Developments towards environmental regulation of CCUS projects in China

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Energy Procedia 63 ( 2014 ) 6903 – 6911

ScienceDirect

Peer-review under responsibility of the Organizing Committee of GHGT-12 doi: 10.1016/j.egypro.2014.11.724

GHGT-12

Developments towards environmental regulation of CCUS projects

in China

Lan-Cui Lui

a

, Gregory Leamon

b

*

a_{Center for Climate and Environmental Policy, Chinese Academy of Environmental Planning,}

, Qi Li

c

, Bofeng Cai

a Ministry of Environmental Protection of the People’s Republic of China, Beijing, 100012, China

b_{Geoscience Australia, GPO Box 378, Canberra, ACT, 2601, Australia}

c_{State Key Laboratory of Geomechanics and Geotechnical Engineering, Institute of Rock and Soil Mechanics,}

Chinese Academy of Sciences, Wuhan, 430071, China

Abstract

In 2012, China stated to the United Nations Framework Convention on Climate Change (UNFCCC) that it is very vulnerable to the effects of climate change. While climate change is an environmental issue for China, more importantly it is a development issue. China intends to advance its efforts to address climate change through sustainable development. There is growing recognition and acceptance by the Chinese Central Government, that Carbon dioxide Capture Utilization and geological Storage (CCUS) will be part of that sustainable development, and that CCUS will play a prominent role in China’s climate change abatement strategies, particularly in the medium to long term. China is making significant progress in its rollout of integrated CCUS projects. China has enacted a new environmental law which will come into effect on 1st_{January 2015. For the first time in}

China the environment will be as important as socio-economic development. Despite this progress, there are currently no national environmental regulations specifically for CCUS projects in China. This paper examines China’s plans to develop and implement environmental requirements for CCUS projects, the policy objectives and drivers. The paper also describes the CO2monitoring

program at China’s first end to end CCS project near Ordos; monitoring at China’s first CO2EOR development at the Jilin Oil

Selection and peer-review under responsibility of GHGT.

Keywords: China; CCUS; CCS; CO2; carbon dioxide; geological storage; environment; regulation; monitoring; Ordos; Shenhua; PetroChina;

Jilin; Qinghai; MOST; MEP;

* Corresponding author. Tel.:+61-417-464-397 E-mail address: [email protected]

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1. Introduction

There is growing recognition and acceptance by the Chinese Central Government, that Carbon dioxide Capture Utilization and geological Storage (CCUS) will play a prominent role in China’s climate change abatement strategies, particularly in the medium to long term. The inclusion of CCS in China’s 12th Five-Year Plan reflects a strong commitment to develop and deploy the technology. Compared with U.S. and EU, China is optimistic that utilization of CO2through EOR and chemical applications will help to mitigate their nation’s emission increases

during the transformation period from CCUS to conventional CCS [1].

China is making significant progress in its rollout of integrated CCUS projects. China continues to lead the Asia Pacific region in making steady progress with CCS, moving projects through the lifecycle stages. China now has 12 LSIPs spread across all stages of development planning compared to five in 2010, double the number of projects in 2011 (six) [2]. The more advanced projects are dominated by China’s large state-owned petroleum and coal companies. China is well positioned to influence the future success of CCS internationally. Despite this technological progress, there are currently no national environmental regulations applicable to CCUS projects in China.

Nomenclature

ACEE Appraisal Center for Environment & Engineering CAEP Chinese Academy of Environmental Planning

CAGS China Australia Geological Storage of CO2collaborative project

CAS Chinese Academy of Sciences CCS Carbon dioxide Capture and Storage CCU Carbon dioxide Capture and Utilization

CCUS Carbon dioxide Capture Utilization and geological Storage CHEGS Center for Hydrogeology and Environmental Geology Survey CGS China Geological Survey

GCCSI Global CCS Institute

GHG Greenhouse gas

IRSM Institute of Rock and Soil Mechanics LSIP Large-Scale Integrated Project

MEP Ministry of Environmental Protection, The People’s Republic of China MOST Ministry of Science and Technology, The People’s Republic of China NDRC National Development and Reform Commission

