中国供热体制改革与政策研究.pdf

!“ “ “ “ “ “ “ “ “ “ 中国供热体制改革与政策研究! A Study on Institutional Reform and Suggestions of Urban Thermal Supply System “ “ “ “ “ “ “ “ “ “ “ “ “ 国务院发展研究中心社会发展研究部“ Department of Social Development Research of DRC, The State Council “ “ #$!% 年 !# 月“ “ “ “#“ “ ! 项目信息!合同编号：G-1507-23460 Grand Number G-1507-23460 项目时间：2015 年 6 月-2016 年 8 月 Grant period: June ，2015Aug, 2016 所属领域：建筑节能 Sector: Building Energy Saving “ 项目概述： 本项研究通过对中国供热相关方面研究成果的回顾， 梳理中国供热改革进展与 存在问题，提出中国供热体制改革和政策建议。“ Project Description: well sum up international measures about comprehensive utilization of low temperature heat for thermal supply, discuss currently situation, problems or weakness and reform of thermal supply system, and put forward recommendations and suggestions on thermal supply system reform and policy to satisfy the thermal supply management in the project. “ 项目成员“ 周宏春“ 张亮“ 佘宇“ 夏建军“ 曹鹏程“ 贾博宇“ 李明艳“ 尹航“ Project team ：Zhou Hongchun, Zhang Liang, She Yu, Pengcheng Cao, Boyu Jia, Mingyan Li, Hang Yin “ 关键词：供热、环境污染、供热计量改革、机制改革、政策建议 Key Words: Thermal supply, environmental pollution, Thermal supply system reform, institutional reform, recommendations and suggestion “ “ “ “ “ 本报告由能源基金会资助。 报告内容不代表能源基金会观点。 This report is funded by Energy Foundation. It does not represent the views of Energy Foundation. “ “ “ and the other is improvement needs of quality of life as air conditioning in the summer in southern China, and in winter cross climate transition zone. From the management point of view, the heating involved in those authorities in the central, provincial, municipal and county government, and heating enterprises, so that is local or urban affairs. The authorities of the central, provincial and municipal governments shall carry out macro-management, and the county and/or district governmental sectors shall directly manage the thermal supply. From the heating mode, Chinas cities and towns experienced three stages: a small coal-fired heating, central heating, electric heating, plumbing, and water pump heating coexist. Second, the green low-carbon heating is the trend The trend of the thermal supply development can describe as follows: Safety. It is basic requirements for the government and enterprises to provide the quasi-public goods to ensure the safety of heating; and the heating pipe rupture and poisoning of the residents by toxic gas such as CO should be avoided. Comfortable. Central heating has obvious advantages in solving the survival demand, but not for the improving demand of the quality of life, which is difficult to meet the needs of the residents comfortable, personalized needs. Green. It is should emphasis to reduce the use of coal, especially coal used in individuals, so as to reduce emissions and/or pollutants of heating, and to increase the number of “clear sky“. Low carbonization. The focus is to improve the energy efficiency of heating, increase the use of low-carbon energy, and promote the utilization of renewable energy, such as biomass, solar and wind. Intelligent. It covers thermal sources, process optimization and energy efficiency and *“ “ emission management. According to the user status information, indoor and outdoor temperature and climate factors such as automatic completion of indoor temperature control, energy-saving, emission reduction to promote the heating industry. Third, the heat metering reform should be addressed Many years has gone since heating metering reform in China. But, Government departments and heating enterprises have different understanding for that reform of heating meter, the results of energy efficiency, pricing of heating. The central authorities focus on promoting the new building metering and charging by the meter, and coordination between energy-saving transformation, old building improvement and use of renewables; but deviation accused in the implementation of the policy of reform, resulting in financial loss seriously for heating enterprises, which not willing to participate in the reform initiative. It should be said, heat metering reform is the refinement of management requirements, but also the direction of reform. Promote the heating metering reform, need to do the following work. Improve the measurement fee. For residential housing, can be taken sub-measurement, household allocation, according to the users housing area of the assessed method (two heating prices). Appropriate subsidies should give to poor, old building house with high-energy consumption, and as a priority energy-saving improvement project. For the subsistence allowances, the subsidy for the reduction or exemption of heat supply for the poor families and/or households shall be included in the social credit records for the users who refuse to pay the fees and raise the collection rate of heating costs. Formulate long-term reform plan and annual plan. Through