中国建筑行业碳排放权交易制度可行性研究.pdf
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1、中国可持续能源项目 The China Sustainable Energy Program 能 源 基 金 会 The Energy Foundation 项目成果报告系列 Technical Report 项目成果报告系列 Technical Report 中国建筑行业碳排放权交易制度 中国建筑行业碳排放权交易制度 可行性研究 可行性研究 Feasibility Study on Establishment of Carbon Trading Scheme in Building Sector in China 住房和城乡建设部科技发展促进中心 2013 年 3 月中国建筑行业碳排放权交易
2、制度可行性研究 i 摘 要摘 要1997 年签订的京都议定书使包括二氧化碳在内的温室气体的排放行为受到限制,导致碳排放权变得稀缺,从而催生了全球的碳市场和碳排放权交易。近几年,在 京都议定书 框架体系的安排下,碳交易已逐步成为各国温室气体减排政策的首选工具。在国际碳交易体系中,中国目前是全球 CDM 市场最大的供应方,然而 CDM 在建筑领域发展缓慢,除了 CDM 机制本身的局限性外,建筑领域的特点与障碍也是 CDM 项目发展滞后的主要原因,包括:(1)建筑项目周期长,单个项目应用 CDM 机制减排量少,单位成本高,市场风险大。(2)项目基准线确定困难。(3)适用于中国国情的建筑类的 CDM
3、项目方法学较少。(4)建筑项目业主多元化导致 CER 分配困难。中国建筑领域中的 PCDM 项目发展也同样滞后,主要原因包括:(1)项目执行过程中缺乏符合中国建筑节能特点的方法学;(2)协调管理机构资质限制和能力不足;(3)国内缺乏配套的政策等。由于国际气候谈判不确定性和 CDM 发展前景黯淡,我国建筑领域的 CDM(PCDM)发展也受限,要为建筑领域节能减排项目寻找新的融资渠道,培育国内碳交易市场无疑是最可行的选择。与国际区域性碳交易市场相比,中国国内碳排放权交易市场才刚刚起步,目前仅限于零散的自愿性碳减排交易。2012 年国家发展改革委员会颁布温室气体自愿减排交易管理暂行办法,就自愿碳减排
4、项目减排量核查、签发、登记和交易等做出规定,标志着我国碳市场建设迈上新台阶。自愿性碳交易市场是我国碳交易市场发展初期的中国建筑行业碳排放权交易制度可行性研究 ii 过渡性安排,重点解决碳排放基础能力建设和作为先期行动的碳减排量核证和注册登记确权问题。随着国际谈判压力不断增大,我国碳市场建设重点必将转向基于强制性的区域碳交易,但我国这方面在制度设计,包括法规框架、政策体系、技术路线、交易机制与流程还没建立起来。“十二五”期间,在国家引入碳排放权交易制度的统一部署下,建筑行业也在考虑建立国内的碳交易体系和交易机制,从而为进一步利用低成本的市场激励机制,促进建筑节能和低碳技术的应用发展,以及为国内既
5、有建筑改造和低能耗建筑开发提供资金补偿做出贡献。本研究报告共分六章。报告第一章分析了建立我国建筑行业碳排放权交易制度的必要性和可行性,指出碳排放权交易机制的建立是由于 CDM 机制在国际碳市场融资前景黯淡而采取的必然选择;是建筑行业独特的减排特点和成本的选择;是自愿碳交易市场必然向强制性碳市场发展趋势下的选择;是国内实现低碳战略发展目标和建筑节能发展的内在需要。第二章分析了建筑行业碳排法权交易制度在政策导向、市场培育、建筑节能工作支撑条件、国内外合作研究和试点实践几方面具备的有利的基础条件,说明制度具有可行性。第三章分析了建筑行业建立国内碳排放权交易制度的制约因素,如果不能克服这些障碍,可行性
6、必然大打折扣。报告第四章从法规框架、政策支撑体系、基准线确立方法学、交易机制与模式、机构框架等几个方面提出了我国建筑行业碳排放权交中国建筑行业碳排放权交易制度可行性研究 iii 易制度的初步框架与操作方法。着重分析了四种可行的交易机制方案的特点以及发展重点。报告第五章提出了建立建筑行业碳交易制度的步骤与路线图。自2012 年起培育和健全建筑行业自愿碳减排市场,为转向强制性减排市场做技术和基础能力建设的准备。2012-2018 年,开展区域性强制性碳减排的研究准备和城市试点,找到符合建筑行业特点的交易机制和模式,初步建立建筑行业碳交易制度。2018-2020 年,在试点的基础上总结经验,在更多有
7、条件的地区推广碳交易机制,促进建筑节能发展和低碳技术的应用。报告第六章通过对我国建筑行业碳排放权交易制度的必要性、具备的基础条件和存在的障碍的分析,得出建立该制度具有可行性的结论,指出了建筑行业建立国内碳排放权交易制度的目标是强制性碳市场。同时从法规政策、技术标准、机构建设、能力建设、试点示范等方面提出了制度建设的保障措施和建议,并提出了相应的行动计划。本项目得到了美国能源基金会的赞助,在此表示诚挚的感谢。项目组 2013 年 3 月 28 日 中国建筑行业碳排放权交易制度可行性研究 iv Executive Summary The Kyoto Protocol signed in 1997
8、caps the emissions of greenhouse gas including carbon dioxide.The move makes carbon emission rights become scarce,thus the global carbon market and trading of carbon emission allowance and credits taking shape.Under the arrangement of the framework of Kyoto Protocol during the past ten years,carbon
9、trading scheme has gradually become the one of the preferred political instrument by many countries to address climate change issues In the international carbon trading market,China has been the largest supplier of the global CDM.Nevertheless,CDM develops slowly in the building sector.Besides the li
10、mitations of the CDM mechanism itself,the unique barriers facing building sector are the major reasons for the sluggish development of CDM projects,including:(a)Application of the CDM mechanism to a single building with long construction period and low returns of emission reduction leads to high uni
11、t cost and high investment risk.(b)It is difficult to determine the benchmark of a building project.(c)There are very few CDM methodologies that fit in conditions of the building sector in China.(d)There are many difficulties in allocating CERs due to multiple ownership of residential buildings.In a
12、ddition,The PCDM,programmatic enhancement of CDM is also backward in the building sector due to many constraints in the execution of projects,including:(a)lack of methodologies that fit in the unique features of Chinas building sector.(b)Limitation on qualification and capability of CME.(c)Lack of s
