顺应改革趋势,促进公平开放——新版《油气管网设施公平开放监管办法》解读
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摘要
2019年5月24日,国家四部委(国家发展和改革委员会、国家能源局、住房和城乡建设部、国家市场监督管理总局)联合印发了《油气管网设施公平开放监管办法》(以下简称新版《办法》),以进一步改革机制、强化监管,更大力度地推动油气管网设施公平开放,更好地营造公平开放的制度环境。为此,在分析我国油气管网设施公平开放现状及存在的主要问题的基础上,对新版《办法》进行了详细梳理和解读,认为其内容亮点主要表现在以下7个方面:①强调非歧视性原则,保障开放服务的公平公正;②调整监管范围,政策制定更具针对性;③鼓励基础设施建设和互联互通,夯实公平开放基础;④大力推进信息公开,提高公平开放的科学性、规范性和透明度;⑤规范申请要求,优化受理流程,建立基于服务合同的约束机制;⑥推行天然气能量计量计价,以更好适应国际管输和贸易规则;⑦提出管输服务多样化和平衡机制等新举措,引导公平开放市场化方向发展。最后,就新版《办法》落地后需要完善的工作提出了建议:①夯实法律法规基础,制定完善相关配套细则;②提升监管效能,保证政策落地执行;③积极应对油气管网运营机制改革,做好对国家管网公司的监管工作。
On 24 May 2019, National Development and Reform Commission, National Energy Agency, Ministry of Housing and Urban–Rural Construction and State Administration of Market Supervision and Administration jointly issued Measures for the Non-discriminatory Third-party Access Regulation of Oil and Gas Pipeline Network Facilities. This new version of Measures aims to further promote reform mechanisms and strengthen regulation and push forward more vigorously non-discriminatory third-party access facilities of oil and gas pipeline network, thus to better create an open and fair institutional environment. In view of this, based upon an analysis of the present status and the existing problems, we combed and interpreted the Measures and achieved the following highlights of its contents.(1) Put an emphasis on the principle of non-discrimination to guarantee non-discriminatory third-party access in open service;(2) Adjust the scope of regulation to make the policy-making more targeted;(3) Stimulate the infrastructure construction and interconnection to tamp the foundation of non-discriminatory third-party access;(4) Give impetus to information disclosure to improve the scientificity, normativeness and transparency of non-discriminatory third-party access;(5) Standardize application requirements, optimize the procedure of acceptance, and set up the constraint mechanism based on service contract;(6) Implement energy measurement and valuation of natural gas to better adapt to international pipeline transport and trade;(7) Put forward many new measures like diversification of pipeline transportation services, balance mechanism, etc. to guide the fair, open and market-oriented development. Finally, some proposals were suggested for the required work after the implementation of this new version of Measures: to make the robust foundation of laws and regulations and formulate and perfect the supporting rules, to improve regulatory effectiveness and ensure policy implementation, to actively deal with the reform of operation mechanism of oil and gas pipeline network, and to fulfill the responsibility in the supervision of national pipeline network companies.
On 24 May 2019, National Development and Reform Commission, National Energy Agency, Ministry of Housing and Urban–Rural Construction and State Administration of Market Supervision and Administration jointly issued Measures for the Non-discriminatory Third-party Access Regulation of Oil and Gas Pipeline Network Facilities. This new version of Measures aims to further promote reform mechanisms and strengthen regulation and push forward more vigorously non-discriminatory third-party access facilities of oil and gas pipeline network, thus to better create an open and fair institutional environment. In view of this, based upon an analysis of the present status and the existing problems, we combed and interpreted the Measures and achieved the following highlights of its contents.(1) Put an emphasis on the principle of non-discrimination to guarantee non-discriminatory third-party access in open service;(2) Adjust the scope of regulation to make the policy-making more targeted;(3) Stimulate the infrastructure construction and interconnection to tamp the foundation of non-discriminatory third-party access;(4) Give impetus to information disclosure to improve the scientificity, normativeness and transparency of non-discriminatory third-party access;(5) Standardize application requirements, optimize the procedure of acceptance, and set up the constraint mechanism based on service contract;(6) Implement energy measurement and valuation of natural gas to better adapt to international pipeline transport and trade;(7) Put forward many new measures like diversification of pipeline transportation services, balance mechanism, etc. to guide the fair, open and market-oriented development. Finally, some proposals were suggested for the required work after the implementation of this new version of Measures: to make the robust foundation of laws and regulations and formulate and perfect the supporting rules, to improve regulatory effectiveness and ensure policy implementation, to actively deal with the reform of operation mechanism of oil and gas pipeline network, and to fulfill the responsibility in the supervision of national pipeline network companies.
