30-60：中国最大的煤电、水泥和钢铁公司如何响应国家脱碳承诺（英）-哥伦比亚大学.pdf

BY EDMUND DOWNIE AUGUST 2021 GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGESABOUT THE CENTER ON GLOBAL ENERGY POLICY The Center on Global Energy Policy at Columbia University SIPA advances smart, actionable and evidence-based energy and climate solutions through research, education and dialogue. Based at one of the world’s top research universities, what sets CGEP apart is our ability to communicate academic research, scholarship and insights in formats and on timescales that are useful to decision makers. We bridge the gap between academic research and policy — complementing and strengthening the world-class research already underway at Columbia University, while providing support, expertise, and policy recommendations to foster stronger, evidence-based policy. Recently, Columbia University President Lee Bollinger announced the creation of a new Climate School — the first in the nation — to tackle the most urgent environmental and public health challenges facing humanity. Visit us at www.energypolicy.columbia.edu @ColumbiaUEnergy ABOUT THE SCHOOL OF INTERNATIONAL AND PUBLIC AFFAIRS SIPA’s mission is to empower people to serve the global public interest. Our goal is to foster economic growth, sustainable development, social progress, and democratic governance by educating public policy professionals, producing policy-related research, and conveying the results to the world. Based in New York City, with a student body that is 50 percent international and educational partners in cities around the world, SIPA is the most global of public policy schools. For more information, please visit www.sipa.columbia.edu For a full list of financial supporters of the Center on Global Energy Policy at Columbia University SIPA, please visit our website at https:/ /www.energypolicy.columbia.edu/partners. See below a list of members that are currently in CGEP’s Visionary Annual Circle. This list is updated periodically. Air Products Anonymous Jay Bernstein Breakthrough Energy LLC Children’s Investment Fund Foundation (CIFF) Occidental Petroleum Corporation Ray Rothrock Kimberly and Scott Sheffield Tellurian Inc.GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES BY EDMUND DOWNIE AUGUST 2021 Columbia University CGEP 1255 Amsterdam Ave. New York, NY 10027 energypolicy.columbia.edu @ColumbiaUEnergy ENERGYPOLICY.COLUMBIA.EDU | AUGUST 2021 | 3 GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES Edmund Downie is a non-resident fellow at CGEP and an incoming PhD student in public affairs within the Program in Science, Technology, and Environmental Policy at the Princeton School of Public and International Affairs. He previously worked in the energy and finance practice areas at the Analysis Group in Boston and served as a Fulbright Scholar in China (Yunnan University). He received an MPhil in international relations from Nuffield College, Oxford as a Marshall Scholar. ABOUT THE AUTHOR This paper benefited enormously from insights and assistance from a number of colleagues at CGEP and beyond. Exchanges with Sheng Yan, Kevin Tu, Philippe Benoit, Erica Downs, Julio Friedmann, Zhiyuan Fan, and Anders Hove helped me refine my ideas, as did comments from two internal and three external anonymous reviewers. Liu Hongqiao’s Twitter feed (@ LHongqiao) was a go-to resource for me in keeping up with the most important Chinese climate policy pronouncements. Jamie Webster, Laurie Fitzmaurice, Barbara Finamore, and Susan Tierney were generous in linking me with potential interviewees. Andrea Brody-Barre, Christina Nelson, and Matthew Robinson shepherded this paper through the editorial process with grace and thoughtful feedback. Genna Morton and Kyu Lee did wonderful work to handle the paper’s launch. And David Sandalow, of course, helped on all of these fronts. He was instrumental in guiding this paper from start to finish. Thanks go as well to Jason Bordoff, David, Laurie, Melissa Lott, and the rest of the CGEP leadership for welcoming me into the community this year. It has been a wonderful home for me these past months, and a fountain of lessons about climate research for policy impact. I hope to carry those lessons with me as I begin my PhD. This report represents the research and views of the author. It does not necessarily represent the views of the Center on Global Energy Policy. The paper may be subject to further revision. This work was made possible by support from the Center on Global Energy Policy. More information is available at https:/ /energypolicy.columbia.edu/about/partners. ACKNOWLEDGMENTS4 | CENTER ON GLOBAL ENERGY POLICY | COLUMBIA SIPA GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES