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1、关于修订关于修订节约能源法节约能源法的初步思考的初步思考Preliminary ideas on amending Energy Preliminary ideas on amending Energy Preliminary ideas on amending Energy Preliminary ideas on amending Energy Conservation LawConservation LawConservation LawConservation Law国家发展改革委环资司司长 赵家荣Director-general of Department of Environmen
2、t & Resources Conservation, NDRC 2005年11月18日 北京 Nov.18, 2005 Beijing节约资源是我国的一项基本国策Resource conservation as a principal national policyResource conservation as a principal national policy 中共中央关于制定国民经济和社会发展第十一个五中共中央关于制定国民经济和社会发展第十一个五年规划的建议提出：要把节约资源作为基本国策，发展年规划的建议提出：要把节约资源作为基本国策，发展循环经济，保护生态环境，加快建设资源节约型
3、、环境友循环经济，保护生态环境，加快建设资源节约型、环境友好型社会，促进经济发展与人口、资源、环境相协调。好型社会，促进经济发展与人口、资源、环境相协调。 “The Central Partys Suggestions on the Development of the 11th Five-Year National Economic and Social Development Plan,” approved by The Fifth Plenary Session of the 16th Central Committee of the Communist Party of China (
4、CPC), clearly states that “the government should elevate resource conservation to being a principal national policy, encourage a circular economy, protect the environment, increase resource efficiency, establish an environmentally-friendly society, and balance economic development with population gr
5、owth, resources use, and environmental protection. 一、节约能源法的实施效果二、修订节约能源法的必要性三、修订节约能源法的几点考虑主 要 内 容 Main contentsn nImplementation Effects of EC LawImplementation Effects of EC Lawn nNecessity for Amending EC LawNecessity for Amending EC Lawn nThoughts about Amending EC LawThoughts about Amending EC L
6、aw一、节约能源法的实施效果Implementation Effects of EC Law(1) Legal basis established for energy conservationnMany implementation regulations of EC Law have been adopted.nThe governments of provinces have adopted energy-saving regulations and measures;nBenchmarks for energy efficiency standards, industrial ener
7、gy-saving planning norms, and architectural energy-saving design standards have been developed and adopted.（一）节能法制建设得到加强（一）节能法制建设得到加强（一）节能法制建设得到加强（一）节能法制建设得到加强n制定和实施节能法及配套法规制定和实施节能法及配套法规n颁布实施了地方性节能条例或办法颁布实施了地方性节能条例或办法及配套法规及配套法规n颁布实施了一大批产品能效标准、颁布实施了一大批产品能效标准、行业节能设计规范、建筑节能设计行业节能设计规范、建筑节能设计标准等标准等 一、节约能
8、源法的实施效果Implementation Effects of EC Law(2) The energy-savings management system has been improved.nManagement Regulations for Key Energy Consumption Enterprises nMandatory Energy-efficiency Standards and labels nEnergy-efficient-products Certification nGovernment Procurement Programs （二）节能管理制度不断完善（二
9、）节能管理制度不断完善（二）节能管理制度不断完善（二）节能管理制度不断完善n重点用能单位节能管理制度重点用能单位节能管理制度 n强制性能效标准和标识制度强制性能效标准和标识制度n节能产品认证制度节能产品认证制度n节能产品政府采购制度节能产品政府采购制度 一、节约能源法的实施效果Implementation Effects of EC Law（三）节能监管体制取得突破（三）节能监管体制取得突破（三）节能监管体制取得突破（三）节能监管体制取得突破n n上海、甘肃、云南等省市根据地方法规，建立了节能监察中心，由政上海、甘肃、云南等省市根据地方法规，建立了节能监察中心，由政上海、甘肃、云南等省市根据地
10、方法规，建立了节能监察中心，由政上海、甘肃、云南等省市根据地方法规，建立了节能监察中心，由政府依法授权开展节能执法监察府依法授权开展节能执法监察府依法授权开展节能执法监察府依法授权开展节能执法监察n n浙江、天津等省市政府设专项资金，委托省级节能监测中心对重点耗浙江、天津等省市政府设专项资金，委托省级节能监测中心对重点耗浙江、天津等省市政府设专项资金，委托省级节能监测中心对重点耗浙江、天津等省市政府设专项资金，委托省级节能监测中心对重点耗能企业进行节能监测能企业进行节能监测能企业进行节能监测能企业进行节能监测 (3) Effective Monitoring and Supervision S
11、ystem(3) Effective Monitoring and Supervision Systemn nEnergy Conservation Supervision Centers established in Shanghai, Energy Conservation Supervision Centers established in Shanghai, GansuGansu province, and province, and YunnanYunnan province. These Centers are now responsible for province. These