引文
[1]国家发展和改革委员会,国家能源局,住房和城乡建设部,国家市场监督管理总局.油气管网设施公平开放监管办法[EB/OL].(2019-05-24)[2019-06-16].http://www.ndrc.gov.cn/zcfb/gfxwj/201905/W020190531575362458412.pdf.National Development and Reform Commission,National Energy Administration,Ministry of Housing and Urban-Rural Development&State Administration for Market Regulation.Measures for the non-discriminatory third-party access regulation of oil and gas pipeline network facilities[EB/OL].(2019-05-24)[2019-06-16].http://www.ndrc.gov.cn/zcfb/gfxwj/201905/W020190531575362458412.pdf.
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[10]国家能源局.国家能源局市场监管司有关负责人就《油气管网设施公平开放监管办法》有关问题答记者问[EB/OL].(2019-6-4)[2019-06-16].http://www.nea.gov.cn/2019-06/04/c_138116127.htm.National Energy Administration.Relevant persons in charge of the market Supervision Department of the National Energy Administration answered the reporter's questions on the Measures for the Non-discriminatory Third-party Access Regulation of Oil and Gas Pipeline Network Facilities[EB/OL].(2019-6-4)[2019-06-16].http://www.nea.gov.cn/2019-06/04/c_138116127.htm.
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[20]郭海涛,梁严,周淑慧.美国天然气管道设施信息公开规则及启示[J].国际石油经济,2017,25(6):26-32.Guo Haitao,Liang Yan&Zhou Shuhui.The information posting rules of natural gas pipeline facilities in USA and its enlightenments[J].International Petroleum Economics,2017,25(6):26-32.
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[2]国家能源局.油气管网设施公平开放监管办法(试行)[G].北京:国家能源局,2014.National Energy Administration.Measures for the non-discriminatory third-party access regulation of oil and gas pipeline network facilities(trial implementation)[G].Beijing:National Energy Administration,2014.
[3]国家发展和改革委员会.天然气基础设施建设与运营管理办[EB/OL].(2014-02-28)[2019-06-16].http://www.ndrc.gov.cn/zcfb/zcfbl/201403/t20140320_603521.html.National Development and Reform Commission.Measures for the management and construction of natural gas infrastructure[EB/OL].(2014-02-28)[2019-06-16].http://www.ndrc.gov.cn/zcfb/zcfbl/201403/t20140320_603521.html.
[4]国家发展和改革委员会.天然气管道运输价格管理办法(试行)[EB/OL].(2016-10-09)[2019-06-16].http://www.ndrc.gov.cn/fzgggz/jggl/zcfg/201610/W020161012539952815290.pdf.National Development and Reform Commission.Measures for the administration of gas transportation price(trial implementation)[EB/OL].(2016-10-09)[2019-06-16].http://www.ndrc.gov.cn/fzgggz/jggl/zcfg/201610/W020161012539952815290.pdf.
[5]国家发展和改革委员会.天然气管道运输定价成本监审办法(试行)[EB/OL].(2016-10-09)[2019-06-16].http://www.ndrc.gov.cn/zcfb/gfxwj/201610/W020161012510766381908.pdf.National Development and Reform Commission.Measures for the supervision and examination of the gas transportation price(trial implementation)[EB/OL].(2016-10-09)[2019-06-16].http://www.ndrc.gov.cn/zcfb/gfxwj/201610/W020161012510766381908.pdf.
[6]国家能源局.国家能源局综合司关于做好油气监管相关信息报送工作的通知[EB/OL].(2014-09-05)[2019-06-16].http://zfxxgk.nea.gov.cn/auto92/201410/t20141020_1848.htm.National Energy Administration.Notice of the Comprehensive Department of the State Energy Administration on doing well the information reporting of oil and gas supervision[EB/OL].(2014-09-05)[2019-06-16].http://zfxxgk.nea.gov.cn/auto92/201410/t20141020_1848.htm.
[7]国家能源局.国家能源局有关部门关于做好油气管网设施开放相关信息公开工作的通知[EB/OL].(2016-09-02)[2019-06-16].http://www.gov.cn/xinwen/2016-09/07/content_5106228.htm.National Energy Administration.Notice of the relevant departments of the State Energy Administration on the publicity of information related to the opening of oil and gas pipeline network facilities[EB/OL].(2016-09-02)[2019-06-16].http://www.gov.cn/xinwen/2016-09/07/content_5106228.htm.
[8]国家发展和改革委员会.国家发展改革委关于明确储气设施相关价格政策的通知[EB/OL].(2016-10-15)[2019-06-16].http://www.ndrc.gov.cn/zwfwzx/zfdj/jggg/201610/t20161019_823111.html.National Development and Reform Commission.Circular on clarifying the relevant price policy of gas storage facilities[EB/OL].(2016-10-15)[2019-06-16].http://www.ndrc.gov.cn/zwfwzx/zfdj/jggg/201610/t20161019_823111.html.
