Climate Change Policy Target Setting and Implementation Process

in Japan and China

Japan-China Policy Research Workshop in 2017

Jin Zhen, Ph.D.Institute for Global Environmental Strategies(IGES)

Table of Contents

Target Setting and Implementation Process in China

Target Setting and Implementation Process in Japan

Future discussion topics

2

TARGET SETTING AND IMPLEMENTATION PROCESS IN CHINA

3

Main targets in 13th FYP Period(by 2020, compare to 2015) Energy efficiency target (energy intensity target) : Reduce the energy

consumption per unit of GDP by 15% CO2 reduction target: Reduce the CO2 emissions per unit of GDP by 18% Targets for phasing-out of backward production capacity Non-fossil fuels targets: Increase the share of non-fossil fuels in total energy

consumption to 15%

4

National Five Year Plan (FYP)

The National Five Year Plan (FYP) played an important role as regulatory scheme in China

The targets set by the plan are legally binding Regarding implementation of the plan, the State

Council has the authority to introduce administrative measures, enact administrative rules and regulations, and issue decisions and orders (Constitution, Article 89,Clause 1; Legislative Law, Article 56, Clause 2)

5

Target Responsibility System (TRS)

A legal scheme to clarify the responsibility of local governments, i.e., the concrete legally binding targets allocated by the central government, through National Target Allocating Processes.

Under the TRS, the provincial governments are required to achieve the allocated targets and shall take joint liability with the lower levels of local governments under their direct control.

In order to ensure the effectiveness of TRS, the law is set to ensure the achievement of targets. Target achievement status is linked to personnel evaluation, with possible punishment measures.

6

How is TRS working?

China's Constitution gives the State Council the comprehensive authority to draw up the FYP for national economic and social development and to implement it (Constitution, Article 89,Clause 5)

Regarding implementation of the plan, the State Council has the comprehensive authority to adopt administrative measures, enact administrative rules and regulations, and issue decisions and orders (Constitution, Article 89,Clause 1; Legislative Law, Article 56, Clause 2)

The local governments are responsible for implementing the National FYP (Article 59, Clause 5 of the Organization Law).

Moreover, higher branches of government can reprimand local government heads for refusing to carry out their orders

7

Target responsibility system(TRS)energy efficiency policy

8

Scheme of TRS State council sets National

targets (energy intensity target, Controlling Total Energy Consumption to 4 billion tce by 2015), and distributed to local governments as mandatory targets.

Target achievement status is linked to personnel evaluation, with possible punishment measures.

The allocated target distributes to the enterprises in the cooperation of a country and the local government

Provincial governments need to build regional FYP based on allocated target

Local government targets

Other enterprises:

under the jurisdiction of

local governments

State Council

Authorisation

Supervision &

Manage-ment

Cement: 370MtIron : 48Mt

Steel-making: 42MtCox: 42Gt

Alcohol: 1.0Mtetc.

State-run enterprises:

under the jurisdiction of the

state

Target allocation

Closure of Small Plant and Outdated Capacity

(CSPOC) Program

Specification

Provincial level target

Prefecture level target

County level

target

Township leveltarget

Target allocation

Top-10,000 Program:1. Support local governments

achieving their allocated targets

2. Introduction of Energy- Saving Equipment and management systems as main measure

Supervision & manage-

ment

Energy efficiency target setting process

9

TRS on PM2.5 Target: Atmospheric Pollution Prevention Action Plan To reduce the urban concentration of Particulate Matters (PM10) by at 10% in all

cities greater than or equal to prefecture-level, and to gradually increase the annual number of days with fairly good air quality;

To reduce PM2.5 concentration lever in Beijing-Tianjin-Hebei by 25%, in Yangtze River Delta in 20% and in Pearl River Delta region by15%; and

To control the annual average concentration of PM2.5 in Beijing to below 60 micrograms per cubic meter.

10

Air Quality Improvement Target(by 2017 compare to 2013) Region

Annualaverage decline of PM2.5 (%)

-25% Beijing , Tianjin , Hebei

11-20% Shanxi, Shandong , Shanghai , Jiangsu,

Zhejiang-15% Guangdong , Chongqing-10% Inner Mongolia

Annualaverage decline of PM10 (%)

-15% Henan , Shaanxi, Qinghai , Xinjiang

17

-12% Gansu, Hubei

-10% Sichuan, Liaoning , Jilin , Hunan , Anhui , Ningxia

-5% Guangxi, Fujian , Jiangxi, Guizhou , Heilongjiang

Continuous improvement Hainan , Tibet, Yunnan 3

Source: MWP(2013)The MEP has signed target responsibility agreements for preventing and combating air pollution with 31 provinces http://www.gov.cn/gzdt/2014-01/07/content_2561650.htm

Rate of Achievement for Annual Targets

11

PM2.5 Air Quality Improvement Target(by 2017 compare to 2013)

Annual Targets (Rate of Achievement)

Annual Target (Rate of Achievement)

