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Study on Energy Conservation Potential and Promotion Mechanism for Civil Buildings in Beijing ?yy/ ?ZμK3 ? 3 2013 M6 中國可持續能源項目 The China Sustainable Energy Program 能 源 基 金 會 The Energy Foundation 項目成果報告系列 Technical Report 北京市民用建筑節能潛力與推進政策研究 Study on Energy Conservation Potential and Promotion Mechanism for Civil Buildings in Beijing 北京建筑技術發展有限責任公司 2013 年 6 月 本課題是美國能源基金會中國可持續能源項目資助的研究項目，在此要感謝能源基金會的支持，特別是建筑節能項目的莫爭春主任對本研究給予的寶貴政策意見，感謝辛嘉楠女士為課題順利開展提供的幫助。 課題研究過程中還得到了北京市住房和城鄉建設委員會建筑節能與建筑材料管理處、北京市住房和城鄉建設科技促進中心等相關單位提供的必要幫助，在此一并表示感謝。 項目信息 項目資助號 G-1201-15389 Grant Number G-1201-15389 項目期 2012.4.1-2013.4.30 Grant period 2012.4.1-2013.4.30 所屬領域 建筑節能政策 Sector Building Energy Conservation Policy 項目概述 子課題一北京市民用建筑能耗情 況與中長期節能潛力研究； 子課題二修訂 ； 子課題三北京市綠色建筑體制機 制現狀與推進政策研究； Project Discription Sub-Subject I Study on Energy Consumption Situation and Medium and Lon- term Energy Conservation Potential of Civil Buildings in Beijing; Sub--Subject II Revise for ; SubSubject III Study on Present Situation Green Building System and Mechanism and Promotion Policy in Beijing. The description is as follows respectively. 項目成員黃建、謝琳娜、陳穎、劉才豐、吳 蕾、王盟、馮蕾、羅淑湘 Project team Huang Jian, Xie Linna, Chen Ying, Liu Caifeng, Wu Lei, Wang Meng, Feng Lei, Luo Shuxiang 關鍵詞 建筑節能、潛力、管理規定、綠色建筑、推進政策 Key Word Energy Conservation, Potential, Administrative Provisions, Green Building, Promotion Policy 摘要 2011 年發布的北京市“十二五”時期民用 建筑節能規劃為北京市民用建筑節能工作制定了發展目標、重點工作任務以及保障措施等。隨著建筑節能工作形勢發生重要變化，對“十三五”建筑節能思路的需求也日益迫切，亟需開展到 2020 年建筑節能的潛力研究，為進一步制定中長期建筑節能規劃提供參考。 2001 年發布的北京市建筑節能管理規定是十多年來開展本市建筑節能工作的基本法律依據，但隨著建筑節能工作的開展，亟需對其進行修訂，用以指導實際工作。推廣綠色建筑是我市建筑節能的重點工作內容，建筑節能“十二五”規劃提出 3500 萬平方米的推廣目標，除法律法規外，工作任務、管理政策以及保障措施等體制機制亦不明晰，需要對其展開調研工作并梳理相關政策思路。 綜上所述，本項目擬開展三個方面研究子課題一北京市民用建筑能耗情況與中長期節能潛力研究、子課題二修訂 和子課題三北京市綠色建筑體制機 制現狀與推進政策研究。以下分別進行闡述 子課題一北京市民用建筑能耗情況與中長期節能潛力研究 2009 年北京市建筑能耗為 2146.7 萬噸標煤，占社會總能耗的比重為32.6。其中，建筑采暖能耗為 1012 萬噸標準煤，城鎮居民用電能耗為 98.3 億kWh，折合 353.88 萬噸標煤，公共建筑用電量為 197.05 億 kWh，折合 709.4 萬噸標準煤?？紤]公共建筑除電耗外，還有其它能耗，按照公共建筑電耗占采暖外總能耗的 90，折合得到公共建筑電耗約為 780.3 萬噸標煤。與 2004 年建筑能耗 1444 萬噸標煤相比， 2009 年建筑總能耗增長了 48.7，采暖能耗增長了13.7，公共建筑用電增長了一倍，城鎮居民用電增長 52。 項目組通過本研究認為，“十三五”期間在延續“十二五”相關節能措施的基礎上，可實現節能潛力 391.31 萬噸標煤，通過建筑節能標準提高、建筑節能范圍擴大，最高將達到 804.41 萬噸標煤的節能潛力，其中除新建建筑節能（包括綠色建筑）外，公共建筑節能運行監管、城鎮化帶來的整村建設等將有更大貢獻。除此之外，“十三五”期間還可以通過控制人口增長和建筑面積增加來實現建筑節能，預計可實現約 236.67 萬噸標煤的節能量，因此，完成建筑節能目標不僅僅需要從建筑節能本身著手，還要從社會經濟等方面來調控。 子課題二修訂北京市建筑節能管理規定 通過調研分析，項目組認為修訂北京市建筑節能管理規定的條件基本具備 ① 上位法明確了建筑節能管理的基本原則。 節約能源法、民用建筑節能條例、公共機構節能條例、北京市實施 辦法等為立法修訂工作提供了上位法依據。 ② 其他省市提供了建筑節能地方立法經驗。 包括建筑節能立法程序、城鄉規劃強調建筑節能、嚴格新建建筑節能標準、既有建筑節能改造主體和籌資機制、公共建筑節能運行監管、加大可再生能源建筑應用特別是太陽能熱水的建筑應用、綠色建筑與住宅產業化等。 ③ 我市建筑節能的實際工作推進為修訂規章提供了實踐基礎。 2001 年發布的北京市建筑節能管理規定 重點規范了新建建筑全面執行節能設計標準，禁用禁產粘土磚以及要求既有非節能建筑實施節能改造等內容。項目組通過研究提出，有必要繼續完善以下幾個方面的立法依據 ① 建筑節能的范圍和定義。不建議把建筑節 能工作范圍擴大到全部建設工程或全部建筑工程，建議將法規名稱改為北京市民用建筑節能管理規定； ② 明確了建筑節能工作政府主導、各責任主 體依法承擔相應職責的管理架構。 ③ 新建建筑節能方面，一方面增加了從城鄉 規劃源頭上強調建筑節能；另一方面，強化固定資產投資項目節能評估審查意見的貫徹落實。 ④ 既有建筑節能改造方面，具體明確了政府 統籌安排機制、各建筑類型的改造責任主體、以及節能改造的資金渠道。 ⑤ 增加了綠色建筑和住宅產業化的推進措施 和監管保障，明確了綠色施工的相關要求 ⑥ 增加了民用建筑與集中供熱系統的節能運 行管理，包括運行管理單位的責任、在線監測、能源審計、能效公示等要求。 ⑦ 細化、嚴格法律責任，使之具有可操作性和有效性。 子課題三北京市綠色建筑體制機制現狀與推進政策研究 通過調查分析，項目組總結了北京市綠色建筑推進過程中可能存在的主要困難 ① 新建綠色建筑推廣壓力較大。截止 2012 年底，北京市共完成綠色建筑評價標識項目 30 個，合計建筑面積約 600 萬平方米，與 3500 萬平方米目標還有一定差距。 ② 綠色建筑運行評價標識完成力度弱于設計 標識。在北京市綠色建筑評價標識的 30 個項目中， 27 個設計標識，僅 3 個運行標識。 ③ 綠色建筑相關示范工程進展較慢。對于新 興產業園區、既有建筑改造、保障房建設、產業化住宅等，均應是我市主推的綠色建筑示范重點領域，但實際推廣效果并不理想。 政策框架如下 主要目標從 2013 年 6 月起，城鎮新建民用建筑 100落實綠色建筑標準，到 2015 年累計完成產業化住宅 1500 萬平方米。創建至少 10 個綠色生態示范區。 基本原則全面推進，突出重點；政府引導，市場推動；部門聯動，屬地負責；立足當前，著眼長遠。 