Promoting Carbon Capture Utilization and Storage through Carbon
Dioxide-Enhanced Oil Recovery in the People’s Republic of China
通过二氧化碳-提高原油采收率 在中国推行碳捕集、利用和封存
Obser va tions and Sug gestions
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版权所有。2015 年出版。
在中华人民共和国印刷。
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Abstract
摘 要
• Injecting carbon dioxide (CO2) to improve the recovery of oil from a depleted oil well is a proven process commonly known as carbon dioxide–enhanced oil recovery (CO2-EOR). Since most of the injected CO2 will be permanently isolated from the atmosphere, capturing CO2 from an industrial plant (including power plants) and utilizing it for CO2-EOR is commonly known as carbon capture, utilization, and storage (CCUS). The CCUS is an effective approach to mitigate CO2 emissions from fossil-fuel based plants.
通过注入二氧化碳提高废弃作业油井的原油采收率的做法，通常称为二氧化碳–提高原油采收率（CO2-
EOR）。由于大部分用于注入的二氧化碳将被永久地与大气隔离，因此从工业工厂（包括电厂）捕集注
入作业所需的二氧化碳， 并将其用于二氧化碳–提高原油采收率的过程通常被称为碳捕集、利用和封存
（CCUS）。碳捕集、利用和封存是减少化石燃料工厂二氧化碳排放量的有效途径。
• Declining oil productions from matured oil fields in the People’s Republic of China (PRC) and their amenability to CO2-EOR suggest the urgent need to introduce CO2-EOR in these oil fields to stabilize the oil production and improve their economic viability. By utilizing CO2 from nearby fossil- fuel based industrial plants, the twin challenges of increased oil production from domestic fields and climate change mitigation can be realized in a cost-effective manner.
中国人民共和国（中国）已进入成熟期的油田均面临产油量下降的情况，且具备引入二氧化碳–提高原油采
收率的条件。这表明，这些油田迫切需要引入二氧化碳–提高原油采收率技术，以稳定石油产量并提高其经
济活力。通过利用附近的化石燃料工厂排放的二氧化碳，在提高国内油田原油产量的同时，还能够缓解气 候变化，这是应对上述双重挑战的具有成本效益的方式。
• In the United States alone, nearly 200 CO2-EOR projects are in operation producing nearly 5% of its annual oil production. In case of the PRC, ongoing pilot projects, research activities and capacity development work have created a critical body of knowledge and readiness to enable the large- scale demonstration of CO2-EOR. However, formidable challenges, such as, weak policy and regulatory support to drive it, reluctance for CO2 off-take arrangements between oil companies and industrial plants, inadequate or no price on injected CO2, insufficient geological data of oil fields, continue to undermine large-scale CO2-EOR applications. As a result, none of the planned large- scale CO2-EOR or CCUS projects in the PRC have reached the investment stage yet.
仅在美国，有近200座二氧化碳–提高原油采收率项目在运行，其石油产量占到美国年石油产量的近5％。对
于中来说，正在开展的试点项目、研究活动和能力建设工作已经为中国积累了大量的知识和储备，使二氧化
碳–提高原油采收率的大规模示范成为可能。然而，中国仍然面临严峻的挑战，如推动大规模示范的政策和
法规支持较为薄弱、石油公司和工业工厂之间不愿意签订二氧化碳承购协议、缺乏或尚无注入的二氧化碳
价格、对油田的地质资料的认识不足，都将限制中国大规模二氧化碳–提高原油采收率技术的应用。因此，
目前为止，中国计划实施的大规模二氧化碳–提高原油采收率或碳捕集、利用和封存项目均进入投资阶段。
• During the 13th Five-Year Plan period the government could stimulate CO2-EOR and thereby CCUS by (i) assigning targets for both incremental oil production from CO2-EOR and for CO2
stored through CCUS to drive large-scale applications; (ii) enhancing data availability to share basic geological data with potential investors to address their concerns; (iii) endorse priority regions for CCUS demonstration in locations where pilot tests have proven oil fields amenability to CO2- EOR; (iv) incentivize and broker CO2 off-take agreements to overcome the critical hurdle; and (v) gradually establish a comprehensive regulatory framework for CO2-EOR and CCUS projects.
