【中英文对照版】加快构建碳排放双控制度体系工作方案

加快构建碳排放双控制度体系工作方案Work Plan for Accelerating the Establishment ofa Dual Control System for Carbon Emission制定机关国务院办公厅发文字号国办发号[202439公布日期

2024.

07.30施行日期

2024.

07.30效力位阶国务院规范性文件法规类别环保综合规定Issuing AuthorityGeneral Office of the State CouncilDocument NumberNo.39

[2024]of the General Officeof the State CouncilDate Issued07-30-2024Effective Date07-30-2024Level ofAuthority RegulatoryDocuments of the State Council Areaof LawGeneral Provisionson EnvironmentalProtection国务院办公厅关于印发《加Notice bytheGeneral Officeof theState Council of快构建碳排放双控制度体Issuing theWork Plan for Acceleratingthe Establishment系工作方案》的通知of aDualControlSystem for Carbon EmissionNo.39

[2024]of theGeneral Officeof theState Council国办发号The peoplesgovernments of all provinces,autonomousregions,and municipalitiesdirectly under the Central202439Government;and allministries andcommissions of theState Counciland allinstitutions directlyundertheState各省、自治区、直辖市人民Council:政府，国务院各部委、各直属机构The Work Planfor Acceleratingthe Establishmentof aDual ControlSystemforCarbonEmission,with consentof theState Council,is herebyissued for《加快构建碳排放双控制度体系工作方案》已经国足迹管理体系

13.Developing rules and standards for product carbon

（十三）制定产品碳足迹footprint accounting.The nationalstandards such as核算规则标准制定发布产general rulesfor quantifyingproduct carbon footprint品碳足迹量化要求通则等requirements shall be developed and issued,and the国家标准，对产品碳足迹核unified requirements for product carbon footprint算原则、核算方法、数据质accounting principles,accounting methods,and data量等明确统一要求按照急quality,among others,shall bespecified.Under theprincipleof urgentuse first,by focusing on power,fuel用先行原则，聚焦电力、燃oil,steel,electrolytic aluminum,cement,fertilizer,油、钢铁、电解铝、水泥、hydrogen,lime,glass,ethylene,synthetic ammonia,化肥、氢、石灰、玻璃、乙calcium carbide,methanol,coal chemicalindustry,烯、合成氨、电石、甲醇、power batteries,photovoltaic,new energyvehicles,煤化工、动力电池、光伏、electronic andelectrical appliancesand otherkey新能源汽车、电子电器等重products,relevant industryassociations,enterprises,点产品，组织相关行业协and scientificresearch institutions,among others,shallbe organized to developand issuethe industrial会、企业、科研单位等制定standards orgroup standardsfor product carbon发布产品碳足迹核算行业footprint accounting.标准或团体标准

14.Strengthening the construction of the carbonfootprint background database.The construction of a

（十四）加强碳足迹背景national greenhouse gas emission factor databaseshall数据库建设加快建设全国be accelerated,a mechanismfor regularupdating andreleaseshall be established,and baselinedata forlocal温室气体排放因子数据库，governments andenterprises to carry out product建立定期更新发布机制，为carbon footprintaccounting shall be provided.The地方、企业开展产品碳足迹competent industrydepartments andregions wherethe核算提供基准数据行业主conditions aremet maybuild carbonfootprint管部门和有条件的地区可background databases for key industries according to以根据需要建设重点行业the needs,and encouragerelevant industryassociations,enterprises,and scientificresearch碳足迹背景数据库，鼓励相entities toexplore theconstruction ofproduct carbon关行业协会、企业、科研单footprintbackgrounddatabasesforsubdivided位探索建设细分行业领域industries.产品碳足迹背景数据库

15.Establishing aproduct carbonidentification andcertification system.The measures for the

