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1、加快构建碳排放双控制度体系工作方案WorkP1.anforAcce1.eratingtheEstab1.ishmentofaDua1.Contro1.SystemforCarbonEmission制定机关：国务院办公厅发文字号：国办发(2024)39号公布日期：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：环保琮合规定IssuingAuthorityGenera1.O11ccoftheStateCounci1.DixruincntNumber：No.39(2024)of1.heGenera1.Officeof(heSta1.eCounci1.Da1.eI
2、ssued：07-30-2024EffectiveDate：07-30-20241.eve1.ofAu1.hority:Regu1.a1.oryDocunien1.softheS1.a1.eCounci1.Areaof1.awGenera1.ProvisionsonEnvinonnKinaIP1.XHeC1.iOn国务院办公厅关于印发加快构建碳排放双控制度体系工作方案的通知NoticebytheGenera1.OfficeoftheStateCounci1.ofIssuingtheWorkP1.anforAcce1.eratingtheEstab1.ishmentofaDua1.Contro1
3、.SystemforCarbonEmission(国办发(2024)39号)(No.392024oftheGenera1.OfficeoftheStateCounci1.)各省、自治区、直辖市人民政府，国务院各部委、各直属机构：Thepeop1.esgovernmentsofa1.1.provinces,autonomousregions,andmunicipa1.itiesdirect1.yundertheCentra1.Government;anda1.1.ministriesandcommissionsoftheStateCounci1.anda1.1.institutionsdirec
4、t1.yundertheStateCounci1.:加快构建碳排放双控制度体系工作方案已经国TheWorkP1.anforAcce1.eratingtheEstab1.ishmentofaDua1.Contro1.SystemforCarbonEmission,withconsentoftheStateCounci1.,isherebyissuedforyourdi1.igentimp1.ementationin1.ightoftheactua1.circumstances.务院同意，现印发给你们，请结合实际认真宽彻执行。Genera1.OfficeoftheStateCounci1.Ju1.
5、y30,2024(Thistextisanabridgedversion)WorkP1.anforAcce1.eratingtheEstab1.ishmentofaDua1.Contro1.SystemforCarbonEmissionForthepurposesofimp1.ementingthedecisionsanddep1.oymentsoftheCPCCentra1.CommitteeandtheStateCounci1.,estab1.ishinganewmechanismforthecomprehensivetransformationfromdua1.contro1.ofene
6、rgyconsumptiontodua1.contro1.ofcarbonemissions,acce1.eratingtheconstructionofadua1.contro1.systemfortota1.carbonemissionsandintensity(hereinafterreferredtoas“dua1.contro1.ofcarbonemissions),active1.yandsteadi1.ypromotingachievingcarbondioxidepeakingandcarbonneutra1.ity,andacce1.eratingthegreentransf
7、ormationofdeve1.opmentmodes,thisWorkP1.anisdeve1.oped.I.Genera1.requirementsUndertheguidanceoftheXiJiggingThoughtonSocia1.ismwithChineseCharacteristicsforaNewEra,thespiritofthe20thCPCNationa1.CongressandtheSecondandThirdP1.enarySessionsofthe20thCPCCentra1.Committeesha1.1.bethorough1.yimp1.emented,Xi
8、SpinningseconomicthoughtandXiJiggingthoughtoneco1.ogica1.civi1.izationsha1.1.beimp1.ementedcomprehensive1.y,thenewdeve1.opmentconceptsha1.1.beimp1.ementedinacomp1.ete,国务院办公厅2024年7月30日（本文有删减）加快构建碳排放双控制度体系工作方案为贯彻落实党中央、国务院决策部署，建立能耗双控向碳排放双控全面转型新机制，加快构建碳排放总量和强度双控（以下简称碳排放双控）制度体系，积极稳妥推进碳达峰碳中和、加快发展方式绿色转型，制定
9、本工作方案。一、总体要求以习近平新时代中国特色社会主义思想为指导，深入贯彻党的二十大和二十届二中、三中全会精神，全面贯彻习近平经济思想、习近平生态文明思想，完整准确全面贯彻新发展理念，加快构建新发展格局，着力推动高质量发展，将碳排放指标及相关要求纳入国家规划，建立健全地方碳考核、行业碳管控、企业碳管理、项目碳评价、产品碳足迹等政策制度和管理机制，并与全国碳排放权交易市场有效衔接，构建系统完备的碳排放双控制度体系，为实现碳达峰碳中和目标提供有力保障。accurateandcomprehensivemanner,thebui1.dingofanewdeve1.opmentpatternsha1.1