[9]郭海涛,韩景宽.气改碰到“硬骨头”[J].能源评论,2017,100(4):44-47.Guo Haitao&Han Jingkuan.Natural gas marketization reforms hit"hard bones"[J].Energy Review,2017,100(4):44-47.
[10]国家能源局.国家能源局市场监管司有关负责人就《油气管网设施公平开放监管办法》有关问题答记者问[EB/OL].(2019-6-4)[2019-06-16].http://www.nea.gov.cn/2019-06/04/c_138116127.htm.National Energy Administration.Relevant persons in charge of the market Supervision Department of the National Energy Administration answered the reporter's questions on the Measures for the Non-discriminatory Third-party Access Regulation of Oil and Gas Pipeline Network Facilities[EB/OL].(2019-6-4)[2019-06-16].http://www.nea.gov.cn/2019-06/04/c_138116127.htm.
[11]Gao AMZ.Regulation gas liberalization:A comparative study on unbundling and open access regimes in the US,Europe,Japan,South Korea and Taiwan[M].Amsterdam:Wolters Kluwer,2010.
[12]Administrative Committee of the Federal Register.Code of Federal Regulations PART 284:Certain sales and transportation of natural gas under the Natural Gas Policy Act of 1978 and related authorities[G].Washington DC:ACFR,1978.
[13]European Commission.Directive 2009/73/EC of the European Parliament and of the Council of 13 July 2009 concerning common rules for the internal market in natural gas and repealing Directive 2003/55/EC[G].Brussel:Official Journal of the European Union,2009.
[14]郭海涛,赵忠德,周淑慧,王勐,刘勇,谢青青.天然气储运设施第三方准入机制及关键技术要素浅析[J].国际石油经济,2016,23(6):12-18.Guo Haitao,Zhao Zhongde,Zhou Shuhui,Wang Meng,Liu Yong&Xie Qingqing.Third-party access mechanism and key technical factors of natural gas storage and transportation facilities[J].International Petroleum Economics,2016,23(6):12-18.
[15]国家能源局.关于在能源领域积极推广政府和社会资本合作模式的通知[EB/OL].(2016-03-31)[2019-06-16].http://zfxxgk.nea.gov.cn/auto81/201604/t20160413_2232.htm?keywords=.National Energy Administration.Notice on actively promoting government and social capital cooperation models in the energy field[EB/OL].(2016-03-31)[2019-06-16].http://zfxxgk.nea.gov.cn/auto81/201604/t20160413_2232.htm?keywords=.
[16]国务院.关于促进天然气协调稳定发展的若干意见[EB/OL].(2018-08-30)[2019-06-16].http://www.gov.cn/zhengce/content/2018-09/05/content_5319419.htm.The State Council.Opinions on promoting coordinated and stable development of natural gas[EB/OL].(2018-08-30)[2019-06-16].http://www.gov.cn/zhengce/content/2018-09/05/content_5319419.htm.
[17]国家发展和改革委员会.加快推进天然气利用的意见[EB/OL].(2017-06-23)[2019-06-16].http://www.ndrc.gov.cn/zcfb/zcfbtz/201707/W020170704620817903063.pdf.National Development and Reform Commission.Advice on accelerating the use of natural gas[EB/OL].(2017-06-23)[2019-06-16].http://www.ndrc.gov.cn/zcfb/zcfbtz/201707/W020170704620817903063.pdf.
[18]郑得文,张刚雄,魏欢,丁国生,祁红林,李东旭.中国天然气调峰保供的策略与建议[J].天然气工业,2018,38(4):153-160.Zheng Dewen,Zhang Gangxiong,Wei Huan,Ding Guosheng,Qi Honglin&Li Dongxu.Countermeasures and suggestions on natural gas peak shaving and supply guarantee in China[J].Natural Gas Industry,2018,38(4):153-160.
[19]周淑慧,张墨翰,郭海涛,梁严.欧盟天然气基础设施信息公开情况及对中国的启示[J].国际石油经济,2017,25(12):23-30.Zhou Shuhui,Zhang Mohan,Guo Haitao&Liang Yan.Information disclosure of EU natural gas infrastructures and its enlightenments to China[J].International Petroleum Economics,2017,25(12):23-30.
[20]郭海涛,梁严,周淑慧.美国天然气管道设施信息公开规则及启示[J].国际石油经济,2017,25(6):26-32.Guo Haitao,Liang Yan&Zhou Shuhui.The information posting rules of natural gas pipeline facilities in USA and its enlightenments[J].International Petroleum Economics,2017,25(6):26-32.
[21]谢青青,周淑慧.英国天然气管网第三方准入制度研究[J].石油工业技术监督,2015,31(2):15-19.Xie Qingqing&Zhou Shuhui.Research on the third party access regulation of natural gas pipeline network in the UK[J].Technology Supervision in Petroleum Industry,2015,31(2):15-19.
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