（十五）建立产品碳标识认证制度制定产品碳标识认证管理办法，研制碳标administration ofproduct carbon labeling certificationshall be developed,the nationalstandards relatedto识相关国家标准，组织有条carbon labelingshall bestudied anddeveloped,件的城市聚焦重点产品开qualified citiesshall beorganizedtofocus onkey展先行先试，鼓励企业按照products toimplement thepilot programfirst,and市场化原则开展产品碳标enterprises shall be encouragedtocarry outproduct识认证carbon labelingcertification underthe market-orientedprinciples.VIII.Organization andimplementation

八、组织实施All regionsand relevant departments shallthoroughlyimplement thedecisions anddeployments of the CPC各地区、各有关部门要深入Central Committeeand theStateCouncil,accelerate贯彻落实党中央、国务院决theconstructionof a dual control system forcarbon策部署，加快构建碳排放双emissions,specify theimplementation planin light of控制度体系，结合实际细化the actualcircumstances,and solidlypromote various落实方案，按照职责分工扎key tasksaccordingtothe divisionof responsibilities,实推进各项重点任务，持续and continuouslyconsolidate thework foundation.TheNational Developmentand ReformCommission shall夯实工作基础国家发展改effectively fulfillthe relevantcoordination革委要切实履行“双碳”；responsibilities of“double carbonstrengthen有关协调职责，强化调度督scheduling andsupervision andpromote the促和推进落实，加强前瞻性implementation,strengthen forward-looking research政策研究，及时优化有关任on policies,optimize relevanttasks and measures in a务举措，抓紧补齐制度短timely manner,pay closeattention tothe shortcomings板，并会同有关部门加强宣of thesystem,and strengthenpublicity and传解读和教育培训重大事interpretation andeducation andtraining inconjunctionwith the relevantdepartments.Request forinstructions项及时请示报告and reportson majormatters shall be filedin atimelymanner.务院同意，现印发给你们，your diligentimplementation in light of the actualcircumstances.请结合实际认真贯彻执行国务院办公厅GeneralOfficeof theStateCouncil年月日July30,20242024730This textis anabridged version（本文有删减）加快构建碳排放双控制度WorkPlanforAcceleratingtheEstablishmentofaDualControl SystemforCarbonEmission体系工作方案For thepurposes ofimplementing thedecisions and为贯彻落实党中央、国务院deployments ofthe CPCCentral Committeeand the决策部署，建立能耗双控向StateCouncil,establishing anew mechanismfor the碳排放双控全面转型新机comprehensive transformationfrom dual control of制，加快构建碳排放总量和energy consumptionto dual control of carbonemissions,accelerating theconstructionofa dual强度双控（以下简称碳排放controlsystem for totalcarbon emissions and intensity双控）制度体系，积极稳妥hereinafter referredto as“dual control of carbon推进碳达峰碳中和、加快发emissions activelyand steadilypromoting achieving展方式绿色转型，制定本工carbon dioxide peaking and carbon neutrality,and作方案accelerating thegreen transformationof developmentmodes,this WorkPlan isdeveloped.I.General requirements