重點任務和推進政策 ① 加快新建綠色建筑規?；茝V。制定相關 標準，實現新建綠色建筑閉合式管理；嚴格全過程監管，保證綠色建筑建設各階段均能達到標準；強化目標責任制，確保落實。 ② 加強運行標識評價。完善相關標準體系， 強調“四節一環?！奔夹g應用所產生的效果；加強綠色建筑運行評價標識的財政支持力度，提高建筑業主的積極性；強化目標責任制，確保落實。 ③ 推廣綠色建筑園區、大力推進既有建筑綠 色化改造、推廣保障房綠色建筑。加強法律法規和政策管理，制定綠色建筑管理辦法，強化目標責任制，將保障房和住宅產業化相結合同步推廣，制定包括設計、施工驗收等標準，嚴格全過程監管。 Summary Development goals, main work subjects and guarantee measures for energy conservation work of civil buildings in Beijing are ulated by Energy Conservation Plan for Civil Buildings in Beijing during the 12th Five-Year Plan Period issued in 2011. With important change in work situation of building energy conservation, the demand on thought of building energy efficiency during 13th Five-Year plan is increased increasingly, the potential study on building energy conservation until 2020 is required to be developed urgently in order to provide the reference for further establishing medium and long-term building energy conservation plan. Administrative Provisions on Building Energy Efficiency in Beijing issued in 2001 is a basic legal basis for developing the building energy efficiency work in this city over decade years. However, with development of building energy efficiency work, it is required to be revised for guiding the practical work. Promoting the green buildings is an important work for building energy conservation in our city. 35 million m2 promotion objective in 12th Five-Year Plan about building energy efficiency is proposed, the work subject s, management policy, supporting measures and other system and mechanism are of ambiguity except for laws and regulations. So it is necessary to develop the survey work and sort up relevant policy and thinkings. In conclusion, this project is proposed to launch the study from three aspects Sub-Subject I Study on Energy Consumption Situation and Medium and Lon- term Energy Conservation Potential of Civil Buildings in Beijing, Sub--Subject II Revise for and SubSubject III Study on Present Situation Green Building System and Mechanism and Promotion Policy in Beijing. The description is as follows respectively. Sub-Subject I Study on Energy Consumption Situation and Medium and Long-term Energy Conservation Potential of Civil Buildings in Beijing The building energy consumption in Beijing was of 21467000 tons for standard coal in 2009, covering 32.6 of total energy consumption in society. Among them, 10120000 ton standard coal was used for building heating energy consumption, 9.83 billion kWh was used for residential electricity consumption in towns and cities, being converted into 3538800 million ton standard coal; 19.705 billion kWh was used for electricity consumption of pubic buildings, being converted into 7094000 ton standard coal. Except for considering the power consumption of public buildings, there are other energy consumptions. Electricity consumption of public buildings is of 7803000 ton standard coal approximately via conversion according to electricity consumption of public buildings covering 90 of total energy consumption except for heating energy consumption. Total energy consumption of buildings increased by 48.7 in 2009, the heating energy increased by 13.7, the electricity consumption of pubic buildings doubled and the residential electricity consumption increased by 52 with comparison to 14440000 ton standard coal in 2004. Through this study, the Project Team considers that 3.91 million ton standard coal of energy conservation potential may be realized during 13th Five-Year Period on the