such as unconventional oil and gas and ultra-deep resources, making orderly linkage between exploration and mining rights difficult; the lack of specific policies for blocks that cannot be converted to production due to low-grade resources or other reasons, hindering the conversion from exploration to production; and poor coordination in land use approval procedures for some blocks, impeding compliant management. This paper proposes three recommendations for improvement: stipulate different conversion deadlines for various special circumstances to ensure orderly linkage for all well types; allow enterprises to suspend or extend deadlines for cases where conversion cannot be completed on schedule, ultimately accelerating the conversion pace from a long-term perspective; and strengthen the coordination and refinement of supporting systems for the “integration of exploration and production” to ensure the orderly conduct of oil and gas exploration and production.

       

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