国有大型油气企业矿权流转机制及建议
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摘要
2017年,我国出台了《关于深化石油天然气体制改革若干意见》,随后有关部门又相继出台了一系列油气体制改革新政,其中加强油气矿权流转就是落实上述改革的重要内容之一。在油气体制改革的背景下,研究国有大型油气企业矿权流转机制,分析流转过程中出现的问题进而提出解决路径,既有必要性更有紧迫性。为此,结合其他国家矿权管理和国际石油公司矿权流转的主要做法,基于我国油气矿权流转政策、竞争性出让和流转实践,提出了国有大型油气企业矿权流转的基本思路、机制及措施建议。结论认为:①应遵循分级、分类、分阶段的指导思想,总体上坚持市场化的原则,按照"四类别、三方式、两阶段"的思路进行矿权流转框架设计;②成立矿权管理领导小组,建立专业化风险勘探公司,完善矿权流转决策机制,健全矿权流转管理办法;③应持续加强Ⅰ类和Ⅱ类区块的矿权保护和内部流转,近期加强重点保障区块专项投入、创新勘探与未动用储量项目管理体制机制、创新甲乙方合作运行机制等,远期探索积极有效的矿权管理制度、建立矿权保护和流转的长效联动机制、培育竞争有序的内部矿权市场;④稳健开展Ⅲ类区块的合资合作,如适当增加合作勘探开发矿权比重,重点关注海上及深水项目合作勘探开发等;⑤逐步探索Ⅳ类区块的外部竞争性流转,近期结合国家资质审批进展逐步扩大流转范围,远期实现市场化竞争性流转。
China issued in 2017 Some Opinions on Deepening Reform of Petroleum and Natural Gas System. Subsequently, relevant ministries successively issued a series of new policies on oil and gas related reform, one of which is that the marketization process of oil and gas exploration and development is encouraged to be accelerated. Under the background of oil and gas system reform, it is of great practical significance to study the assignment mechanism among those state-owned giant oil and gas enterprises. Therefore, combined with the main practices of mineral rights management in other countries and the assignment of mineral rights of international oil companies, based on China's oil and gas mineral rights assignment policy, competitive assignment and assignment practices, the basic ideas and mechanisms for the assignment of mineral rights of giant state-owned oil and gas enterprises were proposed as follows.(1) Follow the guiding ideology of hierarchical classification and phasing, and generally adhere to the principles of marketization and of "four categories, three methods & two stages" in the design of the framework of mineral right assignment.(2) Set up a mineral rights management leading group as well as specialized risk exploration companies, improve the decision-making mechanism for the assignment of mineral rights, and complete the management of the assignment of mineral rights.(3) Continue to strengthen the protection and internal assignment of mineral rights in Classes I and II blocks. In the short term, it is necessary to strengthen special investment in key guarantee blocks, continue to promote internal assignment, and innovate exploration and unused reserves project management system and mechanism, innovate the cooperation mechanism of Party A and Party B. In the long term, it is necessary to explore effective mineral rights management system,establish a linkage mechanism for mineral rights protection and assignment, and foster a competitive and competitive internal mineral rights market.(4) Appropriately increase the proportion of cooperative exploration and development of mineral rights joint venture and cooperation of Class III blocks, and focus on offshore and deep-water cooperative exploration and development projects.(5) Gradually explore the external competitive assignment of Class IV blocks, expand the scope of assignment in light of the progress of national qualification approval in the short run, and realize market-oriented competitive assignment in the long run.