在第十三个五年计划期间，中国政府可以通过如下方式刺激二氧化碳–提高原油采收率技术，以及碳捕集、
利用和封存的推广：（一）设定通过二氧化碳–提高原油采收率实现的石油增产量、以及通过碳捕集、利用
和封存实现的二氧化碳封存量，以促进上述技术的大规模应用；（二）提高数据的可用性，与潜在投资者共
享基础地质数据，解决他们关心的问题；（三）在试点测试已证明油田具备二氧化碳–提高原油采收率条件
的地区，划批碳捕集、利用和封存示范的优先区域；（四）为应对关键性障碍，需激励并就二氧化碳承购协
议进行谈判；（五）以及逐步建立针对二氧化碳–提高原油采收率和碳捕集、利用和封存项目的全面监管框
架。
I. INTRODUCTION
1. Carbon dioxide–enhanced oil recovery (CO2-EOR) is an effective strategy for low-cost carbon dioxide (CO2) capture utilization and storage (CCUS), and an opportunity for testing and proving it across the complete process chain. CO2-EOR is the best known large-scale carbon utilization approach and thus is widely regarded as a stepping stone toward wider CCUS deployment.
2. CO2-EOR has been practiced on a commercial scale in the US for the past 30 years. It has yielded about 300,000 barrels of oil per day or 5% of the country’s annual oil production. Each year more than 200 CO2-EOR projects inject about 60 million tons of CO2 in oil reservoirs. As per the US Carbon Sequestration Council’s estimates, incremental oil production from CO2-EOR could provide
$210 billion in tax revenues to the federal and state governments and more than $12 trillion in overall economic benefits between 2012 and 2030.
3. About 70% of the PRC’s domestic oil production comes from nine oil fields, all of which are mature and are facing or will soon face a decline in production. In some fields, CO2-EOR should be introduced urgently to stabilize or even increase production levels, and maintain the economic viability of the oil fields. Pilot projects in the PRC have proved that CO2-EOR is effective for many of these oil fields.
4. It is estimated that the introduction of CO2-EOR could yield up to a maximum of 11 billion barrels of incremental oil in the PRC if it is deployed in all oil fields amenable to CO2-EOR. The theoretical CO2 storage capacity in onshore oil reservoirs is estimated to be 3.78 gigatons of CO2 or the equivalent of CO2 emissions from 25 gigawatt-scale coal-fired power plants over their average useful life of 25 years.
5. The geologic formations and reservoir characteristics are key determinants in effective CO2-EOR applications. These conditions are more complex in the PRC than in the US. The exact potential can only be accurately estimated through pilot testing and demonstration of CO2-EOR operations over a reasonable period of time. To overcome these uncertainties and existing barriers and challenges as detailed below, it is essential that the government takes initiative to promote CO2-EOR during the 13th Five-Year Plan period and help its further deployment.
II. CHALLENGES TO CO2-EOR IN THE PRC
a. Policy and Regulatory Challenges
6. Weak policy drivers delay CO2-EOR applications. While the government’s National Program in response to Climate Change (2014-2020) recognizes CCUS as one of the key climate change
mitigation technologies, the government has not yet adopted a national program with specific targets for its demonstration. In the absence of such targets and program, there is weak acceptance for demonstrating CO2-EOR among oil companies who own mature oil fields. This low acceptance inhibits CO2 off-take arrangements with industrial emitters thereby stalling CO2-EOR demonstration at commercial scale and jeopardizing its further deployment.
7. Lack of regulatory need or incentives. To date, the government has not adopted regulations that will cause industrial emitters of CO2 to pay for each ton of CO2 emissions. In the absence of commercially proven CO2-EOR application in the PRC, the government may be hesitant to adopt such a regulatory measure. Absent such regulatory requirements or appropriate incentives, there are no economic drivers for an industrial plant to capture large quantity of emitted CO2.
8. Limited geological data complicates risks assessment. In contrast to other countries, much of the PRC’s geological data is not publicly available. National oil companies are unwilling to share data even if third parties offer to sign non-disclosure agreements. The lack of data prevents financiers, and investors from conducting due diligence to gain confidence about the risks involved, which is critical to consider financing such projects. Also, it prevents learning and cumulative cost reductions in CO2-EOR and CO2 storage.
9. Unclear requirements and institutional set up for environmental monitoring and compliances. To manage environmental and safety risks across the CO2-EOR or CCUS project chain at different stages of project construction, operation and closure, additional regulations are needed.
