Guiding Opinions of the National Development and Reform Commission, the Ministry of Finance, the Ministry of Housing and Urban-Rural Development and the National Energy Administration on Developing NG Distributed Energy

国家发展改革委、财政部、住房城乡建设部、国家能源局关于发展天然气分布式能源的指导意见

Promulgating Institution: National Development and Reform Commission; Ministry of Finance; Ministry of Housing and Urban-Rural Development;National Energy Bureau

Document Number: Fa Gai Neng Yuan [2011] No.2196

Promulgating Date: 10/09/2011

Effective Date: 10/09/2011

颁布机关: 国家发展和改革委员会; 财政部; 住房和城乡建设部; 国家能源局

文      号: 发改能源[2011]2196号

颁布时间: 10/09/2011

实施时间: 10/09/2011

To development and reform commissions, energy bureaus, financial departments (bureaus), departments (bureaus) of housing and urban-rural development of all provinces, autonomous regions, municipalities directly under the Central Government, specially designated cities in the state plan, sub-provincial capital cities and Xinjiang Production and Construction Corps, relevant departments and institutions directly under the State Council, as well as relevant central enterprises:

With a view to increasing the efficiency in energy utilization, promoting structural adjustments, energy conservation and emission reduction and propelling the orderly development of NG distributed energy, we hereby offer guiding opinions as follows:

    各省、自治区、直辖市及计划单列市、副省级省会城市,新疆生产建设兵团发展改革委、能源局、财政厅(局)、住房城乡建设厅(局),国务院有关部门、直属机构,有关中央企业:

    为提高能源利用效率,促进结构调整和节能减排,推动天然气分布式能源有序发展,现提出如下指导意见:

1. Importance in the development of NG distributed energy

Natural gas distributed energy is a modern NG-fueled energy supply method and a major method of high-efficiency utilization of NG that accomplishes cascade use of energy through combined cooling, heating and power (CCHP), and accomplishes energy supply in nearby load centers, with a comprehensive energy utilization rate of more than 70%. Compared with the traditional method of centralized energy supply, NG distributed energy has advantages such as high energy efficiency, cleanness and environmental friendliness, high safety, peak load shifting, and good economic benefit.

Natural gas distributed energy develops rapidly in the world, but China's NG distributed energy is still at its initial stage. Promoting NG distributed energy is of great realistic and strategic importance. The effects of energy conservation and emission reduction of NG distributed energy are prominent, which can optimize NG utilization, play the dual role of power grids and NG pipe networks in peak load shifting, and increase the safety of energy supply. Currently, China's NG supply has been increasing day by day, smart grids construction has been stepping up, professional service companies have been still growing, and conditions for massive development of NG distributed energy have been ripe.

       一、发展天然气分布式能源的重要意义

    天然气分布式能源是指利用天然气为燃料,通过冷热电三联供等方式实现能源的梯级利用,综合能源利用效率在70%以上,并在负荷中心就近实现能源供应的现代能源供应方式,是天然气高效利用的重要方式。与传统集中式供能方式相比,天然气分布式能源具有能效高、清洁环保、安全性好、削峰填谷、经济效益好等优点。

    天然气分布式能源在国际上发展迅速,但我国天然气分布式能源尚处于起步阶段。推动天然气分布式能源,具有重要的现实意义和战略意义。天然气分布式能源节能减排效果明显,可以优化天然气利用,并能发挥对电网和天然气管网的双重削峰填谷作用,增加能源供应安全性。目前,我国天然气供应日趋增加,智能电网建设步伐加快,专业化服务公司方兴未艾,天然气分布式能源在我国已具备大规模发展的条件。

2. Guidelines and objectives

(1) Guidelines.

We shall give top priority to increasing the comprehensive utilization ratio of energy, take the task of energy conservation and emission reduction as the basis, and focus on constructing regional distributed energy systems and building distributed energy systems in energy load centers, including urban industrial parks, centralized tourist service zones, ecological parks and large business facilities, and conduct comprehensive utilization of energy based on solar energy, wind energy, ground source heat and other renewable energy resources in areas where conditions are met.

(2) Fundamental principles.

1. Overall planning and scientific development: we shall plan NG resources, energy demands, environmental protection and economic benefits as a whole, and scientifically formulate development plans to ensure the healthy and orderly development of NG distributed energy.

2. Standardized development based on local conditions: we shall rationally choose construction scale, optimize system configuration, realize the annual comprehensive utilization ratio higher than 70% for NG distributed energy, and supply power through nearby low-voltage distribution networks. We shall take the advantage of NG distributed energy, and implement peak load shifting giving equal consideration to NG and power demands.