China issued in 2017 Some Opinions on Deepening Reform of Petroleum and Natural Gas System. Subsequently, relevant ministries successively issued a series of new policies on oil and gas related reform, one of which is that the marketization process of oil and gas exploration and development is encouraged to be accelerated. Under the background of oil and gas system reform, it is of great practical significance to study the assignment mechanism among those state-owned giant oil and gas enterprises. Therefore, combined with the main practices of mineral rights management in other countries and the assignment of mineral rights of international oil companies, based on China's oil and gas mineral rights assignment policy, competitive assignment and assignment practices, the basic ideas and mechanisms for the assignment of mineral rights of giant state-owned oil and gas enterprises were proposed as follows.(1) Follow the guiding ideology of hierarchical classification and phasing, and generally adhere to the principles of marketization and of "four categories, three methods & two stages" in the design of the framework of mineral right assignment.(2) Set up a mineral rights management leading group as well as specialized risk exploration companies, improve the decision-making mechanism for the assignment of mineral rights, and complete the management of the assignment of mineral rights.(3) Continue to strengthen the protection and internal assignment of mineral rights in Classes I and II blocks. In the short term, it is necessary to strengthen special investment in key guarantee blocks, continue to promote internal assignment, and innovate exploration and unused reserves project management system and mechanism, innovate the cooperation mechanism of Party A and Party B. In the long term, it is necessary to explore effective mineral rights management system,establish a linkage mechanism for mineral rights protection and assignment, and foster a competitive and competitive internal mineral rights market.(4) Appropriately increase the proportion of cooperative exploration and development of mineral rights joint venture and cooperation of Class III blocks, and focus on offshore and deep-water cooperative exploration and development projects.(5) Gradually explore the external competitive assignment of Class IV blocks, expand the scope of assignment in light of the progress of national qualification approval in the short run, and realize market-oriented competitive assignment in the long run.
引文
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[11]王晓群,王歌,周泽山.中国石油推行首批矿权内部流转[N].中国石油报,2017-12-08.Wang Xiaoqun,Wang Ge&Zhou Zeshan.China National Petroleum Corporation promotes the internal assignment of the first batch of mining rights[N].China Petroleum Daily,2017-12-08.
[12]李冰.矿权区块内部市场化流转启动[N].中国石化报,2017-12-19.Li Bing.Initiation of market-oriented assignment within mining rights blocks[N].China Petrochemical News,2017-12-19.
[13]周光荣,张介辉,王平,唐协华.持证区块矿权评价[C]//加强地质工作促进社会经济和谐发展:2007年华东六省一市地学科技论坛论文集.合肥:安徽省地质学会,2007.Zhou Guangrong,Zhang Jiehui,Wang Ping&Tang Xiehua.Assessment of mineral rights in certified blocks[C]//Strengthening geological Work to Promote Harmonious Development of Social Economy:2007 Regional Science and Technology Forum of Six Provinces and One City in East China.Hefei:Anhui Geological Society,2007.
[14]徐东,唐国强,晏飞,江兆龙.油气矿权系列改革对国有企业的影响探析[J].中国矿业,2018,27(2):25-31.Xu Dong,Tang Guoqiang,Yan Fei&Jiang Zhaolong.The impact of mining rights reform on large state-owned petroleum enterprises[J].China Mining Magazine,2018,27(2):25-31.
[15]国土资源部.国土资源部关于开展煤炭矿业权审批管理改革试点的通知[J].国土资源通讯,2010(18):36-38.Ministry of Land and Resources.Circular of the Ministry of Land and Resources on the pilot reform of the examination and approval management of coal and mining rights[J].National Land and Resources Information,2010(18):36-38.
[16]陈守海,罗东坤.我国油气工业上游准入政策研究[J].商场现代化,2008(10):350-351.Chen Shouhai&Luo Dongkun.Research on upstream access policy of China's oil and gas industry[J].Market Modernization,2008(10):350-351.
[17]王泽功.动态视角下的探矿权研究[D].长沙:湖南大学,2013.Wang Zegong.The research on the prospecting right from the dynamic perspective[D].Changsha:Hunan Normal University,2013.
[18]贾楠.以承包方式变相转让采矿权的合同效力分析[J].国土资源导刊,2013(11):56-58.Jia Nan.Analysis of contract effectiveness of assignment mining rights by contracting in a disguised way[J].Land and Resources Herald,2013(11):56-58.
[19]王清华.中国矿业权流转法律制度研究[D].上海:上海交通大学,2012.Wang Qinghua.Research on Chinese legal system of the grant and assignment of mining rights[D].Shanghai:Shanghai Jiao Tong University,2012.
[20]薛庆,王震.美国矿权租赁交易与“页岩气革命”[J].天然气工业,2017,37(12):99-105.Xue Qing&Wang Zhen.American mining rights lease deals and"Shale Gas Revolution"[J].Natural Gas Industry,2017,37(12):99-105.