To date, the PRC oil field operators have limited environmental monitoring obligations, which are inadequate. As a result, it is not clear which entity will need to invest in and conduct monitoring and oversee implementation of environment management plans. This further complicates the negotiation of a CO2 off-take agreement between CO2 emitter and oil field operators.
b. Commercial Challenges
10. High commercial uncertainty. Power generators, industrial plants and oil field operators have to make substantial up-front investments for the establishment of a CO2-EOR or CCUS project. In the absence of regulatory obligations, an established market, and an adequate price for CO2, such investments are proving to be difficult. In the US, CO2 prices are low because the majority of operators use naturally occurring CO2. In the PRC, CO2 has to be captured and can become available at a high price (as much as $80–$100 per ton). At such a CO2 price, the investment in a CO2-EOR project is not commercially feasible for oil field operators. In some industrial plants, such as, coal-chemical plants, CO2 can be available at a low-cost but lack of experience in negotiating CO2 off-take arrangements, no floor price or incentives by the government for captured CO2 from industrial and power plants, and industrial plant and oil field operators delay or avoid up-front investments in CCUS facilities.
11. Mismatch between CO2 emissions profile and use of CO2 in EOR. Emissions sources tend to generate CO2 at a fairly constant rate. In contrast, the volume of CO2 needed for a CO2-EOR project changes over the project’s lifetime. Relatively low quantities of CO2 are required for initial assessments. Then, large uninterrupted supplies of CO2 are needed to flood the reservoir. After several years of CO2 injection, the produced oil will contain CO2, which has to be separated and re- injected back into the oil field. Thus, a gradually declining volume of fresh CO2 will be needed. Given the long payback period of the infrastructure investment, the mismatch in CO2 supply and demand may result in a situation in which a “single plant–single oil field” model is not commercially viable.
c. Technical Challenges
12. Need for adapted CO2-EOR technology. PRC operators have been investigating CO2-EOR for the past decades. However, CO2-EOR is far more complex than in the US, because of the geologic structure of reservoirs characterized by faults, low permeability, and crude oil which is less amenable for CO2-EOR. Results achieved have been less than optimal, because the most effective CO2-EOR techniques have not always been applied due to insufficient collaboration with international partners.
This has led to the perceived notion that CO2-EOR may not be effective in the PRC and other EOR techniques should be applied.
13. Absence of CO2 transport infrastructure. Compared to a network of more than 6,000 kilometers of CO2 pipelines that exists in the US, the PRC lacks both CO2-EOR pipelines for transporting CO2 and regulations and standards for constructing such pipelines. In the absence of such infrastructure, early stage CO2-EOR applications, will necessitate dedicated pipelines for large-scale CO2 transport for a single project. It is natural that investors will try to minimize their incremental costs by designing the pipeline specifically for its intended purpose, which will limit its accessibility for other potential future users of the pipeline. Such dedicated pipeline will not only erode financial viability of early stage CO2- EOR application but going forward may prevent realization of potential economies of scale.
III. RECOMMENDATIONS
14. There is a compelling case for the early demonstration of CO2-EOR application at commercial scale during the 13th Five-Year Plan period.
a. Address Policy and Regulatory Challenges
15. Clarify policy framework. The government may set an achievable target of about 30–60 million barrels of incremental oil production through CO2-EOR with cumulative storage of about 10–20 million tons of CO2 over the 13th Five-Year Plan period. Also, responsibilities of government institutions in
support of CCUS development should be clarified. A coordination mechanism for inter-ministerial, central and local governments, as well as inter-provincial government collaboration should be established.
16. Regulate geological data sharing. While it is not necessary to declassify geological data, regulations should be established under which oil companies are allowed to share data with potential investors, including (i) publication of a standard non-disclosure agreement specifying what data can be shared and to what degree, (ii) definition approval authority for such data sharing agreements, (iii) establishment of a database, which could make data available to investors on a commercial basis to enable cumulative learning and cost reduction.
17. Adopt crucial standards for monitoring, reporting, quantification, and verification.
The injected and stored CO2 needs to be fully accounted for and appropriate accounting rules are necessary to accurately award net emission reductions. This will require: (i) assessment of leakage and other risks before the injection activities start; (ii) establishment of monitoring, reporting, quantification and, verification protocols and compliance with such protocols; and (iii) institution of post-closure monitoring protocols and stewardship, as well as long-term liability guarantees. The PRC co-chairs the development of international standards for CCUS, and announcements have been made regarding the development of national standards and environmental oversight. These efforts should be strengthened. Standards could be first implemented and tested in pilot and demonstration projects before becoming mandatory for all projects.