一、总体要求Under theguidance ofthe Xi Jigging Thoughton以习近平新时代中国特色Socialism withChinese Characteristicsfor aNew Era,社会主义思想为指导，深入the spiritofthe20th CPCNational Congressand the贯彻党的二十大和二十届Second andThird PlenarySessions ofthe20th CPC二中、三中全会精神，全面Central Committeeshall bethoroughly implemented,XiSpinnings economicthought andXiJiggingthought on贯彻习近平经济思想、习近ecological civilizationshall be implemented平生态文明思想，完整准确comprehensively,the newdevelopment conceptshall全面贯彻新发展理念，加快be implemented in acomplete,构建新发展格局，着力推动高质量发accurate andcomprehensive manner,the buildingof anewdevelopment patternshall be accelerated,the展，将碳排放指标及相关要carbon emissionindicators andrelated requirements求纳入国家规划，建立健全shall be incorporated intothe nationalplanning,local地方碳考核、行业碳管控、carbon assessment,industrial carbonmanagement,企业碳管理、项目碳评价、enterprise carbonmanagement,project carbon产品碳足迹等政策制度和evaluation,productcarbonfootprint and other policies,管理机制，并与全国碳排放systems andmanagement mechanismsshall beestablishedand improved,and beeffectively connected权交易市场有效衔接，构建with the national carbon emission rights trading market,a系统完备的碳排放双控制dualcontrolsystem forcarbon emissionwith acomplete度体系，为实现碳达峰碳中system shall be established,and astrong guaranteefor和目标提供有力保障realizing thegoal ofachieving carbon dioxide peakingand carbon neutrality shall beprovided.到年，碳排放统计核算By2025,the carbon emission statisticaland accounting体系进一步完善，一批行业system will be furtherimproved,a numberof relevant2025industry andenterprise carbon emission accounting企业碳排放核算相关标准standards andproductcarbonfootprint standardswill be和产品碳足迹标准出台实issued andimplemented,the nationalgreenhouse gas施，国家温室气体排放因子emissionfactordatabase will be basicallycompleted and数据库基本建成并定期更updated ona regularbasis,and therelevant新，相关计量、统计、监测measurement,statistics andmonitoring capabilitieswill能力得到提升，为“十五be improved,to laythe foundationfor theimplementationof dualcontrol of carbon emissionnationwide duringthe五”时期在全国范围实施15th Five-Year Plan”period.碳排放双控奠定基础During the15th Five-Year Plan”period,a dualcontrol“十五五”时期，实施以强system forcarbon emissiondominated byintensity度控制为主、总量控制为辅control andsupplemented bytotal volumecontrol shall be的碳排放双控制度，建立碳implemented,a comprehensiveassessment system for达峰碳中和综合评价考核achieving carbon dioxide peaking and carbon neutrality制度，加强重点领域和行业shall be established,the carbon emission accountingcapacityin key fields andindustries shall be strengthened,碳排放核算能力，健全重点the management system for key energy consumption and用能和碳排放单位管理制carbon emission entities shall be improved,carbon度，开展固定资产投资项目emission evaluationfor fixed asset investment projects碳排放评价，构建符合中国shall be carried out,and a国情的产品碳足迹管理体系和产productcarbonfootprint management system andaproduct carbonidentification andcertification systemin品碳标识认证制度，确保如line withChinas nationalconditions shall beestablished期实现碳达峰目标to ensure that theobjective ofachieving carbon dioxidepeaking onschedule.After achieving carbon dioxide peaking,adualcontrol碳达峰后，实施以总量控制system forcarbon emissiondominated bytotal volume为主、强度控制为辅的碳排control andsupplemented byintensity controlshall be放双控制度，建立碳中和目implemented,an evaluationsystem for achieving carbon标评价考核制度，进一步强neutralityshall beestablished,the requirementsforcarbon emission control inall regions,key fields,化对各地区及重点领域、行industries andenterprises shall be furtherstrengthened,业、企业的碳排放管控要the productcarbonfootprintmanagement systemshall be求，健全产品碳足迹管理体improved,the productcarbonlabelingcertificationsystem系，推行产品碳标识认证制shall be promoted,and steadydecline in the totalcarbon度，推动碳排放总量稳中有emissions shall be advanced.降II.Improving the carbon emission-related planningsystem

二、完善碳排放相关规划制度

1.Promoting theincorporation of carbon emission

（一）推动将碳排放指标indicators intothe plan.Carbon emission targets shall beincorporated intothenational economic and social纳入规划将碳排放指标纳development plan,factors suchas economic入国民经济和社会发展规development,energy security,peoples normalwork and划，充分考虑经济发展、能life,and nationalindependent contributionobjectives源安全、群众正常生产生活shall becomprehensively considered,carbon emission以及国家自主贡献目标等targets for the five-year planperiod shall be reasonably因素，合理确定五年规划期determined,and overallarrangements for key tasksandmajor projectsshall bemade.During the15th Five-Year碳排放目标，并对重点任务Plan“period,the reductionofcarbon emission intensity和重大工程进行统筹部署will bea binding indicator fornational economic and“十五五”时期，将碳排放social development,the accountingof totalcarbon强度降低作为国民经济和emissions will be carried out,and energy consumption社会发展约束性指标，开展intensity willno longerbeabindingindicator.碳排放总量核算工作，不再将能耗强度作为约束性指标

