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5月10日(ri)，國(guo)家發展改革委、國(guo)家能(neng)(neng)(neng)(neng)源局聯合(he)發布《關于建立健(jian)全可再生能(neng)(neng)(neng)(neng)源電力消(xiao)納保障機制(zhi)的通知》，并于5月15日(ri)在(zai)官網公布，明確按省級行政區域設定可再生能(neng)(neng)(neng)(neng)源電力消(xiao)納責任權(quan)重，建立健(jian)全消(xiao)納保障機制(zhi)。在(zai)經過三輪正式征求意見(jian)后(hou)，這一創新性機制(zhi)的建立和啟動實施(shi)(shi)，對促進我國(guo)可再生能(neng)(neng)(neng)(neng)源電力健(jian)康發展、實現近中長遠期非化石能(neng)(neng)(neng)(neng)源在(zai)能(neng)(neng)(neng)(neng)源消(xiao)費中占(zhan)比(bi)目標、持續推進能(neng)(neng)(neng)(neng)源轉型將(jiang)起到(dao)重要的保障作用(yong)。就機制(zhi)亮點、核心制(zhi)度、實施(shi)(shi)關鍵等(deng)方面，時璟麗(li)提出了個人理解和初步不(bu)完全分(fen)析。

機制基礎和亮點

體現《可再生能源法》中發展可再生能源的全社會責(ze)(ze)任(ren)(ren)。消納保障機制(zhi)要(yao)求承(cheng)擔(dan)可再生能源電力消納責(ze)(ze)任(ren)(ren)的市場(chang)主(zhu)體，其售電量或用電量均(jun)應達(da)到本省(sheng)級區域最低可再生能源電力消納責(ze)(ze)任(ren)(ren)權重對應的消納量，即(ji)市場(chang)主(zhu)體公平承(cheng)擔(dan)責(ze)(ze)任(ren)(ren)。

通(tong)過具有一定(ding)約束力(li)的(de)(de)權重責(ze)任(ren)，建立可再(zai)生(sheng)能(neng)源(yuan)電(dian)力(li)消費引領(ling)的(de)(de)發展機制。我(wo)國可再(zai)生(sheng)能(neng)源(yuan)開發利(li)用目標(biao)引導制度已實施(shi)了四(si)年，加(jia)上(shang)(shang)全額保障性收購制度等，政策實施(shi)效果顯著，各地(di)區(qu)非水可再(zai)生(sheng)能(neng)源(yuan)消納電(dian)量(liang)占比逐年上(shang)(shang)升。在(zai)該引導性制度基礎上(shang)(shang)，借鑒國際經驗，啟(qi)動實施(shi)具有一定(ding)強制性和約束力(li)的(de)(de)消納責(ze)任(ren)機制，將(jiang)加(jia)快形成可再(zai)生(sheng)能(neng)源(yuan)電(dian)力(li)消費引領(ling)的(de)(de)氛圍。

營(ying)造可再生能源電(dian)力電(dian)量持(chi)續增(zeng)長空間。文(wen)件雖說明有效(xiao)期(qi)五年，但從(cong)制度設計看(kan)，其(qi)(qi)旨在建立長效(xiao)的消納保(bao)障(zhang)機制，尤(you)其(qi)(qi)是在“十四五”初(chu)期(qi)風光普遍(bian)具備平(ping)價上網(wang)條件、實(shi)(shi)現全面(mian)去補貼后，消納將是影響其(qi)(qi)發展(zhan)速度和(he)規(gui)模的最主(zhu)要因素(su)，通過合(he)理調整（原則上逐年提升或至少不降低）消納責任權重指標，可營(ying)造滿(man)足我國能源轉型需求的可再生能源電(dian)力電(dian)量持(chi)續增(zeng)長空間，從(cong)而保(bao)障(zhang)非化石能源占比近中長遠(yuan)期(qi)目標的實(shi)(shi)現。