2014 2015 2016 201710% of all 35% of all 65% of all 100%

Total Score: 100

Score for achievement of annual target: 60Score for over

achievement: 40

Achieved

Non achievement with a little improvement on the Annual average Air Quality comparison with last year

Non improvement and the Annual Average Air Quality worsen in comparison with last year

The Over achieved at or above 30%

The over achieved less than 30%

60

60 × (Actually achieved target % /

Annual Improvement target %)

0 4040 × (Over

achieved rate% / 30%)

Score for out put of TRF

12

Total Score 100

No. Indicator Score of Indicator

Sub-indicator Score of Sub-indicator

1 Optimize the Industrial Structure 12

New capacity control for overcapacity sectors 2Rectification of the illegal construction project in overcapacity sectors 2

Elimination of backward production capacity 6Relocation of highly polluting factories 2

2 Environment-Friendly production 6Assessment to Environment-Friendly production and upgrade the related

technology for key sectors 6

3Coal Management and vehicle fuel

supply 10

Coal consumption cap 0 or 6 or 8Coal cleaning treatment 4 or 0

Clean coal supply for residential use 0 or 2Diesel and gasoline fuel supply under China IV and V standards 6 or 2

4Rectification of coal-fired boilers in

small size 10Elimination of small coal-fire boiler 8

Permit regulation for new coal-fire boiler 2

5Air Pollution Control for Industrial

Sector 15Industrial dust (PM) control 8

Industrial VOCs control 7

6 Dust control in urban 8Dust control from construction site 4

Permit regulation for new coal-fire boiler 4

7Vehicle emission prevention and

control 12

Out of using for yellow label vehicle 7Environmental labeling management for vehicles 2 or 1

Promote the new vehicle using 0 or 1Capacity building for environmental supervision of vehicles 1

Transportation system building for the pedestrians and cyclists 2

8Advancing the contraction of Energy

Saving Building with Heating Metering

5Advancing the construction of energy saving building 5 or 2

Advancing the heating metering 0 or 3

9Investment for Air Pollution

Prevention and Control 6Investment in air pollution prevention and control by local governments,

enterprises and society6

10Environmental Management for Air

Pollution 16

Annual work plan formulation 2Advancement of ledger management scheme 1

Quality management monitoring for atmospheric environment 5Agricultural waste incineration control 3

Controlling the agricultural waste incinerating 1Environmental information disclosure 4

TARGET SETTING AND IMPLEMENTATION PROCESS IN JAPAN

13

Legal Obligation for Plan Making and Target Setting

Act on Promotion ofGlobal Warming Counter-measures (1998)

Local GovernmentsNational Government

The national government shall establish “Government Action Plan” (Action Plan) and “Plan for Global Warming Countermeasures” (National Plan).

National Plan shall prescribe targets regarding greenhouse gas emissions and sinks for each class and category of greenhouse gases.

National government shall support the programs of local government bodies for the control of greenhouse gases.

In view of the National Plan, local governments(1789) shall establish its Action Plan.

Prefectures(47),designated cities and core cities(149) shall prescribe the countermeasures for global warming in its Action Plan.

No request for setting the regional GHG reduction targets, but many local governments established regional “Plan for Global Warming Countermeasures” with Mid/Long-term target.

Action Plan(limited to its own

administrationand undertakings)

National plan for Global Warming

Countermeasures

Action Plan(limited to its own

administrationand undertakings)

Regional Counter-measures

for Global Warming

National Government Target Setting Process

15

Global Warming Prevention Headquarters(GWPH)• Chairman: Prime Minister• 3 Vice Chairman: Chief Cabinet secretary, Minister of

the Environment, the Minister of Economy, Trade and Industry

• Members: Other ministers

The advisory body of MOE: Central Environment Council (including

Members form industry)

The advisory body of METI: Central Industrial

Structure Council (including Members form

industry)

Cabinet

Joint Experts Meeting (JEM)

After October 2014 Starting JEM

April 2015Submit Draft of

Japan’s INDC to JEM

June 2016Summarized as

Government plan of INDC at GWPH

July 2016(After Public comment)

the INDC confirmed by GWPH

Associations and Unions

Targets of Emission Reductions for 2030

16

Type of Main Targets

17

Industrial sector

Commercial and other sectors

Residential sector

Transport sector

Energy conversion

sector

Other GHG and removals by LULUCF

Emission reduction Targets for associations and Unions (102)

Targets for Introduction of highly energy-efficient equipment/devices

(7 equipment for all sector, 32 equipment and technologies for industry sector)

Other targets

Targets for associations and Unions

18

Consists of National Target

FY2005 (actual)

(Mt)

FY2013 (actual) (Mt)

Estimated emission in FY2030 by sector (Mt)

Targets for associations and Unions

Energy-originated ＣＯ２

1,219 1,235 927

Industrial sector 457 429 401 49(53)Commercial and others 239 279 168 33(45)

Residential sector 180 201 122

Transport sector 240 225 163 15(19)Energy transformation 104 101 73 5

Thank you

19