2.Developing therelevant action plans forachieving

（二）制定碳达峰碳中和carbon dioxidepeaking and carbon neutrality.By有关行动方案围绕国民经focusingontherelevantdeployments ofthe Five-Year济和社会发展五年规划纲Planfornationaleconomicandsocialdevelopment,the要有关部署，研究制定碳达actionplanforachieving carbondioxidepeaking and峰碳中和有关行动方案，细carbon neutralityshall bestudied anddeveloped,and the化碳排放目标控制的工作work measures,key tasksand guaranteemeasures forcontrol ofcarbon emission targetsshall bespecified.举措、重点任务和保障措During the15th Five-Year Plan”period,the deployment施“十五五”时期，细化oftheAction Planfor AchievingCarbon DioxidePeaking落实《年前碳达峰行Before2030willbeimplementedina detailedmanner to动方案》部署，确保ensurethatcarbondioxidepeaking isachieved before2030年前实现碳达峰

2030.

20303.Improving lawsand regulationson dualcontrol of

（三）完善碳排放双控相carbon emissions.A comprehensivereview ofthe关法规制度全面清理现行contents inthe existingregulations andpolicies thatdo法规政策中与碳排放双控not satisfythe requirementsof dualcontrol ofcarbon要求不相适应的内容加快emissions shall be conducted.The revisionof energyconservation review measures for fixedasset investment修订固定资产投资项目节projects and energy conservationmanagement能审查办法、重点用能单位measuresforkey energyconsumption entitiesshall be节能管理办法等制度，纳入accelerated,and therelevant requirementsfor dual碳排放双控有关要求controlofcarbon emissions shall beincluded.

三、建立地方碳排放目III.Establishing alocal carbon emissiontargetevaluation标评价考核制度system

（四）合理分解碳排放双

4.Reasonable decomposition of dualcontrol indicatorsofcarbon emission.At theearly stageofthefive-year plan,控指标五年规划初期，综factors suchas thelevel ofeconomicandsocial合考虑经济社会发展水平、development,regional andfunctional positioning,industry区域和功能定位、产业和能andenergystructure aretaken intoaccount,and thedual源结构等因素，将碳排放双control indicators ofcarbon emission arereasonably控指标合理分解至各省份decomposed toeach province.All provincesmay further各省份可进一步细化分解specify thedecompositionofdualcontrol碳排放双控指标，压实地市及重点企业控indicatorsofcarbon emission,and effectivelyassign theresponsibilitiesof prefecturesand municipalitiesand排减排责任major enterprisesfor emissioncontrol andreduction.

5.Establishing acomprehensive evaluationsystem forachievingcarbondioxidepeakingandcarbonneutrality.

（五）建立碳达峰碳中和The comprehensive evaluation and assessment综合评价考核制度制定出measuresforachievingcarbondioxidepeakingandcarbon neutralityshall be developed andissued,the台碳达峰碳中和综合评价evaluation and assessment proceduresand results考核办法，明确评价考核工utilization methodsshall bespecified,and evaluationand作程序及结果运用方式，对assessment shall be carriedout inall provinces.An各省份开展评价考核统筹overall evaluationandassessmentindex systemshallbe建立评价考核指标体系，以established inan overallmanner,by focusingon total碳排放总量和强度指标为carbon emissionsand intensityindicators,and indicatorssuchas energystructure,energyconsumptionintensity,重点，纳入能源结构、能耗resource utilizationefficiency,ecosystem carbonsink,强度、资源利用效率、生态and greentransformation in keyfields shallbeincluded.系统碳汇、重点领域绿色转型等指标

6.Promoting the establishment ofa carbon emissionbudget management system atthe provincialandmunicipal levels.All regionsshallbe urged tocarry outcarbon emission accounting inlightof actual