3. Pilot program and progressive popularization: we shall encourage use of CCHP technology and establish demonstration projects in economically developed areas which require energy quality (including ecological economic zones established under the state planning) or areas which are rich in NG resources, to accumulate experiences and lay foundations for massive popularization.

4. System innovation and technological support: we shall renovate in the policy environment and mechanism for NG distributed energy and encourage the participation by multiple subjects; and shall strengthen technical R&D, promote enterprise-university-research institute cooperation, and propel technical progress and upgrading in equipment capacity.

(3) Major tasks and objectives.

Major tasks: we shall launch an array of NG distributed energy demonstration projects at the initial stage of the "twelfth five-year plan" period, construct about 1,000 NG distributed energy projects during the period of the "twelfth five-year" plan, and propose to construct some 10 various typical distributed energy demonstration areas; shall make substantial breakthrough in core capacity of distributed energy equipment and in product development and applications; and shall preliminarily form a distributed energy equipment industry system with proprietary intellectual property right.

Objectives: we shall complete the development of major NG distributed energy equipment before 2015; through demonstration project applications, when the installed capacity reaches 5 million kilowatts, we shall accomplish distributed energy system integration and achieve a proprietary equipment rate of 60%; when the installed capacity reaches 10 million kilowatts, we shall basically accomplish the proprietary manufacture of core equipment such as small and medium-size and mini gas turbines and achieve a proprietary equipment rate of 90%. By 2020, we shall popularize distributed energy systems in above-scale cities in the country, achieve an installed capacity of 50 million kilowatts and preliminarily accomplish the industrialization of distributed energy equipment.

       二、指导思想和目标

    (一)指导思想。

    以提高能源综合利用效率为首要目标,以实现节能减排任务为工作抓手,重点在能源负荷中心建设区域分布式能源系统和楼宇分布式能源系统。包括城市工业园区、旅游集中服务区、生态园区、大型商业设施等,在条件具备的地方结合太阳能、风能、地源热泵等可再生能源进行综合利用。

    (二)基本原则。

    一是统筹兼顾,科学发展:统筹天然气资源、能源需求、环境保护和经济效益,科学制订发展规划,确保天然气分布式能源健康、有序发展。

    二是因地制宜,规范发展:合理选择建设规模,优化系统配置,原则上天然气分布式能源全年综合利用效率应高于70%,在低压配电网就近供应电力。发挥天然气分布式能源的优势,兼顾天然气和电力需求削峰填谷。

    三是先行试点,逐步推广:在经济发达、能源品质要求高的地区(包括国家规划设立的生态经济区等)或天然气资源地鼓励采用热电冷联产技术,建立示范工程,通过示范工程积累经验,为大规模推广奠定基础。

    四是体制创新,科技支撑:创新天然气分布式能源政策环境和机制,鼓励多种主体参与;加强技术研发,推动产学研结合,推动技术进步和装备制备能力升级。

    (三)主要任务和目标。

    主要任务:“十二五”初期启动一批天然气分布式能源示范项目,“十二五”期间建设1000个左右天然气分布式能源项目,并拟建设10个左右各类典型特征的分布式能源示范区域。未来5-10年内在分布式能源装备核心能力和产品研制应用方面取得实质性突破。初步形成具有自主知识产权的分布式能源装备产业体系。

    目标:2015年前完成天然气分布式能源主要装备研制。通过示范工程应用,当装机规模达到500万千瓦,解决分布式能源系统集成,装备自主化率达到60%;当装机规模达到1000万千瓦,基本解决中小型、微型燃气轮机等核心装备自主制造,装备自主化率达到90%。到2020年,在全国规模以上城市推广使用分布式能源系统,装机规模达到5000万千瓦,初步实现分布式能源装备产业化。

3. Major policy measures

(1) Strengthening planning guidance.

The National Development Commission and the National Energy Administration shall, in accordance with the overall energy plan and relevant special plans, in conjunction with the Ministry of Housing and Urban-Rural Development and other relevant departments, formulate the special plan for NG distributed energy. The development and reform commissions and competent energy departments of all provinces, autonomous regions, municipalities and key cities shall, in conjunction with the competent departments of housing and urban-rural development, formulate local special plans for NG distributed energy, and determine a rational supply structure and conduct the overall planning of project construction in coordination with urban gas and heating supply development plans.

(2) Improving financial and taxation support policies.