10、.beacce1.erated,thecarbonemissionindicatorsandre1.atedrequirementssha1.1.beincorporatedintothenationa1.p1.anning,1.oca1.carbonassessment,industria1.carbonmanagement,enterprisecarbonmanagement,projectcarboneva1.uation,productcarbonfootprintandotherpo1.icies,systemsandmanagementmechanismssha1.1.beesta
11、b1.ishedandimproved,andbeeffective1.yconnectedwiththenationa1.carbonemissionrightstradingmarket,adua1.contro1.systemforcarbonemissionwithacomp1.etesystemsha1.1.beestab1.ished,andastrongguaranteeforrea1.izingthegoa1.ofachievingcarbondioxidepeakingandcarbonneutra1.itysha1.1.beprovided.到2025年，碟排放统计核算体系
12、进一步完善，一批行业企业碳排放核算相关标准和产品碳足迹标准出台实施，国家温室气体排放因子数据库基本建成并定期更新，相关计量、统计、监测能力得到提升,为“十五五”时期在全国范围实施碳排放双控奠定基础。By2025,thecarbonemissionstatistica1.andaccountingsystemwi1.1.befurtherimproved,anumberofre1.evantindustryandenterprisecarbonemissionaccountingstandardsandproductcarbonfootprintstandardswi1.1.beissuedan
13、dimp1.emented,thenationa1.greenhousegasemissionfactordatabasewi1.1.bebasica1.1.ycomp1.etedandupdatedonaregu1.arbasis,andthere1.evantmeasurement,statisticsandmonitoringcapabi1.itieswi1.1.beimproved,to1.aythefoundationfortheimp1.ementationofdua1.contro1.ofcarbonemissionnationwideduringthe15thFive-Year
14、P1.anperiod.“十五五”时期，实施以强度控制为主、总量控制为辅的碳排放双控制度，建立碳达峰碳中和综合评价考核制度，加强重点领域和行业碳排放核算能力，健全重点用能和碳排放单位管理制度，开展固定资产投资项目碳排放评价，构建符合中国国情的Duringthe15thFive-YearP1.anperiod,adua1.contro1.systemforcarbonemissiondominatedbyintensitycontro1.andsupp1.ementedbytota1.vo1.umecontro1.sha1.1.beimp1.emented,acomprehensiveasses
15、smentsystemforachievingcarbondioxidepeakingandcarbonneutra1.itysha1.1.beestab1.ished,thecarbonemissionaccountingcapacityinkeyfie1.dsandindustriessha1.1.bestrengthened,themanagementsystemforkeyenergyconsumptionandcarbonemissionentitiessha1.1.beimproved,carbonemissioneva1.uationforfixedassetinvestment
16、projectssha1.1.becarriedout,andaproductcarbonfootprintmanagementsystemandaproductcarbonidentificationandcertificationsystemin1.inewithChinasnationa1.conditionssha1.1.beestab1.ishedtoensurethattheobjectiveofachievingcarbondioxidepeakingonschedu1.e.产品碳足迹管理体系和产品碳标识认证制度，确保如期实现碳达峰目标。Afterachievingcarbond
17、ioxidepeaking,adua1.contro1.systemforcarbonemissiondominatedbytota1.vo1.umecontro1.andsupp1.ementedbyintensitycontro1.sha1.1.beimp1.emented,aneva1.uationsystemforachievingcarbonneutra1.itysha1.1.beestab1.ished,therequirementsforcarbonemissioncontro1.ina1.1.regions,keyfie1.ds,industriesandenterprises
18、sha1.1.befurtherstrengthened,theproductcarbonfootprintmanagementsystemsha1.1.beimproved,theproductcarbon1.abe1.ingcertificationsystemsha1.1.bepromoted,andsteadydec1.ineinthetota1.carbonemissionssha1.1.beadvanced.碳达峰后，实施以总量控制为主、强度控制为辅的碳排放双控制度，理立碳中和目标评价考核制度，进一步强化对各地区及重点领域、行业、企业的碳排放管控要求，健全产品碳足迹管理体系，推行产