18. Strengthen governance of storage sites. The issue of jurisdictional responsibility for CO2
storage in oil and gas reservoirs will need to be clarified. For early demonstration projects, long-term stewardship of CO2 injected should be managed by the Ministry of Environmental Protection. Day-to- day management should be delegated to local environmental protection bureaus.
b. Address Commercial Challenges
19. Provide financial support for demonstration projects. As done in the US, the UK, and other countries, the PRC is recommended to provide first-mover projects with financial support to overcome the commercial viability gap, high risks and upfront investments. When more projects are undertaken, costs will come down, the risk profile will improve substantially, and less direct support will be required.
A financial support program could consist of (i) grant assistance for upstream feasibility assessments;
(ii) loan guarantees for funding from international donors; (iii) fixed-price partial subsidies to early- mover CO2-EOR operators that use and effectively store anthropogenic CO2, as provided to other forms of unconventional hydrocarbon, and (iv) grant support for the implementation of an early stage CCUS project.
20. Prepare model off-take agreements. For early stage projects, the government should adopt and publish a model CO2 off-take contract and regulate the price for CO2 to overcome uncertainty among investors.
21. Endorse priority locations and encourage development of CCUS hubs. The Erdos and Songliao Basins in Northeastern PRC, the Jungar Basin in Northwestern PRC, and the Tarim Basin in Western PRC have oil fields that are amenable to CO2-EOR operations. Also, a large number of coal-chemical plants are located in these regions, which low-cost CO2 capture options and a potential source of large volumes of inexpensive CO2 supply. The government should encourage establishment of CCUS clusters there to overcome the mismatch in CO2 supply and demand faced by single plant- single oil field models. Similar to previous practice, when the government supported constructing a high-voltage transmission line in support of wind-farm megaprojects, the government should support the development of a CO2 pipeline network during the 14th Five-Year Plan period. The network operator should be independent and offer open access to CO2 capture plants through a common set of CO2 off-take agreements.
c. Address Technical Challenges
22. Gradual and phased approach to CO2-EOR development. A gradual approach is warranted to overcome technical complexities and uncertainties before establishing the viability of CO2-EOR.
A phased validation and implementation process for CO2-EOR is desirable. It can start with small injection tests in a few wells, followed by two phases of 1–3 years each, for scaling up before wider development.
23. Intensify pilot testing, large-scale demonstration, and international collaboration. Progress on the CO2-EOR depends essentially on implementing more pilot and demonstration projects.
Research and development support for programs like the national basic research and/or the nation high-tech research programs should be strengthened. International collaboration with foreign oil companies with large CO2-EOR should be enhanced.
24. Establish a coordinated national program for CCUS demonstration. Five to ten commercial- scale CO2-EOR demonstration projects, each one capturing, using, and storing 1–2 million tons of CO2
per year, should be selected as national flagship projects. These projects should receive resources, and financial support. Upon successful completion, they will become knowledge sharing platforms for similar projects across the country and beyond.
