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The Strategic Planning For LowCarbon Development During
China’s Twelfth Five-Year Plan
National Development and Reform Commission
Strategic Planning Division of Department for
Addressing Climate Change
Tian Chengchuan
2013.03.18
Content
•The current situation for low-carbon
development in China
•The performance for China’s low-carbon
development and ”Main objectives in the
Twelfth Five-Year Plan”
•Major tasks and policy orientation for
China’s low-carbon development in the
Twelfth Five-Year Plan
The current situation for low-carbon
development in China
The current situation for low-carbon
development in China
Due to the issue of climate change, now people begin to
attach importance to low-carbon development
Since the industry revolution, fossil fuels were used greatly by human
beings, which discharged a large number of greenhouse gases including
carbon dioxide and methane etc, thus leading to a remarkable change in
global climate characterized by climate warming.
The current situation for low-carbon
development in China
 The assessment report of Intergovernmental Panel on
Climate Change (IPCC): global average surface temperature
rise for nearly a century is 0.74°C, the temperature rise for
next century may reach 1.1-6.4°C;
 The global climate change is resulting in the frequent
occurrence of extreme climatic calamity, acceleration for
melting glaciers and snow cover, rise of sea level,
distribution unbalance of water resources, and decline in
biodiversity.
The situation for low-carbon development at
home and abroad
•The photo from NASA shows the area of sea ice in the Arctic Ocean on August
26,2012 (bright white part). The lowest record before that is 4.17 million square
kilometers on Sep.18, 2007.The scope of yellow line in picture refers to the
average lowest value from 1979 to 2010.
Situation for low-carbon development in China
It is an indisputable fact that the climate is
becoming warmer.
• The average temperature range on earth’s surface during 1850～2005
（relative to the average values during 1961～1990）
•（Source:IPCC AR4，2007）
The current situation for low-carbon development in
China
In order to address the global climate change and find an efficient
way to deal with the climate change, all participating countries, under
the leadership of UN, had reached a series of achievements such as
United Nations Framework Convention on Climate Change and Kyoto
Protocol, Bali Roadmap, Copenhagen protocol, The Cancun
agreements, Durban package results, and Doha climate passes etc
successively through more than 20 years of hard negotiation.
The situation for low-carbon development at
home and abroad
The domestic situation
With its poorer resource endowment of energy, fragile ecological
environment, complicated climate conditions, our country is one of
the countries which are the most susceptible to climate change.
The extensive development way in China causes the approach to
bottleneck constraint of energy & resource, environmental pollution
and serious ecological destruction.
The low-carbon development is also the intrinsic need and the
strategic choice which complying with international development
trend and fulfilling international obligations.
The situation for low-carbon development at
home and abroad
The domestic situation
Per capita occupancy rate for oil, natural gas, coal is about 7%、
7%、67% of world average level respectively.
The energy consumption for unit GDP in China is higher, which
resulting in the shortage of energy supply in China and part demands
of energy needing to be imported from other countries.
At present, our country is at a significant historical stage for
industrialization, urbanization and agricultural modernization, the
rigid demand of energy will still increase.
Actively addressing climate change, promoting green low-carbon
development is a realistic way to crack the bottleneck constraint of
energy & resource and enhance the security level of energy.
1800
1600
1400
1200
1000
800
600
400
200
0
Year
Total
energy
consumpt
ion
（10000
tons
standard
coal ）
2000
138553
2001
143199
2002
151797
2003
174990
2004
203227
2005
224682
2006
246270
2007
265583
2008
291448
2009
310000
6.0
单 位 GDP能 耗 （ tce/ 万 元 ）
GDP和 能 源 消 费 （ 1978 ＝ 100 ）
GDP and Total Energy consumption
1975
5.0
4.0
3.0
2.0
1.0
1980
Total energy
consumption
能源消费总量
1985
1990
1995
2000
GDP(2005年价)
2005
0.0
2010
Unit GDP
energy
consumption
单位GDP能耗
The situation for low-carbon development at home
and abroad
International situation
On one hand, the international gaming around energy resource,
climate change etc. is becoming increasingly fierce.
Due to the larger total emissions of green gas, faster increasing speed
(at present, the total emissions of China ranks first in the world), per
capita emission also exceeds world average level, all of these make
China has increasingly become the focus in international negotiations
for climate change. The pressure requiring our country to undertake
more obligations for reducing emission increases constantly.
The situation for low-carbon development at home
and abroad
International situation
On the other hand, green and low-carbon development is becoming the
new area for international science and technology and economic
competition and also becoming the strategic choice of all countries for
economic and social development.
Since entering into the new century, a new wave of technological
revolution characterized by green and low-carbon is just unfolding , the
developed and developing countries are taking active measures to
speed up development of green economy with core of new energy, new
material and energy-saving and environmentally friendly industries.
China is facing a new challenge in international competition.