NPC National People’s Congress

SEPA State Environmental Protection Administration (now MEP) UNFCCC United Nations Framework Convention on Climate Change

2. China’s Climate Change Policies and CCUS Technology

2.1. China and the UNFCCC

At the end of 2012, China announced to the UNFCCC that it is very vulnerable to the effects of climate change [3]. China also stated that while climate change is an environmental issue, more importantly it is a development issue and that China will advance its efforts to address climate change through sustainable development. China’s UNFCCC communication listed CCUS as one of seven technologies needed to mitigate greenhouse gas emissions from the energy sector.

The 2011 UNFCCC climate change negotiations in Durban accepted CCS as a project activity within the Clean Development Mechanism, meaning that in theory CCS projects in China could become eligible for funding under the

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Kyoto Protocol’s market mechanism. In order to qualify however, China would need to firstly establish laws and regulations for geological storage of CO2 including, amongst other things to, “provide for timely and effective

remedial measures to stop or control any unintended seepage of carbon dioxide, to restore the integrity of the geological storage site, and to restore long-term environmental quality significantly affected by a CCS project activity” [4 (clause 8d)].

2.2. China’s Five Year Plan

On 14th March, 2011, China’s legislature, the National People’s Congress (NPC), approved the 12th Five-Year Plan (2011-2015) [5]. The 12th _{Five-Year Plan places a large emphasis on clean development as a response to}

climate change. The plan sets binding emission reduction targets and energy use reduction targets of 17% and 16% per unit of GDP intensity respectively from 2010 levels over five years [6]. China’s 12th_{Five-Year Work Plan on}

Controlling GHG Emissions (2011-15), sets goals for developing carbon capture experimental projects in the thermal power, coal-chemical, cement, and steel sectors; and for developing fully integrated CCUS demonstration projects for enhanced oil recovery (EOR) and geological storage [7,8].

3. China’s CCUS Policy

3.1. The Ministry of Science and Technology (MOST)

China’s Ministry of Science and Technology is responsible for China’s science and technology development plans and policies [9]. In June 2011, a workshop was held in Chongqing, bringing together CCUS experts from across China to discuss a technology roadmap for CCUS. Safe storage was identified as a primary goal [10]. Later that year MOST published the roadmap report [11] and the special report Carbon Capture, Utilization and Storage -Technology Development [12]. In March, 2013, MOST published its 12th Five-Year Science and -Technology Special Plan on Carbon Capture, Utilization and Storage [13]. The 2013 plan refers to environmental impact assessment and risk control of CCUS chains as important foundational scientific issues.

3.2. National Development and Reform Commission (NDRC)

The National Development and Reform Commission (NDRC) is China’s energy and climate change policy and planning agency. In April, 2013, NDRC published a Notice on Promoting Carbon Capture, Utilization and Storage Pilot and Demonstration [14]. The policy document highlights several near-term tasks to assist in the promotion of CCUS pilot and the demonstration of integrated CCUS projects, and to pave the way for large-scale application and commercialization. The policy calls on local governments to administer pilot projects according to newly developed guidelines, and to connect the environmental benefit with the potential for direct monetary gains.

The policy advocates “development and formulation of standards and engineering codes for industrial applications of CCUS, which assesses the health, safety and environmental impacts, strengthens long-term security, environmental impacts, strengthens long-term security (of the storage site), environmental risk assessment and control, builds and improves safety standards and a system of environmental regulations. Amongst other things, the policy document also advocates strengthening the training of professionals in CCUS, and strengthening of links with other countries, financial organisations and institutions, to effectively integrate international funding, experiences and resources [14].

3.3. International Standards (ISO)

China is taking an active role in the development of international standards for CCS through the ISO Technical Committee 265 (ISO/TC265) “Carbon dioxide capture, transportation, and geological storage” [15]. The Standardization Administration of China is the twinned secretary supporting the Canadian Standards Association to administer the main technical committee. China is the secretariat for technical working group 4 (WG4) on

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Quantification and Verification (of CO2 storage), and is co-secretary of technical working group 5 (WG5) Cross

Cutting Issues. The work of the ISO/TC265 began in 2012 and continues.