basis of continuing the energy conservation measures during 12th Five-Year Period. The energy conservation potential will reach to 8.04 million ton standard coal at maximum through improving the building energy conservation standard and expanding the scope of building energy efficiency. Among them, the operation and supervision of public building energy efficiency and the whole village construction brought by urbanization will make more contributions except for energy efficiency including green buildings of new building. In addition, building energy efficiency can be realized through controlling the population increase and construction area increase during 13th Five-Year Period to predict that amount of energy about 2.37 million ton standard coal may be realized. Therefore, completing the target for building energy efficiency not only sets out itself bus also adjusts and controls the social economy. Sub-Subject II Revise on Administrative Provisions of Building Energy Efficiency in Beijing Through survey and analysis, Project Team considers that the basic conditions for revising the Administrative Provisions of Building Energy Efficiency in Beijing are provided. I Basic principle on building energy conservation management is defined by epistatic law. Energy Conservation Law, Energy Conservation Regulations for Civil Buildings, Energy Conservation Regulations for Public Authorities, Beijing implements of and other legislations provide the epistatic law basis for revising. II Other provinces and cities provide the local legislative experiences of building energy efficiency, including legislative procedure of building energy efficiency, urban and rural planning emphasized for building energy efficiency, strict energy conservation standard of new buildings, energy conservation reconstruction of existing buildings and funding mechanism, operation and supervision of public building energy efficiency, increase for building use of renewable energy sources especially for solar heat water as well as green building and hosing industrialization. III The promotion of practical work for building energy efficiency in our city provides the practice foundation of revising regulations. Administrative Provisions on Building Energy Efficiency in Beijing issued in 2001 mainly specifies the design standard for energy efficiency and strictly prohibit using and producing the clay brick as well as energy conservation reation for non-energy conservation buildings. Project Team puts forward that it is necessary to perfect continually legislation basis concerned to following aspects through study. I Scope and definition of building energy efficiency. Expanding the building energy efficiency work to the whole construction engineering or whole building engineering is not recommended. It is recommended to change regulation name as Administrative Provisions on Energy Conservation for Civil Buildings in Beijing. II Define the management structure that the building energy efficiency work dominated by government and various liability objects undertake their corresponding responsibilities according to law. III Energy conservation on new buildings on one hand, increase the emphasis on building energy efficiency from the origin of urban and rural planning; on the other hand, strengthen the implementation on energy conservation assessment and review comment of investment projects for fixed assets. IV Energy conservation reconstruction of existing buildings the mechanism of overall arrangement