12、 Centers are now responsible for supervising the energy use and energy efficiency of enterprises. supervising the energy use and energy efficiency of enterprises. n nSpecial funds in Special funds in ZhejiangZhejiang and and TianjinTianjin to support the supervision. to support the supervision. 一、节约
13、能源法的实施效果Implementation Effects of EC Law 节约能源法节约能源法实施实施8 8年来，我国节能工作取得积极进年来，我国节能工作取得积极进展，促进了能源利用效率的提高。展，促进了能源利用效率的提高。20042004年，单位年，单位GDPGDP能耗比能耗比19971997年下降年下降18%18%；主要产品单位能耗均有不同程度降低，与；主要产品单位能耗均有不同程度降低，与国外先进水平的差距逐步缩小。国外先进水平的差距逐步缩小。 Since the implementation of ECL, Chinas energy saving management Sinc
14、e the implementation of ECL, Chinas energy saving management has improved. This has resulted in improved energy utilization efficiency. has improved. This has resulted in improved energy utilization efficiency. Chinas energy consumption per unit GDP in 2004 is 18 percent lower than Chinas energy con
15、sumption per unit GDP in 2004 is 18 percent lower than it was in 1997. Several main products energy consumption has been it was in 1997. Several main products energy consumption has been reduced. This has narrowed the gap between Chinas energy consumption reduced. This has narrowed the gap between C
16、hinas energy consumption per unit GDP and that of advanced countries. per unit GDP and that of advanced countries. 二、修订节约能源法的必要性 Necessity for Amending EC Lawn传统的高投入、高消耗、高排放、低效率的粗放型增长方式已经走到了尽头，必须加快转变经济增长方式，大力节约能源n实现“十一五”能源消耗降低20%的目标，必须采取强化节约能源的措施，这是具有全局性和战略性的重大任务 n节约能源法在诸多方面已不能适应可持续发展对节能的要求nChinas t
17、raditional extensive economic growth mode, characterized by high input, high consumption, high emissions, and low efficiency is no longer tenable. It is necessary to expedite the changing of Chinas economic growth mode, conserving energy resourcesnTo realize the goal to reduce energy consumption per
18、 unit GDP by 20% during the 11th Five-Year period, energy-efficiency needs to be dramatically improved. This is an important aspect of socialist modernization in China, central to the fundamental welfare of the people and long-term development of the Chinese nationnThe Energy Conservation Law does n
19、ot fit current needs in Chinas sustainable development and energy conservation. （一）基本思路（一）基本思路（一）基本思路（一）基本思路 n n以科学发展观为指导，以实现经济社会可持续发展对提高能源利用效以科学发展观为指导，以实现经济社会可持续发展对提高能源利用效以科学发展观为指导，以实现经济社会可持续发展对提高能源利用效以科学发展观为指导，以实现经济社会可持续发展对提高能源利用效率的要求为目标，以建立严格的管理制度、明确各行为主体责任、提率的要求为目标，以建立严格的管理制度、明确各行为主体责任、提率的要求为目标，
20、以建立严格的管理制度、明确各行为主体责任、提率的要求为目标，以建立严格的管理制度、明确各行为主体责任、提高监管能力、完善体制机制、强化政策激励、加大惩戒力度为重点，高监管能力、完善体制机制、强化政策激励、加大惩戒力度为重点，高监管能力、完善体制机制、强化政策激励、加大惩戒力度为重点，高监管能力、完善体制机制、强化政策激励、加大惩戒力度为重点，在吸取节能法实施以来的经验教训，借鉴国外成功经验的基础上加以在吸取节能法实施以来的经验教训，借鉴国外成功经验的基础上加以在吸取节能法实施以来的经验教训，借鉴国外成功经验的基础上加以在吸取节能法实施以来的经验教训，借鉴国外成功经验的基础上加以完善，使节能法成
21、为新时期推进节能工作重要的法律保障。完善，使节能法成为新时期推进节能工作重要的法律保障。完善，使节能法成为新时期推进节能工作重要的法律保障。完善，使节能法成为新时期推进节能工作重要的法律保障。三、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law(1) Fundamentals:(1) Fundamentals:n nEmploy a scientific outlook on development for guidance; improve ener
22、gy Employ a scientific outlook on development for guidance; improve energy efficiency to realize a sustainable economic and social development path; efficiency to realize a sustainable economic and social development path; adopt stricter management systems, clarifying responsibilities for each adopt