（六）推动省市两级建立circumstances,the provincialand municipallevels shall碳排放预算管理制度推动be guided to establisha carbon emission budget各地区结合实际开展碳排management system,annual carbon emission analysis放核算，指导省市两级建立and targetforecasting shallbe carriedout onan annualbasis,and cooperationwith thenational carbon emission碳排放预算管理制度，按年trading market shallbe strengthened.By theend of2025,度开展碳排放情况分析和all regions willbeguided tocarryouttrial compilationof目标预测，并加强与全国碳carbonemission budgets.During the15th Five-Year排放权交易市场的工作协Plan”period,all regionswillbeguidedtoprepare carbon同年底前，指导各emissionbudgetsand dynamicallyadjust themaccording地区开展碳排放预算试编to carbonemission intensityreduction targets.During the202516th Five-Year Plan”Period and thereafter,the制工作“十五五”时期，establishment ofa rigidconstraint mechanismfor total指导各地区根据碳排放强carbonemissioncontrol inall度降低目标编制碳排放预算并动态调整“十六五”时期及以后，推动各地区建立碳排放总量控制刚性约束机制，实行五年规划期和年度regionswillbepromoted,and thewhole-processmanagement offive-year planningperiod andannual碳排放预算全流程管理carbonemissionbudget willbeimplemented.

四、探索重点行业领域IV.Exploring carbonemission early warning andcontrolmechanisms in key industries and fields碳排放预警管控机制七完善重点行业领域碳

7.Improving thecarbonemission accounting排放核算机制发挥行业主mechanisms in key industries and fields.The roleofcompetent industrydepartments andindustry管部门及行业协会作用，以associations shallbe maximized.By focusingon power,电力、钢铁、有色、建材、steel,nonferrous metals,building materials,石化、化工等工业行业和城petrochemicals,chemicals andother industries,urban乡建设、交通运输等领域为and ruralconstruction,transportation andother fields,the重点，合理划定行业领域碳scope ofcarbonemissionaccounting for industriesand排放核算范围，依托能源和fields shallbe reasonablydelineated,and byrelying on工业统计、能源活动和工业energy andindustrial statistics,energy activitiesandcarbon emissionaccounting duringthe industrial生产过程碳排放核算、全国production process,national carbonemission rights碳排放权交易市场等数据，trading marketandotherdata,carbonemission开展重点行业碳排放核算accountingin key industries shallbecarriedout.

8.Establishing acarbonemissionmonitoring andearlywarning mechanismforindustriesand fields.The carbon建立行业领域碳排放监emission baseand emission reduction potentialityinkey测预警机制摸清重点行业industriesand fieldsshallbe foundout,analysis onandA领域碳排放底数与减排潜monitoring ofcarbonemissionsituation shallbe carriedoutinanormalized manner,earlywarningofthesituation力，常态化开展碳排放形势in industriesand fieldsin whichcarbon emissionsgrow分析监测，对碳排放增长较rapidly shallbe conducted,andmeasuressuchasstrict快的行业领域进行形势预controlofnew projects,strict controlofthenational警，并视情采取新上项目从carbonemissionrights trading market,and strict严把关、全国碳排放权交易management ofkey energyconsumption andcarbon市场从严管控、重点用能和emission entitiesshallbeadopted inlightofthecircumstances.When theconditions aremet,thecarbon碳排放单位从严管理等措emissioncontrol requirements inkeyindustriesandfields施条件成熟时，将重点行shallbeincluded inthe业领域碳排放管控要求纳入碳达峰碳中和综合评价考核指标体comprehensiveevaluationandassessmentindex系systemforachievingcarbondioxidepeakingandcarbon neutrality.