dominated by government, liability objectives for reing buildings types, and capital channel of Energy conservation re are defined specifically. V Promotion measures and supervision guarantee of green buildings and housing industrialization are increased, and relevant requirements of green construction are defined. VI Operation and management on energy conservation for civil building and central heating system are increased, including the obligations of operation and management organization, on-line monitoring, energy audit, publicity of energy efficiency and other requirements. VII Legal liability shall be strictly detailed to ensure that it is provided with operability and effectiveness. Sub-Subject III Present situation of Beijing green building system and mechanism and promotion policy research. Through investigation and analysis, the Project Team concludes the main difficulties existed in promoting process of green buildings in Beijing possibly. I There is great pressure for promoting the green buildings for new buildings. 30 uation and identification projects for green buildings were completed in Beijing at the end of 2012. The total area of structure was of 6 million m2. Difference exists with 35 million m2comparison goal. II The completion dynamics of operation, uation and identification of green buildings is weak to design identification. There are 27 design identifications and only 3 operation identifications among 30 uation and identification projects of green buildings in Beijing. III Relevant demonstration projects on green buildings advance slowly. Emerging industry area, reconstruction for existing buildings and security housing construction and industrialization housing are of main area for promoting the green building demonstration in our city, but the promotional effectiveness is undesirable in fact. Policy recommendations Prime target By 2015, 35 million m2of new green building shall be completed accumulatively. At least 10 green ecological demonstration regions shall be constructed. Basic principle Overall promotion and key point stress; guidance by government and promoted by marketing; linkage among agencies and obligated by territories; taking a long-term perspective. Main tasks and policy promotion I Quicken the large-scale promotion of green buildings. ulate the relevant standard and realize close type management for new green buildings; Supervise the overall process strictly and guarantee various stages of green buildings up to standard; Strengthen the target responsibility system and ensure implementation. II Strengthen the uation on operation identification. Perfect the relevant standard system and emphasize the effectiveness “4 conservation 1 environment protection” created by technology application; Strengthen the financial support of operation identification uation of green buildings and improve the enthusiasm of building employer; Strengthen the target responsibility system and ensure the implementation. III Promote the greening reation for existing buildings in green building zone; vigorously promote and promote green buildings of security hosing. Reinforce the laws and regulation and policy management, ulate the management for green buildings, strengthen the target responsibility system, combine the security hosing with housing industrialization, ulate the design standard and construction and acceptance standard and supervise overall process strictly. 成果目錄
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