一、
简介1. 二氧化碳–提高原油采收率（CO2-EOR）不仅是实现低成本二氧化碳捕集、利用和封存
（CCUS）的有效策略，也是在整条处理链中一个试验和证明碳捕集、利用和封存的机会。二氧化碳–
提高原油采收率是实现大规模二氧化碳利用的最佳方法，因此被广泛视为实现更大规模碳捕集、利 用和封存布局的起点。
2. 二氧化碳–提高原油采收率已在商业规模基础上在美国实施了30年。这一技术已经实现日 石油产量约30万桶，占到美国年石油产量的5％。目前美国有200多个二氧化碳–提高原油采收率的项 目在运行，向含油层中已注入约6,000万吨的二氧化碳。根据美国碳封存委员会的估计，在2012年到 2030年间，二氧化碳–提高原油采收率产出的原油增量能够为联邦和州政府带来2,100亿美元的税收，
以及超过12万亿的整体经济效益。
3. 中国国内原油生产的70%以上来自九座大型油田，它们都已进入成熟期，产量或已下降或即 将下降。在其中一些油田，需要引入二氧化碳–提高原油采收率方法来稳定甚至提高原油产量水平，
以及提高油田的整体经济性。已在中国开展的试点项目证明，二氧化碳–提高原油采收率方法对于大 多数出现上述情况的油田来说是非常有效的。
4. 根据各种研究的估算，如果在中国适宜采用二氧化碳–提高原油采收率技术的所有油田都引 入这一技术，则最高可多产110亿桶原油。据估计，陆上储油池的理论二氧化碳封存容量为37.8亿吨二 氧化碳，或相当于25座千兆瓦规模的燃煤电厂在其25年的平均使用寿命中排放的二氧化碳总量。
5. 地质构造和储层特征是实现有效二氧化碳–提高原油采收率应用的关键性因素。而在中国，
这些情况比美国的更加复杂。确切的应用潜力只有通过开展合理期限的试点测试和二氧化碳–提高原 油采收率运营示范才能够得到准确估计。为了应对这些不确定性和现有的障碍和挑战（如下所述），
政府在第十三个五年计划期间，采取主动措施推动二氧化碳–提高原油采收率并为其进一步部署提供 帮助，是至关重要的。
二、 在中国推广二氧化碳 –提高原油采收率技术面临的挑战
a. 政策和监管方面的挑战
6. 薄弱的刺激政策使二氧化碳–提高原油采收率应用滞后。虽然政府在应对气候变化国家计 划（2014至2020年）中已承认碳捕集、利用和封存是减缓气候变化的关键技术之一，但中国政府尚未 制定实施这一国家计划的具体目标。在缺乏上述目标和计划的情况下，拥有成熟期油田的石油公司对
示范二氧化碳–提高原油采收率的接受程度也较低。较低的接受程度阻碍了工业排放者间达成二氧化 碳承购协议，进而拖延了在商业规模上开展二氧化碳–提高原油采收率示范的进程，并对其进一步部 署造成不良影响。
7. 缺乏监管需要或激励。迄今为止，中国政府尚未出台要求二氧化碳的工业排放者为每吨二氧 化碳排放支付费用的法规。在中国缺乏市场上成熟的二氧化碳–提高原油采收率应用的情况下，中国 政府可能不愿意采取这样的监管措施。而在缺乏这样的监管要求或相应的激励机制的情况下，工业 工厂则缺乏大量捕集排放的二氧化碳的经济驱动。
8. 有限的地质资料使得风险评估复杂化。相对于其他国家，中国的很多地质资料都是不公开 的。即使第三方愿意签署保密协议，国家石油公司也不愿意分享这些数据。数据的缺乏阻碍了融资方 和投资者开展尽职调查，以便获得对所涉及的风险进行全面了解，而这一点对于为这些项目提供融资 来说，是需要考虑的重要方面。此外，这还阻碍了二氧化碳–提高原油采收率和二氧化碳封存方面的 学习积累和累计成本削减。
9. 环境监测和合规方面的要求和制度设置不明确。在二氧化碳–提高原油采收率或碳捕集、利 用和封存项目过程链中，在项目建设、运营和关闭的不同阶段对环境和安全风险进行管理，需要制定 额外的规定。迄今为止，中国的油田运营商所承担的环境监测义务非常有限，这是非常不够的。这也 导致了，中国目前尚不清楚何种实体需要投资、开展监测、并监督环境管理计划的实施。这使得二氧 化碳排放者和油田运营商之间的二氧化碳承购协议谈判变得更加复杂。
b. 商业挑战