23、 stricter management systems, clarifying responsibilities for each group, improving supervision capability, enhancing systematic operation group, improving supervision capability, enhancing systematic operation mechanisms, increasing policy incentive, and strengthening punishment mechanisms, increas
24、ing policy incentive, and strengthening punishment and enforcement; adjust and improve ECL based lessons learned from and enforcement; adjust and improve ECL based lessons learned from experiences since its adoption and international best practice; and make experiences since its adoption and interna
25、tional best practice; and make the law guarantee energy savings is promoted into the future.the law guarantee energy savings is promoted into the future.（二）需把握的几个问题（二）需把握的几个问题（二）需把握的几个问题（二）需把握的几个问题n n政府宏观管理要与发挥市场机制作用相结合政府宏观管理要与发挥市场机制作用相结合政府宏观管理要与发挥市场机制作用相结合政府宏观管理要与发挥市场机制作用相结合n n依法管理要与政策激励相结合依法管理要与政策
26、激励相结合依法管理要与政策激励相结合依法管理要与政策激励相结合n n注重源头控制注重源头控制注重源头控制注重源头控制n n强化法律责任强化法律责任强化法律责任强化法律责任n n制度设计要有可操作性制度设计要有可操作性制度设计要有可操作性制度设计要有可操作性(2) (2) PrinciplesPrinciples: :n nGovernment macro-control should be combined with market Government macro-control should be combined with market mechanismsmechanismsn nMan
27、agement should be combined with incentive policies Management should be combined with incentive policies n nPay attention to the control at the beginning Pay attention to the control at the beginning n nStrengthening punishment and enforcement of the LawStrengthening punishment and enforcement of th
28、e Lawn nSystem design should be able to be put into operationSystem design should be able to be put into operation三、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law（三）修订（三）修订（三）修订（三）修订节约能源法节约能源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点确立节能的重要地位确立节能的重要地位 明确节能是
29、国家节约资源基本国策的重要组成部分，是经济社会发明确节能是国家节约资源基本国策的重要组成部分，是经济社会发明确节能是国家节约资源基本国策的重要组成部分，是经济社会发明确节能是国家节约资源基本国策的重要组成部分，是经济社会发展的一项长远战略方针，是保障国家能源安全，保护环境、增强竞展的一项长远战略方针，是保障国家能源安全，保护环境、增强竞展的一项长远战略方针，是保障国家能源安全，保护环境、增强竞展的一项长远战略方针，是保障国家能源安全，保护环境、增强竞争力，实现可持续发展的重要措施争力，实现可持续发展的重要措施争力，实现可持续发展的重要措施争力，实现可持续发展的重要措施 三、修订节约能源法的几点
30、考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law(3) (3) Key Issues to be Considered:Key Issues to be Considered: n nClearly state that energy conservation is a high national priority.Clearly state that energy conservation is a high national priority. The Law sho
31、uld clearly state that energy conservation is an important The Law should clearly state that energy conservation is an important element of Chinas national resource conservation policy, a long-term element of Chinas national resource conservation policy, a long-term strategic guideline for Chinas ec
32、onomic and social development, and an strategic guideline for Chinas economic and social development, and an important measure to safeguard national energy security, protect the important measure to safeguard national energy security, protect the environment, increase national competitiveness, and a
33、chieve environment, increase national competitiveness, and achieve sustainable developmentsustainable development. .（三）修订（三）修订（三）修订（三）修订节约能源法节约能源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点 强化法律规范的范围。强化法律规范的范围。强化法律规范的范围。强化法律规范的范围。 在继续加强工业节能管理的同时在继续加强工业节能管理的同时在继续加强工业节能管理的同时在继续加强工业节能管理的同时, , , ,强化建筑、交通、政府机构及公强