4. China’s Environmental Policy and CCUS

4.1. China’s environmental policies

Many studies show that the chain of CCUS technology will have important impacts and risks for local and global environments [16, 17]. Therefore, environmental impact assessment and risk assessment are essential for CCUS projects. For construction projects with impacts on the environment, The Law of the People's Republic of China on

Environmental Impact Assessment (2004) [18] states that the construction entity shall submit an environmental

impact report, environmental impact statement or environmental impact registration form for approval during the feasibility study stage of the construction project. Environmental impact assessment guidelines include: Technical Guidelines for Environmental Risk Assessment on Projects (HJ/T 169–2004) [19]; Technical Guideline for Environment Impact Assessment on Atmosphere (HJ 2.2-2008) [20]; Technical Guideline for Environment Impact Assessment on Groundwater (HJ 19-2011) [21]; and Technical guidelines for environmental impact assessment: Ecological impact (HJ 19-2011) [22]. Each of these guidelines has relevance for the environmental impact assessment of CCUS projects, but they are not specific to CCUS projects [23].

On 24th_{April 2014, China adopted a new national environmental protection law that will come into effect on 1}st

January 2015 [24]. The new law is the first amendment to the existing law since it was passed in 1989. For the first time the environment will be as important as socio-economic development [25]. The new law focuses on more accurate and substantive reporting systems. A new chapter is added to specially set up “information disclosure and public participation”, so people can participate in environmental protection, supervision and environmental protection. The new law should increase the public perception of CCUS though there is no direct reference in the new policy.

4.2. The Ministry of Environmental Protection (MEP)

The role of China’s Ministry of Environmental Protection (MEP) is to “develop and organize the implementation of national policies and plans for environmental protection, draft laws and regulations, and formulate administrative rules and regulations for environmental protection” [26]. MEP focuses on the environmental protection aspects of CCUS projects. However, at present there are no specific national regulations for CCUS projects in China [23]. CCUS projects in China are all independently regulated by local authorities.

From 12th _{to 14th December, 2012, MEP, the Department of Science, Technology and Standards (MOST), and}

the Chinese Academy of Environmental Planning (CAEP) took the first steps towards implementing a national approach to environmental regulation of CCUS projects, by hosting China’s first environmental management conference on CCUS. Most of China’s leading scientists and key scientific officers on CCUS were invited to give speeches and brainstorm environmental management issues for CCUS.

In October 2013, MEP released a Notice (i.e. policy statement) to strengthen the environmental protection requirements for CCUS pilot and demonstration projects [27]. The Notice is directed at all environmental authorities, enterprises and industries, in regions and municipalities under the authority of China’s Central Government. The Notice is wide ranging. It covers environmental impact assessment, environmental management, risk assessment, impact monitoring, environmental standards and specifications, fundamental research and technical demonstrations, capacity building and international co-operation. Over the next three years (2013-16), MEP, together with other relevant authorities, will consult with industries, enterprises and research institutions to develop and promote environmental protection requirements and standards that will support the healthy and orderly development of CCUS projects in China. Consultations will seek to strengthen and improve environmental management, understanding of environmental impacts, environmental monitoring and impact assessment, record keeping, and reporting of project progress. In the meantime, operators of existing projects are expected to increase their investment in environmental protection measures in accordance with local project conditions, and to document their practical experiences through construction, operation and closure, so as to provide a scientific basis for formulating

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CCUS environmental management systems suitable for China. CAEP-MEP, IRSM-CAS, ACEE-MEP, and CHEGS-CGS are currently working together to develop China’s first environmental risk assessment guidelines for carbon dioxide capture, utilization and storage (trial version), with a draft to be released by the end of 2014.

5. Environmental monitoring and reporting for CCUS Projects in China

5.1. Environmental Impact Assessment for CCUS projects

Environmental monitoring is carried out at all of China’s pilot and demonstration projects for CO2injection.

