中国页岩气产业财税政策的现状、问题和优化路径研究

The trio factors of intense natural gas supply currently in China, successful revolution of shale gas in the U.S., and abundant shale gas reserve in China have set the stage for the inevitable development of a feasible shale gas industry in China. Since extracting shale gas requires large funding and state-of-the-art technologies, the government should institute effective fiscal and taxation policies during the early stages of the industry’s development in order to attract more investors and corporations, accelerate technological advancements, and facilitate large scales of commercial shale gas usage. This project provides a systematic research framework for issues relating to fiscal and taxation policies of shale gas in China by making several breakthroughs in qualitative and quantitative analyses, which differs from existing research that has only investigated issues related to shale gas in China from a single qualitative perspective. First, this project reviews fiscal and taxation incentives in China and the U.S., and by combining a field study on the actual applications of fiscal and taxation incentives for shale gas corporations in China, this project adopts a snapshot approach and assesses the amount of fiscal and taxation incentives for shale gas corporations. Second, based on the assessment of the amount of fiscal and taxation incentives, this project overcomes endogenous problems and quantifies the influence that evaluations of fiscal and taxation policies have on the performance and research and development of shale gas corporations, with hopes to provide suggestions for shale gas in the “14th Five-Year Plan” by resolving critical issues relating to fiscal and taxation policies in the shale gas industry, and explore and improve on fiscal and taxation incentives that are suitable in the Chinese context.

目前中国紧张的天然气供应形势、美国页岩气革命的成功经验以及中国丰富的页岩气资源储备为中国页岩气产业发展提供了必要性和可行性。页岩气开发资金投入大、技术门槛高，在产业发展初期政府需要辅以有效的财税政策，使更多投资者和企业参与进来，加快技术进步，促进页岩气大规模商业开发应用。不同于已有研究仅对中国页岩气问题进行单一视角的定性分析，本项目整个研究过程需要实现多处定性和定量分析法的突破，对中国页岩气财税政策问题提供一个系统性的研究框架。项目首先梳理中美两国的页岩气财税优惠政策，并结合实地考察探究中国页岩气企业的财税优惠落地情况，在此基础上基于快照法测度页岩气企业的财税优惠量。其次项目将基于测度的财税优惠量，结合内生性问题的处理方法，量化评价财税政策对页岩气企业绩效、研发的影响，以期寻找到页岩气产业的财税政策问题症结及对策，探索和完善适合中国的页岩气财税优惠政策，为页岩气“十四五”规划提供政策参考。

目前中国紧张的天然气供应形势、美国页岩气革命的成功经验以及中国丰富的页岩气资源储备为中国页岩气产业发展提供了必要性和可行性。页岩气开发资金投入大、技术门槛高，在产业发展初期政府需要辅以有效的财税政策，使更多投资者和企业参与进来，加快技术进步，促进页岩气大规模商业开发应用。本项目利用定性和定量分析结合的方法对中国页岩气财税政策问题提供一个系统性的研究框架，以期寻找到页岩气产业的财税政策问题症结及对策，探索和完善适合中国的页岩气财税优惠政策。首先，通过梳理中美两国的页岩气财税优惠政策，发现美国页岩气产业政策不论是从覆盖广度还是影响深度，其给予页岩气相关企业的扶持力度远大于中国。中国的页岩气产业财税政策存在补贴范围窄、补贴力度不足、补贴时间短和不稳定、缺乏系统的税收优惠体系等问题。其次量化评价财税政策对页岩气企业绩效、研发创新的影响，结果表明财政补贴并没有显著影响到页岩气企业的经营绩效及研发创新，但是税收优惠在一定程度上促进了企业绩效的提升。我国页岩气财税政策存在扶持力度不足的问题。从政策优化视角看，需要拓宽页岩气产业链的补贴范围，建立健全页岩气税收优惠体系，谨慎设定补贴退坡规划，给投资者明确的投资预期，鼓励地方政府实施税收优惠政策。项目组在该领域已有较好的研究基础。