34、化建筑、交通、政府机构及公强化建筑、交通、政府机构及公强化建筑、交通、政府机构及公用事业等领域的节能管理用事业等领域的节能管理用事业等领域的节能管理用事业等领域的节能管理, , , , 落实相关主体的责任落实相关主体的责任落实相关主体的责任落实相关主体的责任三、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law(3) (3) Key Issues to be Considered: Key Issues to be Considered: Expand
35、the scope of energy conservation. Expand the scope of energy conservation. Besides enhancing industrial energy conservation, the government should Besides enhancing industrial energy conservation, the government should enhance energy conservation in the buildings, transportation, and public enhance
36、energy conservation in the buildings, transportation, and public utilities sectors, organize bulk procurement of energy-efficient products, and utilities sectors, organize bulk procurement of energy-efficient products, and clarify the legal responsibilities of parties involved in the implementation
37、of clarify the legal responsibilities of parties involved in the implementation of the Law.the Law.（三）修订（三）修订（三）修订（三）修订节约能源法节约能源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点 完善节能管理制度。完善节能管理制度。完善节能管理制度。完善节能管理制度。 重大高耗能投资项目节能审查制度重大高耗能投资项目节能审查制度重大高耗能投资项目节能审查制度重大高耗能投资项目节能审查制度 重点行业新建项目、重点耗能产品和新建建筑市场准入制度重点行业新建项目、重点耗
38、能产品和新建建筑市场准入制度重点行业新建项目、重点耗能产品和新建建筑市场准入制度重点行业新建项目、重点耗能产品和新建建筑市场准入制度 重点用能单位节能管理制度重点用能单位节能管理制度重点用能单位节能管理制度重点用能单位节能管理制度 高耗能落后技术、工艺、设备和标准强制淘汰制度高耗能落后技术、工艺、设备和标准强制淘汰制度高耗能落后技术、工艺、设备和标准强制淘汰制度高耗能落后技术、工艺、设备和标准强制淘汰制度 节能评价和考核制度节能评价和考核制度节能评价和考核制度节能评价和考核制度 公众参与制度等公众参与制度等公众参与制度等公众参与制度等三、修订节约能源法的几点考虑Preliminary Thou
39、ghts about Amending EC LawPreliminary Thoughts about Amending EC Law(3) (3) Key Issues to be Considered:Key Issues to be Considered: Improve energy conservation administration mechanisms.Improve energy conservation administration mechanisms. China should expedite the approval of high-energy-conservi
40、ng investment projects China should expedite the approval of high-energy-conserving investment projects and market access approval for new energy-conserving projects increasing energy and market access approval for new energy-conserving projects increasing energy efficiency in energy intensive indus
41、tries, the efficiency of energy intensive products, efficiency in energy intensive industries, the efficiency of energy intensive products, and the efficiency of new buildings. China should also improve the energy and the efficiency of new buildings. China should also improve the energy conservation
42、 management of high-energy-consuming enterprises, and improve conservation management of high-energy-consuming enterprises, and improve mandatory phase-out mechanisms, energy conservation evaluation mechanisms, and mandatory phase-out mechanisms, energy conservation evaluation mechanisms, and public
43、 participation mechanisms of high-energy-consuming technologies, processes, public participation mechanisms of high-energy-consuming technologies, processes, equipment, and standards.equipment, and standards.（三）修订（三）修订（三）修订（三）修订节约能源法节约能源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点 强化节能激励政策。强化节能激励政策。强化节能激励政策。
44、强化节能激励政策。 建立节能专项资金建立节能专项资金建立节能专项资金建立节能专项资金 实行有利于节约能源的财税政策实行有利于节约能源的财税政策实行有利于节约能源的财税政策实行有利于节约能源的财税政策 能源价格要能够反映能源稀缺程度、供求关系及资源和环境成本能源价格要能够反映能源稀缺程度、供求关系及资源和环境成本能源价格要能够反映能源稀缺程度、供求关系及资源和环境成本能源价格要能够反映能源稀缺程度、供求关系及资源和环境成本三、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amend