Environmental impact assessments (EIA) for current CCUS projects in China are mainly based on current Technical Guidelines for Environmental Risk Assessment on Projects (HJ/T 169–2004) [19]. Other guidelines that may apply include those for petroleum and natural gas projects on land (HJ/T349-2007) [28], and the updated general guidelines (HJ-2.1-2011) [29]. However, these guidelines do not consider the special characteristics of CCUS projects, and there have been difficulties in using these guidelines to assess environmental impact for current CCUS projects, especially in relation to project classification and the definition of risk levels.

5.2. Shenhua Ordos CCS Project

The Shenhua Group’s Ordos CCS Project is the world’s first CCS project that combines capture of CO2from a

Coal to Liquids (CTL) facility, with transport and injection of CO2into a deep saline aquifer. The main features of

the project are [from references 30, 31, 32, 33, 34 & 35]:

x The project is located in Ejin Horo Banner of Ordos City, Inner Mongolia (Figure 1).

x Annual emissions at the Shenhua CTL plant have been around 3.6 Mtpa of CO2. The demonstration

phase of the project (Phase 1) originally intended to capture 100,000 tonnes of CO2per year for 3 years.

x The concentration of CO2in the flue gas from the CTL plant is around 87% which is then purified to

99.2%.

x The captured CO2is transported as a liquid in tankers, 11km to the west for geological storage.

x The CO2is heated at the storage site before injection through a single well into deep saline formations.

x The injection formation was defined by a 3D seismic survey conducted in May 2010.

x The injection well was drilled between 27 August 2010 and 10 April 2011 to a total depth of 5,326m, with 2,240 perforations over an interval of 132 metres.

x Test injections began on 2 January 2011. By the end of August 2014, approximately 220,000 tonnes of CO2had been injected. Injection continues.

x The storage formation consists of multiple layers with combined a thickness of around 112m within the internal of 1,690m to 2,453m depth. The deeper layers being limestone and dolomite. The storage formations have low porosity and low permeability, so three of the five layers used for injection were fractured to enhance injectivity.

x Subsurface monitoring is conducted from two observation wells. The first monitoring well measures temperature and pressure changes in each storage layer, while the second monitoring well measures temperature and pressure changes in the aquifer above the regional cap rock. Water samples are regularly drawn from the second monitoring well for laboratory analysis in order to detect leakage through the regional cap rock. The second monitoring well has also been used for repeat VSP surveys. x At the surface, monitoring includes air, soil gas, surface water and ground deformation (InSAR & tilt

meters).

x Shenhua have developed their own methods for storage safety assessment, safety warnings and project management

Significantly, the Shenhua Ordos CCS project is the first CCS project to enhance injectivity by fracturing the reservoir. This is important because China’s onshore saline aquifers are characterised by low porosity and low permeability. Fracturing the reservoir raises unique challenges for the environmental regulation of this project, and for other CCS projects, that seek to employ a similar approach to improve injectivity.

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In regions where coal mining and CO2storage have the potential to occur in close proximity, such as in the Ordos

Basin, careful consideration needs to be given to the potential impact of coal excavation activities on the integrity of CO2 containment. The storage site for the Shenhua Ordos CCS project includes eight coal seams at depths of

between 200m and 444m. Future coal mining in the vicinity of the storage site has the potential to induce wellbore failure if the rim of the mining pit is too close to the injection well. This is a real and challenging problem for CO2

containment and for environmental safety [35].