五、完善企业节能降碳V.Improving the energy conservation andcarbon管理制度reduction managementsystem ofenterprises

9.Improving themanagementsystemforkey energyconsumption andcarbonemission entities.The carbon

（九）健全重点用能和碳emissionaccountingrulesandstandardsforenterprises排放单位管理制度制修订inkeyindustries suchas power,steel,nonferrous metals,电力、钢铁、有色、建材、building materials,petrochemicals and chemicals shallbe石化、化工等重点行业企业developed andrevised.The measuresfor theadministrationof energyconservationandcarbon碳排放核算规则标准制定reduction inkey energyconsumption andcarbon出台重点用能和碳排放单emissionentitiesshallbedevelopedandissued,the位节能降碳管理办法，将碳carbonemissioncontrolrequirementsshallbe排放管控要求纳入现行重incorporated intothe currentmanagementsystemforkey点用能单位管理制度，推动energyconsumptionentities,keyenergyconsumption重点用能和碳排放单位落andcarbonemissionentitiesshallbeurged toimplementthe requirementsfor management of energyconservation实节能降碳管理要求，加强andcarbon reduction,and theinstallation,verification and能源和碳排放计量器具配calibration ofenergy andcarbonemissionmeasuring备和检定校准instruments shallbestrengthened.

10.Maximizing theregulatory roleofthemarketmechanism Theregulation mechanisminthenationalcarbon emissionrightstrading marketshallbe improved,

（十）发挥市场机制调控the coverageof industries shallbegradually expanded,作用完善全国碳排放权交the mechanismsfor compensatedallocation ofquotas易市场调控机制，逐步扩大shallbeexplored,the reportingand verificationlevel shall行业覆盖范围，探索配额有be improved,and compliantenterprises shallbeurgedto偿分配机制，提升报告与核reduce carbon emissions.The nationalvoluntary查水平，推动履约企业减少greenhousegasemissionreductiontradingmarketshallbe improved,the fieldsof supportshallbegradually碳排放健全全国温室气体expanded,and emissionreduction ina greaterscope自愿减排交易市场，逐步扩shallbepromoted.The improvement大支持领域，推动更大范围减排加快健全完善绿证交易市场，促进绿色电力消费ofthegreen certificatetradingmarketshall beacceleratedand greenpower consumptionshall bepromoted.

六、开展固定资产投资VL Carryingout carbonemission evaluationof fixedassetinvestment projects项目碳排放评价

11.Improving thereview systemfor energyconservation

（十一）完善固定资产投in fixedasset investmentprojects.The relevant资项目节能审查制度将碳requirementsforcarbonemissionevaluation shallbe排放评价有关要求纳入固incorporated intotheenergyconservationreviewof fixed定资产投资项目节能审查，asset investmentprojects,and thecircumstances ofenergyconsumption andcarbonemissionsof projects对项目用能和碳排放情况shallbecomprehensively evaluated,and therelevant开展综合评价，将有关审查review andevaluation opinionsshallbeused asan评价意见作为固定资产投important basisforthecommencement of construction,资项目开工建设以及竣工completion acceptanceand operationmanagementof验收和运营管理的重要依fixedassetinvestmentprojects.据

12.Improving theenvironmental impactevaluationsystem forconstruction projects.The controlofgreenhouse gas emissionsshallbeincorporatedinto

（十二）完善建设项目环environmental impact assessment,the greenhousegas境影响评价制度将温室气emissionsandemission levelsofconstructionprojects体排放管控纳入环境影响shallbeforecast andevaluated,and environmental评价，对建设项目温室气体impact assessmentsof greenhousegas emissionsinkey排放量和排放水平进行预industries suchas power,steel,building materials,测和评价，在电力、钢铁、non-ferrous metals,petrochemicals,andchemical建材、有色、石化、化工等industriesshallbecarriedout tostrengthen coordinatedcontrolof pollutionreduction andcarbonreduction.The重点行业开展温室气体排technical standardsfor environmental impactassessment放环境影响评价，强化减污of greenhousegasemissionsfrom constructionprojects降碳协同控制制定重点行inkeyindustriesshallbedeveloped,andthetechnical业建设项目温室气体排放systemforenvironmentalimpactassessment shallbe环境影响评价技术规范，健improved.全环境影响评价技术体系VIL Acceleratingtheestablishmentofaproduct carbonfootprintmanagementsystem

七、加快建立产品碳。