45、ing EC Law(3) (3) Key Issues to be Considered: Key Issues to be Considered: Strengthen energy conservation incentives. Strengthen energy conservation incentives. E Establish a special energy conservation fundstablish a special energy conservation fund. . F Formulate tax and fiscal policies ormulate
46、tax and fiscal policies for the energy conservation incentives.for the energy conservation incentives. R Reform energy pricing to internalize energy scarcity and supply-demand eform energy pricing to internalize energy scarcity and supply-demand relationship.relationship.（三）修订（三）修订（三）修订（三）修订节约能源法节约能
47、源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点 明确节能法的执法主体明确节能法的执法主体明确节能法的执法主体明确节能法的执法主体 节约能源法节约能源法节约能源法节约能源法实施中的一个突出问题是执法主体不明确，节能监实施中的一个突出问题是执法主体不明确，节能监实施中的一个突出问题是执法主体不明确，节能监实施中的一个突出问题是执法主体不明确，节能监管制度没有得到很好落实。应明确节能执法机构、权力和责任。管制度没有得到很好落实。应明确节能执法机构、权力和责任。管制度没有得到很好落实。应明确节能执法机构、权力和责任。管制度没有得到很好落实。应明确节能执法机构、权力和责任。三、
48、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law(3) (3) Key Issues to be Considered: Key Issues to be Considered: Designate an agency to responsible for executing the Law. Designate an agency to responsible for executing the Law. The vagueness of which
49、 agency should execute the Energy Conservation The vagueness of which agency should execute the Energy Conservation Law has been a major barrier to its implementation. The Law should be Law has been a major barrier to its implementation. The Law should be modified to clarify who is responsible for e
50、xecuting it, and specific the scope modified to clarify who is responsible for executing it, and specific the scope of that agencys authority and responsibility.of that agencys authority and responsibility.（三）修订（三）修订（三）修订（三）修订节约能源法节约能源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点 支持节能新机制的推广支持节能新机制的推广支持节能新机制的推
51、广支持节能新机制的推广 电力电力需求侧管理需求侧管理 能源能源审计审计 能效能效标识管理标识管理 合同能源管理合同能源管理 节能信息传播节能信息传播 节能自愿协议节能自愿协议三、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law(3) (3) Key Issues to be Considered: Key Issues to be Considered: Support the extensive use of new energy conservat
52、ion Support the extensive use of new energy conservation measures. measures. including demand-side management, energy auditing, contract management, including demand-side management, energy auditing, contract management, energy information dissemination energy information dissemination and voluntary
53、 agreements.and voluntary agreements.（三）修订（三）修订（三）修订（三）修订节约能源法节约能源法节约能源法节约能源法需调整的重点需调整的重点需调整的重点需调整的重点 鼓励发达地区实施更严格的能效标准和市场准入制度鼓励发达地区实施更严格的能效标准和市场准入制度鼓励发达地区实施更严格的能效标准和市场准入制度鼓励发达地区实施更严格的能效标准和市场准入制度 针对标准化领域出现的超前性能效标准的新标准类型，建议赋予地针对标准化领域出现的超前性能效标准的新标准类型，建议赋予地方人民政府节能行政主管部门可以依据实际情况，规定本区域执行方人民政府节能行政主管部门可以依据实
54、际情况，规定本区域执行国家超前性能效标准的指标等级和实施期限的权限。国家超前性能效标准的指标等级和实施期限的权限。三、修订节约能源法的几点考虑Preliminary Thoughts about Amending EC LawPreliminary Thoughts about Amending EC Law(3) (3) Key Issues to be Considered: Key Issues to be Considered: Encourage the adoption of more stringent energy-efficiency Encourage the adopti
55、on of more stringent energy-efficiency standards and market-access mechanisms in developed regions.standards and market-access mechanisms in developed regions. R Recommend local energy conservation authorities formulate implementation ecommend local energy conservation authorities formulate implementation regulations for advanced national “reach standards.”regulations for advanced national “reach standards.” 谢 谢 ！Thanks!