The performance for China’s low-carbon
development and ”Main objectives in the
Twelfth Five-Year Plan”
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”
China has gained the obvious effect in addressing
the climate change by the joint efforts of
government and various sections of society.
 Service industry added value in 2012 accounts for 44% of
GDP, up 4.7% comparing with that in 2005.
 In the Eleventh Five-Year Plan, the energy consumption for
unit GDP in china decreased by 19.1%, corresponding to save
0.63 billion tons of standard coals, equivalent to reducing 1.46
billion tons of CO2 emissions.
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”
 In 2011,the whole country formed energy-saving
capability of 71 million tons of standard coals, equivalent to
reducing 0.16 billion tons of CO2 emissions. The energy
consumption for unit GDP in 2012 was down by 3.6% over
the previous year.
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”

Speed up developing clean energy and new energy industries:
hydropower installed capacity in 2010 was 2000 GW, comparing with 1100
GW in 2005; the wind-power installed capacity in 2010 was 40 GW,
comparing with 1.3 GW in 2005 and photovoltaic power generation installed
capacity reached 0.6 gw in 2010, comparing with less than 0.1 GW in 2005.
Up to now, the indicators for hydropower installed capacity, wind-power
installed capacity, collecting area for solar heaters and number of users for
rural biogas all rank first in the world.
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”
 Artificial afforestation area was 62 million hectares,
the forest coverage rate had reached 20.36% comparing
with 18.2% in 2005.
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”
The outline for planning of the “Twelfth FiveYear” takes the green and low-carbon
development as an important direction for
Chinese development.
 The energy consumption of unit GDP and co2 emission
will be reduced by 16% and 17% comparing with that in
2010 respectively during the “Twelfth Five-Year” ；
 The ratio of non-fossil energy among primary energy
consumption shall reach 11.4%,forest storage shall
increase by 600 million cubic meters and the forest
coverage reach 21.66%. Reasonably control the total
energy consumption.
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”
Promoting low-carbon in new period shall stick
to the basic requirements for “Three overallplanning”:
 Overall planning two general situations at home
and at abroad;
 Overall planning two major tasks for mitigation
and adaption;
 Overall planning two aspects for production and
consumption .
The performance for China’s low-carbon development
and ”Main objectives in the Twelfth Five-Year Plan”
In order to promote low-carbon development, we
should accelerate the realization of "three
transformations”:
 In terms of policy design, realize a transformation from “each
administers in his own way” to focus on top-level design and policy
coordination;
In terms of governing manner, realize a transformation from
managing minor details to pay more attention to controlling total
quantity and structural optimization;
In terms of development means, realize a transformation from
elements input and administration domination to pay more attention to
technical innovation and playing the fundamental function of market.
Major tasks and policy
orientation for China’s lowcarbon development in the
Twelfth Five-Year Plan
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
Green and low-carbon development is the only way for China
in new period to construct the ecological civilization, promote
sustainable development and also a realistic choice for realizing
win-wins in economic development, social progress and
environmental protection.
In order to promote the green and low-carbon development in
the new period, the traditional extensive development thinking
and mode should be changed.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
I. Strengthen top-level design for low-carbon
development
 Develop a roadmap for low-carbon development in China
Accelerate the development of macroscopic strategy for low-carbon
development, define the China’s middle and long term strategic targets
for low-carbon development, tasks in all stages, realization ways, policy
system and safeguard measures etc.
 Formulate and issue National planning for dealing with
climate change
Carry out overall deployment for China to address the climate change
before 2020.
 speed up the legislation process for addressing climate
change.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
II. Stick to the road of new industrialization
 Accelerate the development of services and strategic
emerging industries, create gradually a industries
system characterized by lower carbon emission

Adjust and optimize traditional industries
Restrain the excessive growth of high-energy-consumption and
high-emission industries, continue to eliminate the backward
production capacity

Perfect the development patterns of all
industries
Optimize the industries layout according to main body function
zones, adopt the industry cluster, industry park as the main forms
for industries development, push on developing the low-carbon,
recycling and ecological industries parks.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
III. Stick to low-carbon urbanization
Scientific layout of city and town system
Optimize the space layout, overall plan the industry layout in cities,
function divisions of city, road systems, energy system, municipal
construction; integrate the low-carbon concept into the city traffic
planning and land utilization planning etc.
The economical and intensive utilization of
resources
Implement controlling total land utilization, two way regulation for
supply and demand and differentiation management. Develop green
buildings. Strictly manage and regulate water resources.
Push on building green and low-carbon
infrastructure.
Major tasks and policy orientation for China’s
low-carbon development in the Twelfth Five-Year Plan
IV. Reasonable control for total energy
consumption and carbon emissions
 Establish the system for controlling total energy
consumption
Define the control targets of total energy consumption for the
12th five year, combine the reduction of energy consumption
intensity with reasonable control of total energy consumption, form
a kind of reversed transmission mechanism for transforming
economic development mode, adjusting structure and improving
energy efficiency.