[21]国土资源部.中央地方两级地勘基金总规模达130亿元[J].资源与人居环境,2009(20):18-19.Ministry of Land and Resources.The central and local geological prospecting funds totaled 13 billion Yuan[J].Resources Environment Inhabitant,2009(20):18-19.
[22]刘应红,徐东,唐国强.油气市场准入改革对国有大型石油石化企业的影响--对《深化石油天然气体制改革的若干意见》的解读[J].天然气工业,2017,37(7):115-120.Liu Yinghong,Xu Dong&Tang Guoqiang,Impact of oil and gas market access reform on giant state-owned petroleum and petrochemical enterprises in China:Interpretation of Several Opinions on Deepening Oil and Gas System Reform[J].Natural Gas Industry,2017,37(7):115-120.
[2]新华网.李克强主持召开新一届国家能源委员会首次会议[EB/OL].(2014-04-20)[2019-04-09].http://www.xinhuanet.com//photo/2014-04/20/c_126411441.htm.Xinhua News Agency.Li Keqiang presided over the First Meeting of the New National Energy Commission[EB/OL].(2014-04-20)[2019-04-09].http://www.xinhuanet.com//photo/2014-04/20/c_126411441.htm.
[3]郭焦锋.上游改革为天然气成为主体能源打下基础[J].国企管理,2017(8):20-21.Guo Jiaofeng.Upstream reform lays the foundation for natural gas to become the main energy source[J].China State-owned Enterprise Management,2017(8):20-21.
[4]史如梦,杨建宇.中国与澳大利亚西澳州矿业权管理比较及启示[J].价值工程,2013,42(12):274-276.Shi Rumeng&Yang Jianyu.Comparison and revelation of mining rights management between China and western Australian[J].Value Engineering,2013,42(12):274-276.
[5]胡梦成,康永尚,王伟洪,刘启鹏,李喆.美国油气行业管理模式及其对我国的借鉴意义[J].中国矿业,2018,27(8):22-27.Hu Mengcheng,Kang Yongshang,Wang Weihong,Liu Qipeng&Li Zhe.The oil and gas industry management model in the United States of America and its reference to China[J].China Mining Magazine,2018,27(8):22-27.
[6]人民网.中共中央国务院印发《关于深化石油天然气体制改革的若干意见》[EB/OL].(2017-05-21)[2019-02-11].http://politics.people.com.cn/n1/2017/0521/c1001-29289522.html.People's Daily Online.Several opinions on Deepening the Reform of Petroleum and Natural Gas System Issued by the Central Committee of the CPC and the State Council[EB/OL].(2017-05-21)[2019-02-11].http://politics.people.com.cn/n1/2017/0521/c1001-29289522.html.
[7]国土资源部.中办国办印发《矿业权出让制度改革方案》全面推进竞争性出让调整矿业权审批权限[EB/OL].(2017-06-16)[2019-02-11].http://www.mnr.gov.cn/dt/ywbb/201810/t20181030_2287039.html.Ministry of Land and Resources.The state office of the central government issued the Reform Plan for the Assignment System of Mining Rights to comprehensively promote competitive assignment and adjust the examination and approval authority of mining rights[EB/OL].(2017-06-16)[2019-02-11].http://www.mnr.gov.cn/dt/ywbb/201810/t20181030_2287039.html.
[8]国务院.国务院关于全民所有自然资源资产有偿使用制度改革的指导意见[EB/OL].(2017-01-16)[2019-02-11].http://www.gov.cn/zhengce/content/2017-01/16/content_5160287.htm.The State Council.Guiding opinions of the State Council on the reform of the compensated use system of natural resources assets owned by the whole people[EB/OL].(2017-01-16)[2019-02-11].http://www.gov.cn/zhengce/content/2017-01/16/content_5160287.htm.
[9]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[EB/OL].(2009-08-27)[2019-02-11].http://law.npc.gov.cn/FLFG/flfgByID.action?flfgID=34882030&showDetailType=QW&zlsxid=01.The Standing Committee of National People's Congress.Law of the People's Republic of China on mineral resources[EB/OL].(2009-08-27)[2019-02-11].http://law.npc.gov.cn/FLFG/flfgByID.action?flfgID=34882030&showDetailType=QW&zlsxid=01,2009-08-27.
