2016年-世界发展银行全球_Ethiopia_Oil_and_Gas_Sector_Development___Support_for_Review_and_Update_of_Policy_and_Regulatory_Framework_78页_1mb

报告摘要

Summary of Ethiopia Oil and Gas Sector Development: Support for Review and Update of Policy and Regulatory Framework

Core Content

Ethiopia's oil and gas sector is at a critical development stage, with the government aiming to attract international oil companies (IOCs) to execute Petroleum Production Sharing Agreements (PPSAs) and advance exploration and production. The sector is governed by the Ministry of Mines, Petroleum and Natural Gas (MoMPNG), which is responsible for managing the sector but lacks an effective regulatory framework. The government has initiated a review of its policy and regulatory framework to align with international best practices and optimize the benefits of the sector for the economy and environment.

Main Objectives of the Report

To review the current policy of the Government of Ethiopia (GoE) towards the oil and gas sector and assess the adequacy of the regulatory framework.
To evaluate the regulatory framework in terms of international good practice and identify potential gaps in policy and regulation.

Key Policy and Regulatory Issues

Policy Options

Lack of a Clear Sector Policy: Ethiopia does not have a clearly articulated policy for the oil and gas sector. A comprehensive sector policy and master plan integrating upstream and downstream development are needed.
Federal-State Relations: The current legislation does not fully reflect the relationship between federal and state governments as outlined in the 1995 Constitution. This needs to be updated.
PPSA and Fiscal Regime: The Petroleum Production Sharing Agreement (PPSA) is the only statutory instrument that implements the Petroleum Operations Proclamation. The fiscal regime, which includes a 30% income tax rate and cost recovery mechanisms, requires review for efficiency and alignment with international standards.
Local Content and Employment: There is a need to enhance local content and ensure the employment of Ethiopian citizens in the sector.
Dispute Management and Transparency: The regulatory framework should include standardized dispute resolution mechanisms and enhance transparency, especially with regard to the GoE's participation in EITI.
Environmental and Health & Safety (HSE) Considerations: Environmental protection and HSE clauses should be incorporated into legislation and regulations, including provisions for gas flaring, produced water management, and decommissioning.

Regulatory Options

Legal Framework: The current legal framework includes the 1995 Constitution, Petroleum Operations Proclamation, and related regulations. These require updating to reflect the constitutional framework and enhance enforcement capabilities.
State Participation Mechanisms: The GoE has established the Ethiopia Petroleum and Natural Gas Development Enterprise (EPNGDE) to represent its equity interests in the sector.
Fiscal System: The fiscal system is based on a production sharing model with cost recovery and production splits determined through negotiation. This needs to be reviewed for effectiveness and alignment with international standards.
Infrastructure and Operations: There is a need for new regulations on pipeline construction and use, as well as for monitoring and decommissioning of facilities.
Sector Governance: Strengthening sector governance is essential to ensure effective oversight and implementation of policies.

Key Activities and Developments

Exploration and Production: Exploration is ongoing in several basins, including the Ogaden, Abay, Mekele, Gambela, and Main Ethiopian Rift. Several companies are involved in PPSAs, with POLY-GCL currently holding contracts for the Calub and Hilala fields.
PPSA Status: As of November 2013, the Calub and Hilala fields are under PPSA contracts. The development of these fields is expected to begin in 2018, though the exact timeline and modalities remain under negotiation.
EPNGDE: The GoE has established the Ethiopia Petroleum and Natural Gas Development Enterprise (EPNGDE) to manage its equity interests in the sector.

Capacity Building Needs

Restructuring PLAD: The Petroleum Licensing and Administration Directorate (PLAD) needs restructuring to improve its capacity and efficiency.
Training and Skills Development: There is a need for specialized training and the application of analytical tools to evaluate and audit petroleum operations.
Infrastructure and Operations Management: New regulations and directives are required for the construction and use of pipelines and other infrastructure, as well as for the monitoring and decommissioning of operations.

Implementation Plan

Policy Implementation: Higher-level activities such as sector policy and master plan are the responsibility of the State Minister, while PPSA and Geo-Data specific tasks are managed by PLAD with support from other directorates.
Regulatory Implementation: Secondary legislation, such as regulations and ministerial directives, should be prioritized to address gaps in the regulatory framework.
Timeframes: Key policy and regulatory activities should be completed within 12 to 24 months, with priority given to the Oil and Natural Gas Sector Policy and Master Plan.

Conclusions and Recommendations

A clear and comprehensive policy for the oil and gas sector, including a master plan, is essential.
The regulatory framework must be revised to align with the 1995 Constitution and international standards.
Capacity building for PLAD and other relevant bodies is necessary to ensure effective governance and implementation.
Enhanced transparency, local content, and environmental protection measures should be incorporated into the legal and regulatory instruments.

Summary of Key Findings

Ethiopia's oil and gas sector is at an early stage of development but shows significant potential.
The current regulatory and fiscal framework is inadequate and requires revision to ensure effective governance and alignment with international best practices.
The establishment of EPNGDE and the consolidation of responsibilities under MoMPNG offer opportunities for better sector management.
A master plan integrating upstream and downstream activities is needed to maximize the economic and environmental benefits of the sector.

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