tax incentives, financial and loan interest subsidies and other incentives to guide the heating enterprises involved in the implementation of heating system transformation and metering fees. Reward and punishment. Sum up good examples and give rewards, set up credit “blacklist“ and to the public for whose install the meter unqualified, criticism those not meet the requirements or delay the reform of urban and heating providers. Fourth, haze pollution related coal-heating during the heating period Haze pollution during the heating period is obviously heavier than the non-heating period through comparison of the monitoring data. Topography, meteorological conditions and the pollutants emissions, constitute the three factors of haze pollution. Basin-like topography, inverse temperature or inversion layer, will occur multiple haze weather. Governance haze is essentially to reduce pollutants discharge. Countermeasures of heating pollution control as follows: Clean coal for heating sources. Promote the use of clean coal. Control the use of low-calorific value for heating, high sulfur, high-ash low-quality coal. Accelerate the transformation of coal-fired boilers, stoves, to reduce the use of scattered coal-fired small boilers, as central heating as possible as much. Energy contract management and PPP model, vigorously develop the cogeneration and heating projects, utilization of geothermal resources, recycling low-grade heat, +“ “ waste incineration, landfill gas and other heat source. Encourage the mode of “coal to electricity“ or “solar + electricity“ and other forms, and promote diversification of heating sources. Interconnection of heating pipe network. Strengthen the interconnection of small heating pipe network and urban central heating pipe network, and promote the extension of the heating pipe network to the community users. Set up with the backwater temperature linked to the heat pricing settlement, heating companies to encourage the implementation of heating metering and benefit from. Promote the merger and reorganization of heating units to enhance the industry concentration. Enhance the environmental access threshold, strengthen the integration of small and medium heating units, and effectively reduce the emission intensity. Fifth, promote the heating system reform and recommendations Five recommendations are been put to speed up the institutional reform: Integrate green development concept into heating system reform. Ensure intelligence for heating industrial chain management. Meet the demands of residents for green heating; improve the heating industry to make full use of big data, cloud computing, mobile Internet and other information technology. Formulate heating laws and regulations. Establish and improve the relevant laws and regulations of heating, green heating into the safety regulatory system. In accordance with the “Law of Energy Saving“ to amend the existing designs standards. Improve the heating metering requirements, making the heating metering in the design of the formation of CLA. Innovation of green heating technology. Formulate and improve the green heating industry standards, according to national design, production, quality and other related areas of standards and requirements, develop enterprise standards to ensure product safety, design and reasonable. Improve the development of green heating related to support policies. Give subsidies to green heating of electricity. Increase the government green heating services to buy, support for green heating SME development. The establishment of green heating knowledge and information sharing platform, improve the green heating industry certification and accreditation services. Strengthen the supervision of new buildings and heating energy consumption and efficiency. It is accelerated that establishment of a quantitative management of heating and energy-saving, monitoring and evaluation methods, and into the assessment of the local government to promote heating industry development with energy-saving and low emissions. “ “!$“ “ “ 目! 录! 一、研究范畴与基础“,“!#“ ! 城市供热工程属性“,“!#“ # 本项目的研究基础“,“!“ & 我国的供热方式及其沿革“,“!“ 开展供热行业体制机制改革和政策研究的必要性“,“!%“ 二、国内外采暖方式及其比较“,“!+“ ! 主要供暖国家的供暖目标与成本“,“!+“ # 我国的采暖方式及其对比“,“#!“ & 信息化助推供热行业的智能化发展“,“#(“ 建立完善的适合国情的绿色供暖供应链“,“#%“ 三、供热及其环境影响评价“,“&$“ ! 雾霾及其污染源分析“,“&$“ # 雾霾治理成效及其讨论“,“&#“ & 以最小投入解决供暖期雾霾污染问题“,“&“ 四、供热计量改革及其对策“,“&*“ ! 我国供热计量改革进展与存在问题“,“&*“ # 欧盟国家的供热计量框架“,“&“ & 供热计量改革方向与原则“,“%“ 热计量改革的重点与保障措施“,“*“ 五、推进我国供热体制改革的对策建议“,“(“ ! 我国供热产业发展及其评价“,“(“ # 我国供热行业发展面临的机遇和挑战“,“(*“ & 供热行业可持续发展的总体考虑“,“%$“ 供热行业管理法规和制度框架“,“%#“ ( 供热管理框架及其部门分工“,“%&“!“ “ % 推进供热体制改革的政策建议“,“%“ 附件、 中国供热管理条例基本框架“,“%+“ 第一章“ 总则“,“%+“ 第二章“ 规划与建设“,“)$“ （一）供热规划的强制性及审批权限和程序“,“)$“ （二）供热设施建设“,“)$“ （三）供热设施管理权限“,“)!“ 第三章“ 节能和计量管理“,“)!“ 第四章“ 供热与用热管理“,“)#“ 第五章“ 收费与补贴管理“,“)%“ 第六章“ 供热设施安全与应急事件处置“,“)“ 第七章“ 罚则“,“*$“ 附则“,“*!“ 主要参考文献“,“*#“ “ “ !