13、upporting policy for development of PCDM.Considering the constraints of the CDM(PCDM)development in Chinas building sector,we shall find new instruments to incentivize carbon emission reductions in the current building sector.One of the most feasible approaches is,undoubtedly,to establish the domest
14、ic carbon trading scheme,which will stimulate energy efficiency in buildings through market mechanism.In contrast to rapid development of regional carbon trading markets in other countries,Chinas carbon trading market just kicked off,which is only limited to voluntary carbon emission reduction tradi
15、ng until now.The Provisional Measures on Management of Trading of Credits for Voluntary Greenhouse Gas Emission Reduction issued in 2012 by National Development and Reform Commission(NDRC)gave stipulations on examination,issuance,registration and trading on credits of voluntary carbon emission reduc
16、tion projects,which is a milestone move for the development of Chinas carbon trading market.The voluntary carbon trading market is a transition arrangement at the initial stage of Chinas carbon trading market.With the ever-growing pressure from international climate negotiations,NDRC will eventually
17、 shift the focus on domestic mandatory carbon trading scheme which is definitely the trend of carbon trading market.However,the institutional design of 中国建筑行业碳排放权交易制度可行性研究 v mandatory carbon trading scheme is yet to be established in terms of legal,political and institutional framework,applied metho
18、dologies,trading mechanism and procedures.During the period from 2015-2020,the building sector is also considering establishing carbon trading system to incentivize higher energy efficiency and lower emission reductions,promote adoption of low carbon technologies,and cover part of cost of renovation
19、 of existing buildings and development of super low energy building.This report includes six chapters.In Chapter one,we analyze necessity and feasibility of establishment of domestic carbon trading scheme in the building sector in China and states that establishment of the domestic scheme is the cho
20、ice resulting from reasons:(a)gloomy prospects of CDM mechanism in the international carbon market;(b)unique features of the building sector in terms of emission reduction;(c)trend to mandatory carbon trading market from voluntary market;(d)intrinsic needs for realization of low-carbon objectives an
21、d improvement of energy efficiency in buildings.In Chapter two,we analyze enabling conditions for establishment of domestic carbon trading scheme in terms of policy guidance,market cultivation,supporting conditions arisen from efforts of building energy efficiency,achievements gained from internatio
22、nal cooperation and pilot practice in some cities.In Chapter three,we analyze the barriers and constraints facing domestic scheme which should be overcomed to improve feasibility of the domestic scheme.In Chapter four,we put forward preliminary framework and approaches on establishment of domestic c
23、arbon trading scheme in the building sector in terms of legal and regulatory framework,political and institutional framework,methodologies on determination of baseline,trading mechanism.Among which,focus is given to 4 modes of trading mechanism which are analyzed in details in terms of features and
24、development priority.In Chapter five,we put forward steps and roadmap for implementation of the domestic carbon trading scheme.The timetable is:(a)cultivate and improve voluntary emission reduction market in building sector since 2012 to make preparation for transition to mandatory market in terms o
25、f technical framework,infrastructure development and capacity building;(b)from 2012 to 2018,to make further study on the mandatory system and initiate city-level pilot trading in order to find the proper and practical trading mechanism and modes that fit in the conditions and features of the buildin
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