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Notice of the State Council on Issuing the Work Plan for Greenhouse Gas Emission Control during the 12th Five-Year Plan Period
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国务院关于印发“十二五”控制温室气体排放工作方案的通知
[现行有效]
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【法宝引证码】
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Notice of the State Council on Issuing the Work Plan for Greenhouse Gas Emission Control during the 12th Five-Year Plan Period
(No. 41 [2011] of the State Council)
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government; all ministries and commissions of the State Council and all institutions directly under the State Council:
The Work Plan for Greenhouse Gas Emission Control during the 12th Five-Year Plan Period (hereinafter referred to as the “Plan”) is hereby issued to you for your diligent implementation.
The control of greenhouse gas emissions is an important task for China to actively address global climate change and is of great significance in accelerating the transformation of the economic development mode, promoting sustainable economic and social development and promoting the new industrial revolution. To realize the target for reducing carbon dioxide emissions per unit of GDP by 17% by 2015 from the 2010 level, we shall vigorously carry out energy conservation and consumption reduction, optimize the energy structure, endeavor to increase carbon sinks, and accelerate the formation of low-carbon industrial systems and lifestyles.
Each region and department shall fully realize the significance, urgency and difficulty of greenhouse gas emission control, include emission control in the overall work of the respective region and department, break down and assign various kinds of work and tasks to the basic levels, formulate annual specific measures for implementation, further strengthen organization and leadership, improve the management system, specify responsibilities, improve policies and regulations and increase financial inputs. The local people's government at each level shall take overall responsibility for the control of greenhouse gas emissions within its respective administrative region, and the major government leader shall be the primary responsible person for the control of greenhouse gas emissions. The relevant departments shall effectively control greenhouse gas emissions within the scope of their respective functions. We shall maximize market mechanisms, enhance the awareness and consciousness of enterprises and all circles of society regarding the control of greenhouse gas emissions, and form a work pattern in which the government takes the lead, enterprises are the principal actors and all of society actively participates to ensure the realization of the target for greenhouse gas emission control during the 12th Five-Year Plan period.
State Council
December 1, 2011
Work Plan for Greenhouse Gas Emission Control during the 12th Five-Year Plan Period
| | 国务院关于印发“十二五”控制温室气体排放工作方案的通知
（国发[2011]41号）
各省、自治区、直辖市人民政府，国务院各部委、各直属机构：
现将《“十二五”控制温室气体排放工作方案》（以下简称《方案》）印发给你们，请认真贯彻执行。
控制温室气体排放是我国积极应对全球气候变化的重要任务，对于加快转变经济发展方式、促进经济社会可持续发展、推进新的产业革命具有重要意义。要围绕到2015年全国单位国内生产总值二氧化碳排放比2010年下降17%的目标，大力开展节能降耗，优化能源结构，努力增加碳汇，加快形成以低碳为特征的产业体系和生活方式。
各地区、各部门要充分认识控制温室气体排放工作的重要性、紧迫性和艰巨性，将其纳入本地区、本部门总体工作布局，将各项工作任务分解落实到基层，并制定年度具体实施办法，进一步加强组织领导，健全管理体制，明确工作责任，完善政策法规，加大资金投入。地方各级人民政府对本行政区域内控制温室气体排放工作负总责，政府主要领导是第一责任人。有关部门要在各自职责范围内做好控制温室气体排放工作。要充分发挥市场机制作用，增强企业和社会各界控制温室气体排放的意识和自觉性，形成以政府为主导、企业为主体、全社会广泛参与的控制温室气体排放工作格局，确保完成“十二五”控制温室气体排放目标。
国务院
二○一一年十二月一日
“十二五”控制温室气体排放工作方案
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I. Overall requirements and major target
| | 一、总体要求和主要目标
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1. Overall requirements. With scientific development as the theme and accelerating the transformation of the economic development mode as the main focus, we shall solidly foster the concept of green and low carbon development, take into consideration the overall domestic and international situation, view proactive responses to climate change as an important strategy for economic and social development as well as an important opportunity for accelerating the transformation of the economic development mode and for adjusting the economic structure and promoting a new industrial revolution. We shall adhere to the new road of industrialization, rationally control total energy consumption, comprehensively take various measures such as optimizing the industrial structure and energy structure, practicing energy conservation, raising energy efficiency and increasing carbon sinks, launch low carbon pilot projects, improve the systems, mechanisms and policy systems, improve incentive and constraint mechanisms, bring into play the role of market mechanisms, strengthen research on and the development, popularization and application of low carbon technologies, accelerate the establishment of industrial, energy, building, transportation and other industrial systems and consumption modes characterized by low carbon, effectively control greenhouse gas emissions, improve the capability to address climate change, promote sustainable economic and social development, and make positive contributions to addressing of global climate change.