The central financial department shall offer appropriate support for the development of NG distributed energy. All provinces, autonomous regions, municipalities and key cities shall, in light of local actualities, study out specific support policies, and grant some investment incentives or interest discounts to NG distributed energy projects. NG distributed energy projects that have been qualified through EMC and met the requirements of the Notice of the Ministry of Finance and State Administration of Taxation Regarding Issues on Value-Added Tax, Business Tax and Enterprise Income Tax Policies for Promoting the Development of Energy Saving Service Industry(Cai Shui [2010] No. 110) may enjoy relevant preferential tax policies. Price discounts shall be offered if the characteristics of peak load shifting of NG distributed energy can be reflected in determining the gas prices of distributed energy.

(3) Perfecting the grid connection and grid operation management system.

All areas and power grid enterprises shall strengthen distribution network construction, and power grid companies shall incorporate NG distributed energy into regional grid plans to solve the problem of grid connection and grid operation of NG distributed energy. The National Development Commission and the National Energy Administration shall, in conjunction with relevant departments, power grid enterprises and entities, study and formulate technical standards and codes for grid access, grid-connected operation and design of NG distributed energy; competent price departments shall, in conjunction with relevant departments, study system matters such as formation mechanism and operation mechanism of on-grid price of NG distributed energy.

(4) Fully play the leading role of demonstration projects and persisting in independent innovation.

The National Energy Administration shall, in conjunction with the Ministry of Housing and Urban-Rural Development, push forward and give guidance on the implementation of NG distributed energy demonstration projects; shall intensify the state support for demonstration projects, promote the proprietary of NG distributed energy equipment based on demonstration projects, intensify the proprietary assessment of demonstration project, and guide and promote the industrialization of distributed energy equipment; further promote development and innovation in integration of production, study, research and application, establish effective research and development mechanisms, strengthen core technology research and validation, promote achievement transformation, increase investment in basic research and application research on distributed energy, pay close attention to world cutting-edge technologies, enhance exchanges and cooperation, and improve the capacity for technical innovation.

(5) Encouraging the development of professional companies and strengthening technological innovation and talent training.

We shall encourage and guide technical consultation and engineering design entities to make technological innovation to increase the level of system integration; shall encourage professional companies to engage in development, construction, operation and management of NG distributed energy, explore business modes suitable for the development of NG distributed energy, and strengthen professional training and international exchanges.

National Development and Reform Commission

Ministry of Finance

Ministry of Housing and Urban-Rural Development

National Energy Administration

October 9, 2011

       三、主要政策措施

    （一）加强规划指导。

    国家发展改革委、能源局根据能源总体规划及相关专项规划，会同住房城乡建设部等有关部门研究制定天然气分布式能源专项规划。各省、区、市和重点城市发改委和能源主管部门会同住房城乡建设主管部门同时制定本地区天然气分布式能源专项规划，并与城镇燃气、供热发展规划统筹协调，确定合理供应结构，统筹安排项目建设。

    （二）健全财税扶持政策。

    中央财政将对天然气分布式能源发展给予适当支持，各省、区、市和重点城市可结合当地实际情况研究出台具体支持政策，给予天然气分布式能源项目一定的投资奖励或贴息。通过合同能源管理实施且符合《关于促进节能服务产业发展增值税、营业税和企业所得税政策问题的通知》（财税[2010]110号）要求的天然气分布式能源项目，可享受相关税收优惠政策。在确定分布式能源气价时要体现天然气分布式能源削峰填谷的特点，给予价格折让。

    （三）完善并网及上网运行管理体系。

    各地和电网企业应加强配电网建设，电网公司将天然气分布式能源纳入区域电网规划范畴，解决天然气分布式能源并网和上网问题。国家发改委、能源局会同有关部门、电网企业及单位研究制定天然气分布式能源电网接入、并网运行、设计等技术标准和规范;价格主管部门会同相关部门研究天然气分布式能源上网电价形成机制及运行机制等体制问题。

    （四）充分发挥示范项目带动作用，坚持自主创新。

    国家能源局要会同住房城乡建设部推进和指导天然气分布式能源示范项目的实施。加大国家对示范项目的支持力度，依托示范项目推动天然气分布式能源装备自主化，加大示范项目自主化考核，引导推动分布式能源装备产业化。进一步推动产、学、研、用相结合发展创新，建立有效的研制和发展机制，加强核心技术研究与验证，促进成果转化，加大分布式能源基础研究和应用研究投入，紧密跟踪世界前沿技术发展，加强交流合作，提升技术创新能力。

    （五）鼓励专业化公司发展，加强科技创新和人才培养。

    鼓励和引导技术咨询和工程设计单位进行技术创新，提高系统集成水平。鼓励专业化公司从事天然气分布式能源的开发、建设、经营和管理，探索适合天然气分布式能源发展的商业运作模式。加强专业化人员培训和国际交流。

    国家发展改革委

    财政部

    住房城乡建设部

    国家能源局

    二○一一年十月九日