機制(zhi)設計依(yi)據電(dian)(dian)力體制(zhi)改革思(si)路，以市(shi)場(chang)(chang)化(hua)為基(ji)礎。無論是(shi)(shi)(shi)各(ge)地區年度(du)消(xiao)納責任權重確(que)定方(fang)面，還(huan)是(shi)(shi)(shi)市(shi)場(chang)(chang)主體完成消(xiao)納量的(de)多種途徑和(he)方(fang)式(shi)方(fang)面，均體現(xian)了(le)以市(shi)場(chang)(chang)化(hua)運行(xing)、市(shi)場(chang)(chang)配置(zhi)資源的(de)原則。消(xiao)納責任權重的(de)實施直接銜接電(dian)(dian)力市(shi)場(chang)(chang)建設進程，尤其(qi)是(shi)(shi)(shi)電(dian)(dian)力市(shi)場(chang)(chang)化(hua)和(he)交易制(zhi)度(du)。此外(wai)還(huan)考(kao)慮了(le)與可再生能源綠色電(dian)(dian)力證書、能耗考(kao)核等制(zhi)度(du)的(de)銜接。

核心制度設計

設定各(ge)省級(ji)行政區(qu)域可(ke)(ke)(ke)再生能(neng)源電力消(xiao)納(na)責任(ren)權重(zhong)(zhong)(zhong)。權重(zhong)(zhong)(zhong)有兩個維度，一是(shi)總量消(xiao)納(na)責任(ren)權重(zhong)(zhong)(zhong)（全部(bu)可(ke)(ke)(ke)再生能(neng)源）和非水(shui)電消(xiao)納(na)責任(ren)權重(zhong)(zhong)(zhong)；二是(shi)最低消(xiao)納(na)責任(ren)權重(zhong)(zhong)(zhong)和激勵性(xing)(xing)(xing)消(xiao)納(na)責任(ren)權重(zhong)(zhong)(zhong)。文件(jian)明(ming)確了權重(zhong)(zhong)(zhong)測算(suan)的統(tong)一方法、考慮的多種(zhong)因(yin)素（如各(ge)地區(qu)可(ke)(ke)(ke)再生能(neng)源資源條(tiao)(tiao)件(jian)、全社會用電量、能(neng)源發展(zhan)規劃、可(ke)(ke)(ke)再生能(neng)源電力建設情況、市(shi)場預期和消(xiao)納(na)條(tiao)(tiao)件(jian)、輸(shu)電通(tong)道外送等(deng)）、測算(suan)和確定各(ge)地區(qu)各(ge)年(nian)度權重(zhong)(zhong)(zhong)的職(zhi)責主體(ti)和具(ju)體(ti)流程等(deng)，使權重(zhong)(zhong)(zhong)確定具(ju)有統(tong)一性(xing)(xing)(xing)、科學性(xing)(xing)(xing)、合理性(xing)(xing)(xing)、公(gong)開性(xing)(xing)(xing)，并利(li)于(yu)實施。

售電(dian)(dian)(dian)(dian)(dian)企業和電(dian)(dian)(dian)(dian)(dian)力(li)(li)用(yong)(yong)戶為市場主體，協(xie)同承(cheng)擔消納責任(ren)。直(zhi)接向電(dian)(dian)(dian)(dian)(dian)力(li)(li)用(yong)(yong)戶供售電(dian)(dian)(dian)(dian)(dian)的(de)電(dian)(dian)(dian)(dian)(dian)網企業、獨立售電(dian)(dian)(dian)(dian)(dian)公司、配售電(dian)(dian)(dian)(dian)(dian)公司（包(bao)括增量(liang)(liang)配電(dian)(dian)(dian)(dian)(dian)公司）承(cheng)擔與其(qi)年(nian)售電(dian)(dian)(dian)(dian)(dian)量(liang)(liang)對(dui)應(ying)的(de)可(ke)再(zai)生能源(yuan)電(dian)(dian)(dian)(dian)(dian)力(li)(li)消納量(liang)(liang)。從(cong)電(dian)(dian)(dian)(dian)(dian)力(li)(li)批發市場購電(dian)(dian)(dian)(dian)(dian)的(de)電(dian)(dian)(dian)(dian)(dian)力(li)(li)用(yong)(yong)戶和擁有自備電(dian)(dian)(dian)(dian)(dian)廠的(de)企業，承(cheng)擔與其(qi)年(nian)用(yong)(yong)電(dian)(dian)(dian)(dian)(dian)量(liang)(liang)對(dui)應(ying)的(de)可(ke)再(zai)生能源(yuan)電(dian)(dian)(dian)(dian)(dian)力(li)(li)消納量(liang)(liang)。