10. 较高的商业不确定性。发电商、工业工厂和油田运营商必须为二氧化碳–提高原油采收率或 碳捕集、利用和封存项目的建立做出实质性的前期投资。事实证明，在缺乏监管义务、较成熟的市场 以及适当的二氧化碳价格的情况下，做出这样的投资是非常困难的。在美国，二氧化碳价格较低，这 是因为大多数运营商使用自然产生的二氧化碳。而在中国，二氧化碳需要被捕集，且需要以高昂的价 格购买（高达80美元~100美元每吨）。在这样的二氧化碳价格水平上，对于油田运营商来说，对二氧化 碳–提高原油采收率项目进行投资是不具备商业上的可行性的。在一些工业工厂，如煤化工厂，能够以 较低的成本获得二氧化碳，但这些工厂缺乏二氧化碳承购协议谈判的经验，在缺乏政府提供的针对 工业工厂和电厂捕集的二氧化碳的底价或奖励的情况下，工业工厂和油田运营商会延迟或拒绝对碳 捕集、利用和封存设备进行前期投资。
11. 二氧化碳排放特性和提高原油采收率中二氧化碳利用的不匹配。排放源往往以相对恒定的 速度生成二氧化碳。相比之下，二氧化碳–提高原油采收率项目所需的二氧化碳数量在项目整个生命
周期中变化不定。初始储层评估需要相对低量的二氧化碳。之后，需要将大量的二氧化碳连续不断地 注入储层。在注入几年后，所产出的原油将含二氧化碳，必须将其分离并重新注回油田。因此，所需的 新鲜二氧化碳的数量逐渐下降。鉴于基础设施投资的回收期较长，上述二氧化碳供应和需求的不匹 配可能导致这种情况，即“单一工厂对应单一油田”的模式不具有商业可行性。
c. 技术挑战
12. 需要适合的二氧化碳–提高原油采收率技术。在过去的几十年中，中国的运营商一直在研究 二氧化碳–提高原油采收率技术。但是，在中国开展二氧化碳–提高原油采收率比在美国开展更为复 杂，这是因为中国的储层地质构造特征被定义为断层、低渗透性、以及原油对二氧化碳–提高原油采 收率的适用性较差。由于中国与国际合作伙伴的合作不足，最有效的二氧化碳–提高原油采收率技术 在中国尚未得到应用，这使得中国在这一领域取得的成果一直不太理想。这也使得大家从感知上认 为，二氧化碳–提高原油采收率技术在中国未必有效，而中国应当采用其他的提高原油采收率技术。
13. 缺乏二氧化碳运输的基础设施。与美国现有的超过6000公里的二氧化碳运输管道网络相 比，中国既缺乏用于运输二氧化碳的CO2-EOR管道，也缺乏建造运输管道的相关法规和标准。在缺乏 上述基础设施的情况下，开展前期的二氧化碳–提高原油采收率应用，将需要为单一项目的大规模二 氧化碳运输建造专用的管道。投资者当然都会为实现其预期目的，而有针对性地设计其运输管道，从 而尽量减少其增量成本。然而，这将使得建造的管道对其他潜在的未来使用者来说适用性较低。这种 专门建造的管道不仅会侵蚀早期二氧化碳–提高原油采收率应用的财务可行性，且在未来，可能会阻 碍经济体规模化潜力的实现。
三、 政策建议
14. 在第十三个五年计划期间在商业规模水平上开展二氧化碳–提高原油采收率应用早期示范的 理由充分。
a. 应对政策和监管挑战
15. 明确政策框架。中国政府可以设立一个可实现的目标：在第13个五年计划期，通过二氧化碳–
提高原油采收率实现原油增量3,000~6,000万桶，累计共封存二氧化碳1,000~2,000万吨。此外，政府 机构对碳捕集、利用和封存开发的支持职责也应当加以明确。同时还应当建立跨部委的合作机制、中 央和地方政府、以及跨省的政府合作机制。
16. 规范地质资料的共享。虽然并没有必要撤销地质资料文件的机密级，但是还应当建立相关 的法规，从而允许石油公司与潜在的投资者共享地质资料，包括：（一）公布标准的保密协议，其中规 定哪些数据可以共享，以及可以共享的程度，（二）定义上述数据共享协议的审批机关，（三）建立一 个数据库，使得投资者可以在商业基础上获得数据，从而促进累积学习和成本削减目标的实现。
17. 为监测、报告、量化和审核采用关键标准。需要对注入的和封存的二氧化碳进行充分统计，
并建立相应的温室气体计算规则，从而为实现的净减排量提供准确的奖励。这将需要：（一）在注入 活动开始前，对泄漏和其他风险进行评估；（二）建立监测、报告、量化和审核协议，并遵守该等协议；
（三）确立关闭后监测草案和管理工作，以及长期责任保证。中国联席主持了碳捕集、利用和封存国 际标准的制定，并就国家标准的制定与环保监督发表了公告。然而，这些努力应进一步加强。该标准 将首先在试点和示范项目实施和试用，之后成为对所有项目的强制性标准。
18. 加强对封存地点的治理。将需要澄清在油气储层进行二氧化碳封存的管辖责任的问题。对 于早期的示范项目，对注入二氧化碳的长期管理责任应该由环保部来承担。而其日常管理应当委托 给地方的环保部门。
b. 应对商业挑战