| | （一）总体要求。坚持以科学发展为主题，以加快转变经济发展方式为主线，牢固树立绿色、低碳发展理念，统筹国际国内两个大局，把积极应对气候变化作为经济社会发展的重大战略、作为加快转变经济发展方式、调整经济结构和推进新的产业革命的重大机遇，坚持走新型工业化道路，合理控制能源消费总量，综合运用优化产业结构和能源结构、节约能源和提高能效、增加碳汇等多种手段，开展低碳试验试点，完善体制机制和政策体系，健全激励和约束机制，更多地发挥市场机制作用，加强低碳技术研发和推广应用，加快建立以低碳为特征的工业、能源、建筑、交通等产业体系和消费模式，有效控制温室气体排放，提高应对气候变化能力，促进经济社会可持续发展，为应对全球气候变化作出积极贡献。
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2. Major target. We shall substantially reduce carbon dioxide emissions per unit of GDP, reducing carbon dioxide emissions per unit of GDP by 17% by 2015 as compared with that in 2010. Achievements shall be made in the control of carbon dioxide emissions in non-energy activities and the emissions of greenhouse gases such as methane, nitrous oxide, HFCs, perfluocarbon and sulfur hexafluoride. We shall further improve climate change policy system and mechanisms, basically establish systems for the statistical accounting of greenhouse gas emissions, and gradually create a carbon emission trading market. We shall, through low carbon pilot projects, form a group of low carbon provinces, autonomous regions and municipalities directly under the Central Government with various characteristics, establish a group of model low carbon parks and communities, popularize numerous low carbon technologies and products with sound emission reduction effects, and comprehensively enhance the ability to control greenhouse gas emissions.
| | （二）主要目标。大幅度降低单位国内生产总值二氧化碳排放，到2015年全国单位国内生产总值二氧化碳排放比2010年下降17%。控制非能源活动二氧化碳排放和甲烷、氧化亚氮、氢氟碳化物、全氟化碳、六氟化硫等温室气体排放取得成效。应对气候变化政策体系、体制机制进一步完善，温室气体排放统计核算体系基本建立，碳排放交易市场逐步形成。通过低碳试验试点，形成一批各具特色的低碳省区和城市，建成一批具有典型示范意义的低碳园区和低碳社区，推广一批具有良好减排效果的低碳技术和产品，控制温室气体排放能力得到全面提升。
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II. Comprehensively using multiple control measures
| | 二、综合运用多种控制措施
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3. The adjustment of industrial structure shall be accelerated. We shall inhibit the excessive growth of high energy consumption industries, further enhance the access threshold for industries with high energy consumption, high emissions and overcapacity, improve the rules for project examination and approval, verification and filing, and strictly control new construction projects. We shall accelerate the elimination of inefficient production capacity, improve the mechanism for the exit of insufficient production capacity, make implementation plans and annual plans for the elimination of inefficient production capacity in the major industries during the 12th Five-Year Plan period, and strengthen the work of eliminating inefficient production capacity. We shall strictly carry out the Catalogue for Guiding Industry Restructuring, accelerate the use of new high technologies and advanced applied technologies to improve traditional industries, and promote the integration of information technologies and industrialization. We shall vigorously develop the service industry and strategic emerging industries, and by 2015, increase the proportion of value added from services and strategic emerging industries to GDP to approximately 47% and 8% respectively.
| | （三）加快调整产业结构。抑制高耗能产业过快增长，进一步提高高耗能、高排放和产能过剩行业准入门槛，健全项目审批、核准和备案制度，严格控制新建项目。加快淘汰落后产能，完善落后产能退出机制，制定并落实重点行业“十二五”淘汰落后产能实施方案和年度计划，加大淘汰落后产能工作力度。严格落实《产业结构调整指导目录》，加快运用高新技术和先进实用技术改造提升传统产业，促进信息化和工业化深度融合。大力发展服务业和战略性新兴产业，到2015年服务业增加值和战略性新兴产业增加值占国内生产总值比例提高到47%和8%左右。
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4. Energy conservation and consumption reduction shall be effectively promoted. We shall improve energy conservation regulations and standards, strengthen the examination of responsibility for energy conservation targets, and strengthen the energy conservation appraisal and examination of fixed assets investment projects. We shall carry out major energy conservation projects, strengthen the energy conservation management of major energy-consuming entities, give priority to energy conservation in fields such as industries, building, transportation and public institutions, and strengthen the development, popularization and application of energy conservation technologies. We shall improve energy conservation market mechanisms, improve the system for energy efficiency labels, energy conservation product authentication and the compulsory government procurement of energy conserving products, and accelerate the development of the energy conservation service industry. We shall vigorously develop the circular economy and strengthen the building of energy conservation capacity. By 2015, energy conservation capacity of 300 million tons of standard coal equivalent shall be created and energy consumption per unit of GDP shall reduce by 16% as compared with that in 2010.
| | （四）大力推进节能降耗。完善节能法规和标准，强化节能目标责任考核，加强固定资产投资项目节能评估和审查。实施节能重点工程，加强重点用能单位节能管理，突出抓好工业、建筑、交通、公共机构等领域节能，加快节能技术开发和推广应用。健全节能市场化机制，完善能效标识、节能产品认证和节能产品政府强制采购制度，加快节能服务业发展。大力发展循环经济，加强节能能力建设。到2015年，形成3亿吨标准煤的节能能力，单位国内生产总值能耗比2010年下降16%。
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5. Low carbon energy shall be proactively developed. We shall adjust and optimize the energy structure, promote the clean utilization of coal, encourage the development and utilization of coal-bed methane and natural gas, develop nuclear power on the basis of ensuring safety, and proactively develop hydroelectric power under the premise of effective ecological conservation and resident relocation, vigorously develop wind power, solar energy, biomass energy, geothermal energy and other non-fossil energy in light of the local circumstances. We shall promote the popularization and application of distributed energy systems. By 2015, the proportion of non-fossil energy consumption to primary energy consumption shall reach 11.4%.
