二氧化碳地质封存空间管理国内外现状分析与启示

    The current situation and implications of space management for CO2 geological storage

    • 摘要: 通过分析国内外二氧化碳地质封存空间管理的现状与问题,提出完善我国相关制度的建议。采用文献分析与比较研究法,系统梳理了欧盟、美国、加拿大、英国、俄罗斯、哈萨克斯坦等国的二氧化碳地质封存相关法规,包括欧盟CCS指令、美国Ⅵ类井监管条例、加拿大阿尔伯塔省碳封存使用权条例、俄罗斯底土法等,对比国内深层空间管理缺失、权属不明及资源冲突等核心问题。在国际层面,已形成以专项立法为核心的监管框架,明确二氧化碳地质封存空间的国有属性,通过许可证制度实现全流程管控,涵盖选址评估、勘探许可、封存许可、长期责任移交等环节。而国内现行法规未界定二氧化碳地质封存空间的资源属性,导致权属不清、监管空白;深层空间与矿产开发权等重叠冲突,缺乏管理规范;现有地下空间管理政策聚焦城市地下空间,盐穴储气库等地方探索政策制度尚未形成国家层面的规范规则。我国亟需构建二氧化碳地质封存空间管理制度:一是立法明确地下空间资源国有属性,规范解决空间权属重叠等问题;二是建立勘探、封存、闭场三阶段许可制度,制定长期监测标准;三是将二氧化碳地质封存空间纳入国土空间规划体系,制定全国地下空间资源专项规划,为我国实现“双碳”目标下二氧化碳地质封存安全实施提供政策制度支撑。

       

      Abstract: Through analyzing the status and issues in the management of space for CO2 geological storage both domestically and internationally, this study proposes suggestions for improving China’s relevant regulatory framework. Utilizing literature analysis and comparative research, it systematically reviews CO2 geological storage regulations in the EU, US, Canada, UK, Russia, Kazakhstan, and other countries, including the EU CCS directive, the US class Ⅵ well regulations, Alberta’s carbon storage tenure regulation in Canada, and Russia’s subsoil law. These are contrasted with core domestic problems such as the lack of deep space management, undefined ownership rights, and resource conflicts in China. At the international level, a regulatory framework centered on specialized legislation has been established. This framework clearly defines the state ownership of space for CO2 geological storage and implements full lifecycle management through a permitting system, covering site assessment, exploration permits, storage permits, and long-term liability transfer. In contrast, current domestic Chinese regulations fail to define the resource attributes of space for CO2 geological storage, leading to unclear ownership and regulatory gaps. Conflicts arise from overlapping rights in deep space and mineral development, with a lack of management standards. Existing subsurface space management policies primarily focus on urban underground areas, and localized policy explorations for projects like salt cavern gas storage have yet to form standardized national-level rules. China urgently needs to establish a spatial management system for CO2 geological storage. Firstly, legislation should explicitly define the state ownership of subsurface resources and standardize solutions for issues like overlapping rights. Secondly, a three-phase permitting system (exploration, storage, closure) should be established, along with long-term monitoring standards. Thirdly, space for CO2 geological storage should be integrated into the territorial spatial planning system, and a national specialized plan for subsurface space resources should be formulated. This will provide the policy and institutional foundation for the safe implementation of CO2 geological storage in support of China’s “dual carbon” goals.

       

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