19、品碳标识认证制度，推动碳排放总量稳中有降。II.Improvingthecarbonemission-re1.atedp1.anningsystem二、完善碳排放相关规划制度（一）推动将碳排放指标纳入规划。将碳排放指标纳入国民经济和社会发展规划，充分考虑经济发展、能源安全、群众正常生产生活以及国家自主贡献目标等因素，合理确定五年规划期碳排放目标，并对重点任务和重大工程进行统筹部署。“十五五”时期，将碳排放强度降低作为国民经济和社会发展约束性指标，开展碳排放总量核算工作，不再将能耗强度作为约束性指标。1. Promotingtheincorporationofcarbonemissionindi
20、catorsintothep1.an.Carbonemissiontargetssha1.1.beincorporatedintothenationa1.economicandsocia1.deve1.opmentp1.an,factorssuchaseconomicdeve1.opment,energysecurity,peop1.esnorma1.workand1.ife,andnationa1.independentcontributionobjectivessha1.1.becomprehensive1.yconsidered,carbonemissiontargetsforthefi
21、ve-yearp1.anperiodsha1.1.bereasonab1.ydetermined,andovera1.1.arrangementsforkeytasksandmajorprojectssha1.1.bemade.Duringthe*15thFive-YearP1.anperiod,thereductionofcarbonemissionintensitywi1.1.beabindingindicatorfornationa1.economicandsocia1.deve1.opment,theaccountingoftota1.carbonemissionswi1.1.beca
22、rriedout,andenergyconsumptionintensitywi1.1.no1.ongerbeabindingindicator.（二）制定碳达峰碳中和有关行动方案。围绕国民经济和社会发展五年规划纲要有关部署，研究制定碳达峰碳中和有关行动方案，细化碳排放目标控制的工作举措、重点任务和保障措施。“十五五”时期，细化落实2030年前碳达峰行动方案部署，确保2030年前实现碳达峰。2. Deve1.opingthere1.evantactionp1.ansforachievingcarbondioxidepeakingandcarbonneutra1.ity.Byfocusingon
23、there1.evantdep1.oymentsoftheFive-YearP1.anfornationa1.economicandsocia1.deve1.opment,theactionp1.anforachievingcarbondioxidepeakingandcarbonneutra1.itysha1.1.bestudiedanddeve1.oped,andtheworkmeasures,keytasksandguaranteemeasuresforcontro1.ofcarbonemissiontargetssha1.1.bespecified.Duringthe15thFive-
24、YearP1.anperiod,thedep1.oymentoftheActionP1.anforAchievingCarbonDioxidePeakingBefore2030wi1.1.beimp1.ementedinadetai1.edmannertoensurethatcarbondioxidepeakingisachievedbefore2030.（三）完善碳排放双控相关法规制度。全面清理现行法规政策中与碳排放双控要求不相适应的内容。加快修订固定资产投资项目节能审查办法、重点用能单位节能管理办法等制度，纳入碳排放双控有关要求。3. Improving1.awsandregu1.atio
25、nsondua1.contro1.ofcarbonemissions.Acomprehensivereviewofthecontentsintheexistingregu1.ationsandpo1.iciesthatdonotsatisfytherequirementsofdua1.contro1.ofcarbonemissionssha1.1.beconducted.Therevisionofenergyconservationreviewmeasuresforfixedassetinvestmentprojectsandenergyconservationmanagementmeasur
26、esforkeyenergyconsumptionentitiessha1.1.beacce1.erated,andthere1.evantrequirementsfordua1.contro1.ofcarbonemissionssha1.1.beinc1.uded.三、建立地方碳排放目标评价考核制度（四）合理分解碳排放双控指标。五年规划初期，粽合考虑经济社会发展水平、区域和功能定位、产业和能源结构等因素，将碳排放双控指标合理分解至各省份。各省份可进一步细化分解碳排放双控指HI.Estab1.ishinga1.oca1.carbonemissiontargeteva1.uationsystem
27、4. Reasonab1.edecompositionofdua1.contro1.indicatorsofcarbonemission.Attheear1.ystageofthefive-yearp1.an,factorssuchasthe1.eve1.ofeconomicandsocia1.deve1.opment,regiona1.andfunctiona1.positioning,industryandenergystructurearetakenintoaccount,andthedua1.contro1.indicatorsofcarbonemissionarereasonab1.