[10]黄锡生,林北水.论矿权的概念、性质和体系[J].中国地质大学学报(社会科学版),2007(6):45-49.Huang Xisheng&Lin Beishui.A study on the definition,nature and system of the rights of mineral resources[J].Journal of China University of Geosciences(Social Sciences Edition),2007(6):45-49.
[11]王晓群,王歌,周泽山.中国石油推行首批矿权内部流转[N].中国石油报,2017-12-08.Wang Xiaoqun,Wang Ge&Zhou Zeshan.China National Petroleum Corporation promotes the internal assignment of the first batch of mining rights[N].China Petroleum Daily,2017-12-08.
[12]李冰.矿权区块内部市场化流转启动[N].中国石化报,2017-12-19.Li Bing.Initiation of market-oriented assignment within mining rights blocks[N].China Petrochemical News,2017-12-19.
[13]周光荣,张介辉,王平,唐协华.持证区块矿权评价[C]//加强地质工作促进社会经济和谐发展:2007年华东六省一市地学科技论坛论文集.合肥:安徽省地质学会,2007.Zhou Guangrong,Zhang Jiehui,Wang Ping&Tang Xiehua.Assessment of mineral rights in certified blocks[C]//Strengthening geological Work to Promote Harmonious Development of Social Economy:2007 Regional Science and Technology Forum of Six Provinces and One City in East China.Hefei:Anhui Geological Society,2007.
[14]徐东,唐国强,晏飞,江兆龙.油气矿权系列改革对国有企业的影响探析[J].中国矿业,2018,27(2):25-31.Xu Dong,Tang Guoqiang,Yan Fei&Jiang Zhaolong.The impact of mining rights reform on large state-owned petroleum enterprises[J].China Mining Magazine,2018,27(2):25-31.
[15]国土资源部.国土资源部关于开展煤炭矿业权审批管理改革试点的通知[J].国土资源通讯,2010(18):36-38.Ministry of Land and Resources.Circular of the Ministry of Land and Resources on the pilot reform of the examination and approval management of coal and mining rights[J].National Land and Resources Information,2010(18):36-38.
[16]陈守海,罗东坤.我国油气工业上游准入政策研究[J].商场现代化,2008(10):350-351.Chen Shouhai&Luo Dongkun.Research on upstream access policy of China's oil and gas industry[J].Market Modernization,2008(10):350-351.
[17]王泽功.动态视角下的探矿权研究[D].长沙:湖南大学,2013.Wang Zegong.The research on the prospecting right from the dynamic perspective[D].Changsha:Hunan Normal University,2013.
[18]贾楠.以承包方式变相转让采矿权的合同效力分析[J].国土资源导刊,2013(11):56-58.Jia Nan.Analysis of contract effectiveness of assignment mining rights by contracting in a disguised way[J].Land and Resources Herald,2013(11):56-58.
[19]王清华.中国矿业权流转法律制度研究[D].上海:上海交通大学,2012.Wang Qinghua.Research on Chinese legal system of the grant and assignment of mining rights[D].Shanghai:Shanghai Jiao Tong University,2012.
[20]薛庆,王震.美国矿权租赁交易与“页岩气革命”[J].天然气工业,2017,37(12):99-105.Xue Qing&Wang Zhen.American mining rights lease deals and"Shale Gas Revolution"[J].Natural Gas Industry,2017,37(12):99-105.
[21]国土资源部.中央地方两级地勘基金总规模达130亿元[J].资源与人居环境,2009(20):18-19.Ministry of Land and Resources.The central and local geological prospecting funds totaled 13 billion Yuan[J].Resources Environment Inhabitant,2009(20):18-19.
[22]刘应红,徐东,唐国强.油气市场准入改革对国有大型石油石化企业的影响--对《深化石油天然气体制改革的若干意见》的解读[J].天然气工业,2017,37(7):115-120.Liu Yinghong,Xu Dong&Tang Guoqiang,Impact of oil and gas market access reform on giant state-owned petroleum and petrochemical enterprises in China:Interpretation of Several Opinions on Deepening Oil and Gas System Reform[J].Natural Gas Industry,2017,37(7):115-120.