市場主體(ti)完成消(xiao)納量(liang)的(de)最主要途(tu)徑是實際(ji)消(xiao)納可再生能源(yuan)。實際(ji)消(xiao)納可再生能源(yuan)的(de)方(fang)式(shi)(shi)包括購買(mai)和自發自用(yong)可再生能源(yuan)電量(liang)。此(ci)外還有(you)兩(liang)種(zhong)(zhong)補充（替代）方(fang)式(shi)(shi)，即向超額完成的(de)市場主體(ti)購買(mai)消(xiao)納量(liang)和自愿認購綠證。市場主體(ti)可在(zai)上述方(fang)式(shi)(shi)中自主選擇一種(zhong)(zhong)或多種(zhong)(zhong)方(fang)式(shi)(shi)完成。

實施關鍵和措施

明確組織實(shi)(shi)施(shi)工(gong)作(zuo)和(he)各方職(zhi)責(ze)，提升落實(shi)(shi)有效(xiao)性。國務(wu)院能(neng)(neng)源(yuan)主(zhu)(zhu)(zhu)管(guan)(guan)部(bu)門負(fu)責(ze)按省級(ji)行(xing)政區(qu)域的監(jian)測評價，能(neng)(neng)源(yuan)派(pai)出(chu)監(jian)管(guan)(guan)機構(gou)負(fu)責(ze)監(jian)管(guan)(guan)，包括監(jian)管(guan)(guan)市場主(zhu)(zhu)(zhu)體消(xiao)納量(liang)完(wan)(wan)成(cheng)情況(kuang)、相關交易過(guo)程等并完(wan)(wan)成(cheng)專項監(jian)管(guan)(guan)報(bao)告。省級(ji)能(neng)(neng)源(yuan)主(zhu)(zhu)(zhu)管(guan)(guan)部(bu)門牽(qian)頭承擔(dan)本地區(qu)消(xiao)納責(ze)任權(quan)重(zhong)落實(shi)(shi)工(gong)作(zuo)，包括制(zhi)定消(xiao)納實(shi)(shi)施(shi)方案、考核(he)(he)責(ze)任主(zhu)(zhu)(zhu)體、報(bao)送信(xin)息、公布考核(he)(he)報(bao)告等，主(zhu)(zhu)(zhu)要工(gong)作(zuo)會同(tong)經濟運(yun)行(xing)管(guan)(guan)理部(bu)門、能(neng)(neng)源(yuan)排除(chu)監(jian)管(guan)(guan)機構(gou)開(kai)展。電網企業負(fu)責(ze)組織經營區(qu)內(nei)各市場主(zhu)(zhu)(zhu)體完(wan)(wan)成(cheng)消(xiao)納，即承擔(dan)消(xiao)納責(ze)任權(quan)重(zhong)實(shi)(shi)施(shi)的組織責(ze)任。

設(she)計適度(du)“獎懲”措施。實施消(xiao)(xiao)納(na)(na)保(bao)障機制的(de)(de)一個直接(jie)目的(de)(de)是促進各地(di)區優先消(xiao)(xiao)納(na)(na)可再生能源，為鼓勵(li)(li)先進和激發地(di)方(fang)的(de)(de)積極(ji)性，形成正(zheng)反饋氛(fen)圍，設(she)立了按(an)最低消(xiao)(xiao)納(na)(na)責(ze)任權重(zhong)(zhong)上浮一定幅(fu)度(du)的(de)(de)激勵(li)(li)性消(xiao)(xiao)納(na)(na)責(ze)任權重(zhong)(zhong)，并鼓勵(li)(li)地(di)方(fang)自行(xing)確定更高的(de)(de)消(xiao)(xiao)納(na)(na)責(ze)任權重(zhong)(zhong)。對地(di)方(fang)或企(qi)業超額完(wan)(wan)成的(de)(de)消(xiao)(xiao)納(na)(na)量，具(ju)體鼓勵(li)(li)措施是在確保(bao)完(wan)(wan)成全(quan)國能源消(xiao)(xiao)耗總(zong)量和強度(du)“雙(shuang)控”目標條件下(xia)，該部分消(xiao)(xiao)納(na)(na)電量折算的(de)(de)能源消(xiao)(xiao)費量不計入該地(di)方(fang)或企(qi)業“十三五”能耗“雙(shuang)控”考核。另一方(fang)面，對未(wei)履(lv)行(xing)消(xiao)(xiao)納(na)(na)責(ze)任權重(zhong)(zhong)的(de)(de)市場主體要求限(xian)期整改，對未(wei)按(an)期完(wan)(wan)成整改的(de)(de)依(yi)法(fa)依(yi)規處理，將其(qi)列入不良信用記錄，予以聯合(he)懲戒。