28、ydecomposedtoeachprovince.A1.1.provincesmayfurtherspecifythedecompositionofdua1.contro1.indicatorsofcarbonemission,andeffective1.yassigntheresponsibi1.itiesofprefecturesandmunicipa1.itiesandmajorenterprisesforemissioncontro1.andreduction.5. Estab1.ishingacomprehensiveeva1.uationsystemforachievingcar
29、bondioxidepeakingandcarbonneutra1.ity.Thecomprehensiveeva1.uationandassessmentmeasuresforachievingcarbondioxidepeakingandcarbonneutra1.itysha1.1.bedeve1.opedandissued,theeva1.uationandassessmentproceduresandresu1.tsuti1.izationmethodssha1.1.bespecified,andeva1.uationandassessmentsha1.1.becarriedouti
30、na1.1.provinces.Anovera1.1.eva1.uationandassessmentindexsystemsha1.1.beestab1.ishedinanovera1.1.manner,byfocusingontota1.carbonemissionsandintensityindicators,andindicatorssuchasenergystructure,energyconsumptionintensity,resourceuti1.izationefficiency,ecosystemcarbonsink,andgreentransformationinkeyf
31、ie1.dssha1.1.beinc1.uded.标，压实地市及重点企业控排减排责任。（五）建立碳达峰碳中和琮合评价考核制度。制定出台碳达峰碳中和综合评价考核办法，明确评价考核工作程序及结果运用方式，对各省份开展评价考核。统筹建立评价考核指标体系，以碳排放总量和强度指标为重点，纳入能源结构、能耗强度、资源利用效率、生态系统碳汇、重点领域绿色转型等指标。（六）推动省市两级建立碳排放预算管理制度。推动各地区结合实际开展碳排放核算，指导省市两级建立碳排放预算管理制度，按年度开展碳排放情况分析和目标预测，并加强与全国碳排放权交易市场的工作协同。2025年底前，指导各地区开展碳排放预算试编制工作。“十五
32、五”时期，指导各地区根据碳排放强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6. Promotingtheestab1.ishmentofacarbonemissionbudgetmanagementsystemattheprovincia1.andmunicipa1.1.eve1.s.A1.1.regionssha1.1.beurgedtocarryoutcarbonemissionaccountingin1.ightofactua1.circumstances,theprovincia1.andmunicipa1.1.eve1.ssha1
33、.1.beguidedtoestab1.ishacarbonemissionbudgetmanagementsystem,annua1.carbonemissionana1.ysisandtargetforecastingsha1.1.becarriedoutonanannua1.basis,andcooperationwiththenationa1.carbonemissiontradingmarketsha1.1.bestrengthened.Bytheendof2025,pi1.ationofcarbonemissionbudgets.Duringthe15thFive-YearP1.a
34、nperiod,a1.1.regionswi1.1.beguidedtopreparecarbonemissionbudgetsanddynamica1.1.yadjustthemaccordingtocarbonemissionintensityreductiontargets.Duringthe16thFive-YearP1.anPeriodandthereafter,theestab1.ishmentofarigidconstraintmechanismfortota1.carbonemissioncontro1.ina1.1.regionswi1.1.bepromoted,andthe
35、who1.e-processmanagementoffive-yearp1.anningperiodandannua1.carbonemissionbudgetwi1.1.beimp1.emented.制，实行五年规划期和年度碳排放预算全流程管理。IV.Exp1.oringcarbonemissionear1.ywarningandcontro1.mechanismsinkeyindustriesandfie1.ds四、探索重点行业领域碳排放预警管控机制7. Improvingthecarbonemissionaccountingmechanismsinkeyindustriesandfie1
36、.ds.Thero1.eofcompetentindustrydepartmentsandindustryassociationssha1.1.bemaximized.Byfocusingonpower,stee1.,nonferrousmeta1.s,bui1.dingmateria1.s,petrochemica1.s,chemica1.sandotherindustries,urbanandrura1.construction,transportationandotherfie1.ds,thescopeofcarbonemissionaccountingforindustriesandf
37、ie1.dssha1.1.bereasonab1.yde1.ineated,andbyre1.yingonenergyandindustria1.statistics,energyactivitiesandcarbonemissionaccountingduringtheindustria1.productionprocess,nationa1.carbonemissionrightstradingmarketandotherdata,carbonemissionaccountinginkeyindustriessha1.1.becarriedout.（七）完善重点行业领域碳排放核算机制。发挥
38、行业主管部门及行业协会作用，以电力、钢铁、有色、建材、石化、化工等工业行业和城乡建设、交通运输等领域为重点，合理划定行业领域碳排放核算范围，依托能源和工业统计、能源活动和工业生产过程碳排放核算、全国碳排放权交易市场等数据，开展重点行业碳排放核算。（八）建立行业领域碳排放监测预警机制。摸清重点行业领域碳排放底数与减排潜力，常态化开展碳排放形势分析监测，对碳排放漕长较快的行业领域进行形势预警，并视情采取新上项目从严把关、全国碳排放权交易市场从严管控、重点用能和碳排放单位从严管理等措施。条件成熟时，将重点行业领域碳排放管控要求纳入碳达峰碳中和综合评价考核8. Estab1.ishingacarbon
39、emissionmonitoringandear1.ywarningmechanismforindustriesandfie1.ds.Thecarbonemissionbaseandemissionreductionpotentia1.ityinkeyindustriesandfie1.dssha1.1.befoundout,ana1.ysisonandmonitoringofcarbonemissionsituationsha1.1.becarriedoutinanorma1.izedmanner,ear1.ywarningofthesituationinindustriesandfie1.