 Optimize energy structure
Strengthen clean production and utilization of coal, push on the
development and utilization of non-traditional oil-gas resources,
speed up developing non-fossil energies.
Major tasks and policy orientation for China’s
low-carbon development in the Twelfth Five-Year Plan
IV. Reasonable control for total energy consumption
and carbon emissions
Improve efficiency and save the energy
Strictly control launching new projects of high-energy-consumption
industries and industries with excess capacity, raise the industry
admittance threshold; implement key projects for saving energy,
benefiting mass projects by saving energy products etc
Increase Forest Carbon Sinks
Vigorously Advance forest planting, continue to implement the
ecological building projects such as key protective forest and “return
the grain plots to forestry” etc. speed up the construction of city
forest ecological shelters . Conduct the pilot work for planting forest
with carbon sinks.
Strengthen guidance to demand
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
V. Implement pilot projects for low-carbon
Push on piloting works for low-carbon provinces
and cities
Actively explore low-carbon and green development modes, create in
China inventively the policy systems and institutions and mechanisms
which facilitate the low-carbon development. The carbon intensity in
2020 shall be reduced by 45% comparing with that in 2005, becoming
the national pilot area for low-carbon development.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
V. Implement pilot projects for low-carbon
Launch pilots for low-carbon park (zone),
commercial and community
Optimize industry chains of industry parks and modes of production
organization; create supporting system for supply and utilization for lowcarbon energy in parks, low-carbon logistics and low-carbon buildings;
strengthen ecological construction in parks; actively explore the new
modes for managing low-carbon industry parks. Combine the
construction of security houses with development of commercial houses
in city, to conduct the piloting work of low-carbon community.
Implement pilot projects for reducing carbon
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
VI. Utilize market mechanism to promote lowcarbon development
Perfect economy policy
Speed up price reform process for energy resources, implement the
step prices for living electricity and water, perfect the charging system
for disposing household garbage.
Research and formulate the criterion for lowcarbon emission
Explore and establish a system for identification and certification for
low-carbon products, research and establish greenhouse gas emission
criterions for different industries, create and perfect the statistic and
accounting system for greenhouse gas emission.
Set up a trading market for carbon emissions
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
VI. Utilize market mechanism to promote lowcarbon development
Set up a trading market for carbon emissions
Set up a trading mechanism which participants reduce the
emissions voluntarily; strengthen qualification auditing for trading
institutions and the third party examination and approval
organizations; increase professional institutions, cultivate
professional talents, and strengthen capacity construction.
Establish gradually a uniform registration system, trading platform
and supervision and management system in whole country. Strengthen
supporting system building for carbon emission trading, publish
accounting and reporting guideline of greenhouse gas for key industries
and key enterprises, explore and set up reporting and licensing system
for carbon emission of enterprises.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
VII. Perfect regional strategy pattern
Districts for urbanization
Optimize development areas and establish strict control
targets for greenhouse gas emission, realize total-quantity
control of greenhouse gas emission, if possible, some cities
shall reach peak value of greenhouse gas emission.
Grant larger incremental space for greenhouse gas emission
emission for accommodating more economy and population
scale to key development zones; stick to the new
industrialization way for lower energy-consumption, lower
emissions and higher added-value.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
VII. Perfect regional strategy pattern
Main production regions for farm produces
Set up strict emission targets for controlling greenhouse gas,
control greenhouse gas emission in agriculture and rural areas; expand
renewable energy which is produced by methane and biomass energy
etc, encourage and guide appropriate concentration of population.
Key ecological function areas
Strictly control the growth of greenhouse gas emission in key
ecological function areas with limitation to develop. Develop low-carbon
industries with unique features suited to local conditions, taking
protection and recovering environment as the primary task.
For areas which are forbidden to develop, implement compulsory
protection according to laws and related plans.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
VIII. Strengthen capacity building
Strengthen legislation Construction for addressing climate change;
Establish the working system such as uniform statistic and
accounting regime for greenhouse gas emission, responsibility system
and assessment system for greenhouse gas emission etc;
Increase financial input, set up special funds for addressing climate
change;
Strengthen the construction of science & technology supporting
system for addressing climate change;
Perfect system for personnel training;
Conduct extensively knowledge publicizing and popularization for
addressing climate change.
Major tasks and policy orientation for China’s lowcarbon development in the Twelfth Five-Year Plan
XI. Conduct international cooperation
Participate in multilateral, bilateral exchanges and strategic dialogues for
dealing with climate change in an all-round and effective way, actively
take part in formulating all kinds of international rules, push on
establishing international mechanisms for addressing global climate
change fairly & reasonably and scientifically & efficiently, creating
favorable external development environment;
Expand international cooperation channel for addressing climate change,
set up mechanisms for funding, technical transfer and talents introduction
etc., create the platform for international cooperation;
 Deepen the cooperation with developing countries through “SouthSouth cooperation”.