Fig. 1. Location of Shenhua CTL plant and geological storage site within the Ordos Basin [23]

5.3. CO2- EOR projects in China

PetroChina initiated China’s first CO2EOR project in 2009 at the Jilin Oilfield in north-east China. The CO2is

obtained from the nearby Changchun Gas Field where the CO2 content is around 22.5%. The first phase of the

project injected nearly 217,000 tonnes of CO2 (to April 2013) with a storage efficiency of over 96% and the

remainder returning to the surface via production wells. Phase 1 has employed a comprehensive program to monitor the injection and production systems, CO2fronts and potential leakage pathways. Tube fault detection, corrosion

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inhibitors, anti-CO2corrosion cement and production dynamic analysis have been employed at the well site. CO2

movement in the reservoir is detected mainly by gas tracer, electric spontaneous potential measurement and fluid sampling. Near surface environmental monitoring is also conducted around the injection site [37]. PetroChina plan to expand the project in Phase 2 to inject between 0.8 and 1.0 million tonnes of CO2per year by 2016 [36].

The EIA conducted by PetroChina for the Jilin Oil Field EOR project emphasises ecological environmental impacts of engineering construction and generally assesses its effects on surface water, air, underground water and noise. However, the environmental risk assessment focuses only on leakage from buffer tanks at injection stations and from transport pipelines, and does not consider storage leaks. While the Sinopec Shengli Oil Field EOR Project has implemented a typical CCUS project environmental risk assessment (EIA), it has also undertaken comprehensive baseline monitoring [34].

5.4. Natural analogue CO2geological storage

The China Geological Survey’s Center for Hydrogeology and Environmental Geology has established an environmental monitoring station at a CO2 leakage site in the Xining Basin, western China. From September to

December 2002, a water well was drilled, 0.5km from the township of Sanhe, in the Qijiachuan Valley, Ping’an County, Qinghai Province. The well was drilled to 192m before a mixture of warm artesian water (17°C) and CO2

unexpectedly gushed out with a water head of over 73 metres. This was the first report of CO2in the groundwater of

the Xining Basin. The China Geological Survey subsequently set up an environmental monitoring program at the well site to record CO2 flux in the soil and CO2 concentrations in the air. The monitoring program includes a

weather station, soil monitoring, and air measurements for CO2, CH4, and SO2. Hyperspectral, and multispectral,

remote sensing is also being employed. The monitoring site has attracted national and international interest with officers from MEP in Beijing, and scientists from Geoscience Australia, visiting the site in recent months (September 2014).

6. Conclusions

The China Central Government is making an all-out effort to mitigate the impacts of climate change, including development of directives, guidelines, and national standards for CCUS projects. In 2013, China’s key policy making entities, NDRC and MOST, emphasised the importance of demonstration projects for the widespread development of CCUS. Emphasis was also placed on environmental safety as an important foundational scientific issue.

While Chinese industry has made rapid progress in acquiring capability and experience with development of CCUS technologies and projects, environmental risk management lags behind with no specific environmental risk regulations suitable for CO2storage [23]. This situation is beginning to change with indications that China will

introduce draft environmental guidelines for CCUS projects by the end of 2014 and regulations by the end of 2016. This is important, because for CCUS projects in China to claim greenhouse gas emission reduction credits (CERs) through the UNFCCC, and book emission reductions to their national inventory, projects need to be regulated by laws which address, amongst other things, environmental protection, and which meet the international standards set by the UNFCCC modalities and procedures for CCS projects.

If fracturing of tight reservoirs is pursued as a means to improve injectivity of CO2into China’s tight reservoirs

then authorities will need to consider developing specific environmental risk management and monitoring regulations and guidelines to specifically address this issue. A process also needs to be developed to evaluate the potential impacts of competing resource developments where CCUS projects are involved. For example, in the Ordos Basin, the potential impacts of new coal mining activities on the rights of pre-existing CCUS projects, or conversely, the potential impact of new CCUS projects on rights of pre-existing coal mining. Consideration of potential resource conflicts should be part of the approval process for new resource developments.

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Acknowledgements

The authors would like to thank the China Australia Geological Storage of CO2Project (CAGS) for its support

for this paper. QL acknowledges the financial support from the China CDM Fund (Environmental Impact Assessment of CCS), National Key Technology R&D Program (Grant No. 2012BAC24B05), NZEC IIA (Risk Management and Public Acceptance of CCS Pilot Project), and China Shenhua Coal to Liquid and Chemical Co., Ltd.

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