40、dsinwhichcarbonemissionsgrowrapid1.ysha1.1.beconducted,andmeasuressuchasstrictcontro1.ofnewprojects,strictcontro1.ofthenationa1.carbonemissionrightstradingmarket,andstrictmanagementofkeyenergyconsumptionandcarbonemissionentitiessha1.1.beadoptedin1.ightofthecircumstances.Whentheconditionsaremet,theca
41、rbonemissioncontro1.requirementsinkeyindustriesandfie1.dssha1.1.beinc1.udedinthecomprehensiveeva1.uationandassessmentindexsystemforachievingcarbondioxidepeakingandcarbonneutra1.ity.V.Improvingtheenergyconservationandcarbonreductionmanagementsystemofenterprises9. Improvingthemanagementsystemforkeyene
42、rgyconsumptionandcarbonemissionentities.Thecarbonemissionaccountingru1.esandstandardsforenterprisesinkeyindustriessuchaspower,stee1.,nonferrousmeta1.s,bui1.dingmateria1.s,petrochemica1.sandchemica1.ssha1.1.bedeve1.opedandrevised.Themeasuresfortheadministrationofenergyconservationandcarbonreductionin
43、keyenergyconsumptionandcarbonemissionentitiessha1.1.bedeve1.opedandissued,thecarbonemissioncontro1.requirementssha1.1.beincorporatedintothecurrentmanagementsystemforkeyenergyconsumptionentities,keyenergyconsumptionandcarbonemissionentitiessha1.1.beurgedtoimp1.ementtherequirementsformanagementofenerg
44、yconservationandcarbonreduction,andtheinsta1.1.ation,verificationandca1.ibrationofenergyandcarbonemissionmeasuringinstrumentssha1.1.bestrengthened.指标体系。五、完善企业节能降碳管理制度(九)健全重点用能和碳排放单位管理制度。制修订电力、钢铁、有色、建材、石化、化工等重点行业企业碳排放核算规则标准。制定出台重点用能和碳排放单位节能降碳管理办法，将碳排放管控要求纳入现行重点用能单位管理制度，推动重点用能和球排放单位落实节能降碳管理要求，加强能源和碳排放
45、计量器具配备和检定校准。(+)发挥市场机制调控作用。完善全国碳排放权交易市场调控机制，逐步扩大行业覆盖范围，探索配额有偿分配机制，提升报告与核查水平，推动履约企业减少碳排放。健全全国温室气体自愿减排交易市场，逐步扩大支持领域，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。10. Maximizingtheregu1.atoryro1.eofthemarketmechanismTheregu1.ationmechanisminthenationa1.carbonemissionrightstradingmarketsha1.1.beimproved,thecoverageofin
46、dustriessha1.1.begradua1.1.yexpanded,themechanismsforcompensateda1.1.ocationofquotassha1.1.beexp1.ored,thereportingandverification1.eve1.sha1.1.beimproved,andcomp1.iantenterprisessha1.1.beurgedtoreducecarbonemissions.Thenationa1.vo1.untarygreenhousegasemissionreductiontradingmarketsha1.1.beimproved,
47、thefie1.dsofsupportsha1.1.begradua1.1.yexpanded,andemissionreductioninagreaterscopesha1.1.bepromoted.Theimprovementofthegreencertificatetradingmarketsha1.1.beacce1.eratedandgreenpowerconsumptionsha1.1.bepromoted.VI.Carryingoutcarbonemissioneva1.uationoffixedassetinvestmentprojects11. Improvingtherev
48、iewsystemforenergyconservationinfixedassetinvestmentprojects.There1.evantrequirementsforcarbonemissioneva1.uationsha1.1.beincorporatedintotheenergyconservationreviewoffixedassetinvestmentprojects,andthecircumstancesofenergyconsumptionandcarbonemissionsofprojectssha1.1.becomprehensive1.yeva1.uated,andthere1.evantreviewandeva1.uationopinionssha1.1.beusedasanimportantbasisforthecommencementofconstruction,comp1.etionacceptanceandoperationmanagementoffixedassetinvestmentprojects.12. Improvingtheenvironmenta1.impacteva1.uationsystemforconstructionprojects.Thecontro1.ofgreenhousegasemiss