19. 为示范项目提供资金支持。正如美国、英国和其他国家一样，我们建议中国为先行项目提供 资金支持，以应对商业可行性缺口、高风险和前期投资等困难。在开展的项目数量增加后，成本将会 有所下降，且风险状况也将大幅改善，那时需要的直接支持也会有所减少。资金支持方案可能包括以 下几个方面：（一）提供上游可行性评估赠款支持；（二）为从国际捐助机构获得资金提供贷款担保；
（三）与为其他形式的非常规油气提供的固定价格补贴类似，为使用和有效封存人为排放的二氧化碳 的早期先行二氧化碳–提高原油采收率运营商提供固定价格部分补贴，以及（四）为早期碳捕集、利用 和封存项目的实施提供拨款支持。
20. 制定承购协议模板。对于早期项目，政府应当采用并公布二氧化碳承购合同模板，从而对二 氧化碳的价格进行规范，并解决投资者面临的不确定性。
21. 支持重点地区和鼓励碳捕集、利用和封存枢纽的开发。中国的鄂尔多斯盆地、东北的松辽 盆地、西北的准噶尔盆地、西部的塔里木盆地，都有适合二氧化碳–提高原油采收率运营的油田。此 外，这些地区也有大量的煤炭化工厂，可以提供低成本二氧化碳捕集方案和大量廉价二氧化碳供应来 源。政府应当鼓励在这些地区建立碳捕集、利用和封存集群，以解决“单一工厂对应单一油田”模式所 面临的二氧化碳供应和需求不匹配问题。在以往的惯例中，政府在扶持风电场大型项目的过程中，为 高压输电线路的建造提供了支持，与此类似，政府应当在第十四个五年计划期间为二氧化碳运输管道
网络的开发提供支持。二氧化碳运输管道网络的运营商应当是独立的，并应当通过一套通用的二氧 化碳承购协议，向二氧化碳捕集工厂提供输送服务。
c. 应对技术挑战
22. 对二氧化碳–提高原油采收率开发采取循序渐进、分阶段的方式。在确立二氧化碳–提高原 油采收率的可行性之前，应当采取循序渐进的方式，以应对面临的技术复杂性和不确定性。对二氧化 碳–提高原油采收率技术的引入，采取分阶段的审核和实施过程是非常可取的。在开展大规模开发之 前，可以首先在少数几口作业井中开展小型注入测试，随后是两个1~3年的试验阶段，以便逐渐按比例 扩大应用规模。
23. 加大试点测试、大规模示范和国际合作的力度。二氧化碳–提高原油采收率的发展主要依 靠实施更多的试点和示范项目。类似于对国家基础研究和/或国家高技术研究计划的支持，对这一领 域研究和开发计划的支持应该得到加强。此外，还应当加强与开展大规模二氧化碳–提高原油采收率 项目的外国石油公司的国际合作。
24. 成立碳捕集、利用和封存示范的国家层面协调机制。应当选择五个至十个商业规模二氧化 碳–提高原油采收率示范项目，作为国家旗舰项目，其中每个项目每年可捕集、利用和封存100~200万 吨二氧化碳。这些项目应该得到资源和财政支持。在成功完工后，其将成为全国乃至国际类似项目的 知识共享平台。
亚洲开发银行
Asian Development Bank
6 ADB Avenue, Mandaluyong City
1550 Metro Manila, Philippines（菲律宾马尼拉）
www.adb.org
亚洲开发银行驻中国代表处 北京朝阳区建国门外大街1号 国贸大厦（三期）17层 邮编：100004
www.adb.org/prc
cn.adb.org Produced in the PRC
在中华人民共和国印制
economic growth, environmentally sustainable growth, and regional integration.
Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main instruments for helping its developing member countries are policy dialogue, loans, equity investments, guarantees, grants, and technical assistance.
亚洲开发银行（亚行）的远景目标是实现没有贫困的亚洲和太平洋地区。亚行的工作旨在帮助其发展中成员体 减少贫困，改善亚太地区人民的福祉。尽管亚太地区发展迅速，但全世界大部分贫困人口仍生活在该地区。亚 行致力于通过包容性经济增长、环境可持续发展和区域一体化来帮助亚太地区减少贫困。
亚行总部设在菲律宾首都马尼拉，现有67个成员体，其中亚太地区成员48个。亚行主要通过政策对话、贷
款、股本投资、担保、赠款以及技术援助等工具向成员体国家提供帮助。