| | （五）积极发展低碳能源。调整和优化能源结构，推进煤炭清洁利用，鼓励开发利用煤层气和天然气，在确保安全的基础上发展核电，在做好生态保护和移民安置的前提下积极发展水电，因地制宜大力发展风电、太阳能、生物质能、地热能等非化石能源。促进分布式能源系统的推广应用。到2015年，非化石能源占一次能源消费比例达到114%。
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6. Efforts shall be made to increase carbon sinks. We shall accelerate afforestation, continue to carry out major ecological protection projects, consolidate and expand the achievements made in projects on returning farmland to forest, and carry out the afforestation projects with an aim to expand carbon sinks. We shall thoroughly carry out urban greening and effectively conduct greening on railways and highways. We shall strengthen forest tending business operations and sustainable management, strengthen the protection of existing forest resources, transform low yield and low efficiency forests, and increase the forest growth rate and stock volume. The ecological compensation mechanism shall be improved. During the 12th Five-Year Plan period, 12.5 million hectares of forests shall be added, the forest coverage rate shall increase to 21.66%, and the forest stock volume shall increase by 600 million cubic meters. We shall proactively increase carbon sinks in farmland, grassland and other ecological systems. We shall strengthen the recovery of coastal wetlands, and in light of the development of the marine economy and the protection of coastal zones, actively explore the utilization of alga, shellfish, coral and other marine organisms to conduct carbon sequestration and carry out pilot projects according to the natural conditions. We shall carry out experimental carbon capture projects in the thermal power, coal chemical, cement and steel industries, and build the model projects integrating carbon dioxide capture, oil displacement and carbon storage.
| | （六）努力增加碳汇。加快植树造林，继续实施生态建设重点工程，巩固和扩大退耕还林成果，开展碳汇造林项目。深入开展城市绿化，抓好铁路、公路等通道绿化。加强森林抚育经营和可持续管理，强化现有森林资源保护，改造低产低效林，提高森林生长率和蓄积量。完善生态补偿机制。“十二五”时期，新增森林面积1250万公顷，森林覆盖率提高到2166%，森林蓄积量增加6亿立方米。积极增加农田、草地等生态系统碳汇。加强滨海湿地修复恢复，结合海洋经济发展和海岸带保护，积极探索利用藻类、贝类、珊瑚等海洋生物进行固碳，根据自然条件开展试点项目。在火电、煤化工、水泥和钢铁行业中开展碳捕集试验项目，建设二氧化碳捕集、驱油、封存一体化示范工程。
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7. Greenhouse gas emissions in non-energy activities shall be controlled. We shall control greenhouse gas emissions during the industrial production process, continue to popularize cement production with carbide slag, paper-making sludge, desulfurization gypsum, fly ash, slag and other industrial solid waste as well as non-carbonate raw materials such as volcanic ash, accelerate the development of new types of low carbon cement, encourage the use of bulk cement, premixed concrete and premixed mortar; encourage the use of the short hot rolling production process for scrap steel electric furnaces; popularize production process technology for the short melting process for non-ferrous metals; reduce the number of lime earth kilns; and, by improving the production process, control greenhouse gas emissions during the industrial production process in the calcium carbide, refrigerant, adipic acid and nitric acid industries. We shall strive to control greenhouse gas emissions in the agricultural field through improving crop varieties and improving the planting technology; strengthen the disposal and comprehensive utilization of animal husbandry waste and urban waste, and control the increase of methane and other greenhouse gases emissions. We shall proactively conduct research and development and popularize the utilization of technologies for controlling such greenhouse gases as HFCs, perfluocarbon and sulfur hexafluoride, and improve the emission control capacity.
．．．．．． | | （七）控制非能源活动温室气体排放。控制工业生产过程温室气体排放，继续推广利用电石渣、造纸污泥、脱硫石膏、粉煤灰、矿渣等固体工业废渣和火山灰等非碳酸盐原料生产水泥，加快发展新型低碳水泥，鼓励使用散装水泥、预拌混凝土和预拌沙浆；鼓励采用废钢电炉炼钢-热轧短流程生产工艺；推广有色金属冶炼短流程生产工艺技术；减少石灰土窑数量；通过改进生产工艺，减少电石、制冷剂、己二酸、硝酸等行业工业生产过程温室气体排放。通过改良作物品种、改进种植技术，努力控制农业领域温室气体排放；加强畜牧业和城市废弃物处理和综合利用，控制甲烷等温室气体排放增长。积极研发并推广应用控制氢氟碳化物、全氟化碳和六氟化硫等温室气体排放技术，提高排放控制水平。
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