可再生能源配额制发布在即,没有强制,怎么才让污染企业参与?
不久前,国家能源局在例行记者会上透露,正在根据征求意见的情况,对《可再生能源电力配额及考核办法》(下文简称“配额制”)进行修改和完善,初步计划于今年上半年发布。
与之前的政策不同,配额制最大的亮点,就是强调了市场机制的优先地位,这毫无疑问是“发挥市场在资源配置过程中的决定性作用”的正确之路。
但在环保领域,没有天然存在的市场。市场都是通过政策设计创造出来的。在建立市场的过程中,如果不留心制度设计的细节,会直接导致市场的失败。
一个典型的例子就是二氧化硫的污染权交易体系。我国从2002年开始试点工作,但在过去的15年中,始终是雷声大雨点小,并没有真正落地。这有市场成熟度的原因,也有制度层面的问题。
因此,配额制的两个细节要更明确具体,才会充分释放制度效能。
第一个细节,也是最重要的,就是怎么惩罚。
没有有效的惩罚机制,企业会逃避责任,不会真正满足配额要求。
但目前,惩罚机制还很模糊,根据目前看到的信息,其规定是:“未完成配额的市场主体,须通过向所在区域电网企业购买替代证书完成配额。”这实质上是设置了一个惩罚机制,保证负有配额要求的市场主体满足法规的要求。
在美国的可再生能源配额市场中,通常的做法是,按照可再生能源电力证书2倍或者3倍的价格出售替代证书,这样的话,实质上没有企业愿意去购买替代证书,除非企业“临时抱佛脚”,市场在短期之内没有企业出售可再生能源电力证书。这样的规定使惩罚有灵活性,能够保证制度实施。
第二个细节,是可再生能源发电是否能够得到“电力证书”。
在美国,加利福尼亚州和缅因州设置的配额在表面上设定得很高,但是这两个州现有的可再生能源的比例很高,如果这些现有的可再生能源都能得到“电力证书”,实质上是现有的可再生能源投资者得到补贴,在鼓励新的可再生能源发展方面,力度并不是很大。
当然,我们应当奖励过去的可再生能源投资,但是更重要的政策目标是鼓励更多的资本在未来致力于开发可再生能源。所以,如何判定现有可再生能源发电的“证书资格”,需要更多的研究。
第三个细节,是政府在配额分配中,如何体现在不同可再生能源之间的偏好。
目前,可再生能源主要是风力和太阳能发电,而我国太阳能行业的产能过剩问题尤为突出。如果我们从产业发展和环保的角度来看,想给予太阳能发电更多的鼓励,可行的做法是给太阳能发电一个乘数,也就是发放更多的证书。如果这样的细节在制度设计中能够得到关注,会使得政策更为准确有力。
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