我国CO2地质封存审批监管体系关键问题研究

    Research on key issues of the approval and supervision system for CO2 geological storage in China

    • 摘要: 二氧化碳(CO2)地质封存作为实现“双碳”目标的关键负排放技术,其产业化发展亟需健全的审批监管体系支撑。本文系统研究了我国CO2地质封存审批监管体系面临的关键问题。研究结果表明,相较于欧美已建立较为完善的专项法规和全生命周期监管框架,我国在该领域还存在显著的制度空白。核心问题包括:①许可与监管框架缺失,缺乏针对CO2地质封存项目的准入、勘探和封存许可等制度;②深部地下孔隙空间法律属性不明,深部咸水层等封存空间既非传统地下空间也非矿产资源,导致其地质勘查活动“无法可依”;③深部地下孔隙空间物权归属困境,现行法律未明确其所有权与用益物权设定规则;④矿业权排他性与开发优先权冲突,现有矿业权制度阻碍非矿业权主体进入重叠区域进行封存,且缺乏解决权利冲突的优先顺位规则;⑤监测、报告与核查(MRV)标准缺位,现有指南缺乏量化标准,阻碍项目融资与国际认证;⑥场地封闭与责任移交制度缺失,缺乏长期监护与责任转移机制。针对上述问题,本文提出应立足国情、借鉴国际经验,分阶段构建监管体系:短期内明确项目准入流程与主管部门,中期破解权属与优先权等核心瓶颈,长期完善闭场责任制度并推动专项立法,为CO2地质封存产业化提供系统性制度保障。

       

      Abstract: Carbon dioxide geological storage is a key negative emission technology for achieving the “dual carbon” goals, and its industrial development urgently requires a sound approval and supervision system. This paper systematically studies the key problems faced by the approval and supervision system for CO2 geological storage in China. The research shows that compared with the relatively complete special regulations and full life cycle supervision frameworks established in Europe and the United States, there are significant institutional gaps in this field in China. The core issues include: ①the absence of a licensing and supervision framework, lacking systems for project access, exploration, and storage permits. ②Unclear legal attributes of pore space, with deep saline aquifers and other storage spaces neither being traditional underground spaces nor mineral resources, leading to a lack of legal basis for geological exploration activities. ③The dilemma of pore space property rights, with current laws not clearly defining the rules for setting ownership and usufructuary rights. ④The conflict between the exclusivity of mining rights and the priority of development, where the existing mining rights system hinders non-mining rights holders from entering overlapping areas for storage, and there is a lack of priority rules for resolving rights conflicts. ⑤The absence of monitoring, reporting, and verification(MRV) standards, with existing guidelines lacking quantification standards, hindering project financing and international certification. ⑥The absence of site closure and responsibility transfer systems, lacking long-term guardianship and responsibility transfer mechanisms. In response to these problems, this paper proposes that China should, based on its national conditions and drawing on international experience, build a supervision system in stages: in the short term, clarify the project access process and the competent authorities; in the medium term, solve core bottlenecks such as property rights and priority rights; in the long term, improve the site closure responsibility system and promote special legislation, providing a systematic institutional guarantee for the industrialization of CO2 geological storage.

       

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