Executive Summary Introduction Background: China’s Emissions Profile China’s Emissions by Sector Major Firms in Coal Generation, Steelmaking, and Cement Carbon Management Pre-30-60: National Policy and Company Actions Raising Ambition: Corporate Carbon Commitments Since the Pledges Review of Firm and Industry Target Setting Post-30-60 Drivers of Firm and Industry Targets Signals from Early Commitments on Emissions Peaking and Reduction Conclusion Appendix: Sources A. Emissions B. Electricity C. Steelmaking and Cement D. Corporate Targets E. List of Interviewees Notes TABLE OF CONTENTS 05 07 09 09 12 19 25 26 32 34 45 47 47 51 53 54 57 59 TABLE OF CONTENTSENERGYPOLICY.COLUMBIA.EDU | AUGUST 2021 | 5 GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES In September 2020, China announced its intentions to peak carbon emissions by 2030 and achieve carbon neutrality by 2060. The neutrality goal in particular was a breakthrough for global climate ambitions: a net-zero target from the world’s largest emitter, responsible for around one-quarter of global greenhouse gas (GHG) emissions. The two new goals—referred to in Chinese policy discourse as the “30-60” goals—are not China’s first public targets on GHG reduction. They are, however, the centerpieces of a new Chinese climate policy in which GHG cuts are a standalone goal rather than an ancillary benefit of more immediate priorities like energy efficiency and industrial upgrading. Prior approaches had required little engagement from firms in carbon management. Indeed, none of the largest Chinese firms in the coal power, cement, and steel sectors had publicized quantitative targets for reducing or controlling carbon emissions before the government announced the 30-60 goals. They faced little pressure to do so; authorities pressed firms in climate-adjacent areas like reducing air pollution rather than carbon management. The 30-60 announcement appears to mark a break from this era, forcing firms to adjust accordingly. This report, part of the China Energy and Climate Program at Columbia University’s Center on Global Energy Policy, assesses how China’s high-emitting industries have responded to the 30-60 targets and the accompanying elevation of climate within national policy priorities. It focuses on corporate and sectoral emissions reduction targets through June 2021 among 30 major firms in three of China’s largest sources of direct emissions: coal power generation, cement, and steel. Based on this study, the author finds the following: ● Nine months after the 30-60 announcement, target-setting efforts by major firms and industry associations have been modest: a handful of near-term peaking pledges and just four net-zero pledges among the 30 firms reviewed. Many firms may be still addressing gaps in carbon management expertise and waiting for further policies and pronouncements that can clarify government expectations or establish official frameworks for target-setting. ● Targets from sector-leading firms in electricity generation suggest a push to complete their ongoing shift from coal to renewables as their main source of capacity additions. At least four of China’s six biggest coal power generators are aiming to peak emissions by 2025, and targets on expansions of non-coal capacity could collectively require sector leaders to add hundreds of gigawatts of renewable capacity to their portfolios. These additions will require an embrace of solar, a technology that China’s biggest power producers have historically eschewed. They will also require institutional reforms to enable the transition from a coal-heavy power system with rigid dispatch protocols to a low-carbon grid with flexible market designs. ● Cement firms have proposed a 2023 peaking target, while authorities are reportedly targeting a 2025 peaking date for steel. These targets are deceptively cautious. China’s EXECUTIVE SUMMARYGETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES 6 | CENTER ON GLOBAL ENERGY POLICY | COLUMBIA SIPA infrastructure-heavy COVID stimulus has delayed long-expected output declines in each sector; the peaking dates proposed give each sector time to absorb excess demand. ● Chinese steel sector firms have offered more medium-term and long-term targets than their coal generation or cement counterparts, including 2050 neutrality targets from steel-sector giants Baowu and Hebei Iron and Steel. Policy pressures related to reducing air pollution and lessening dependence on imports for raw materials, as well as an anticipated decline in steel demand, may be incentivizing steel firms to issue such targets. ● Decarbonization targets issued or proposed thus far by the three high-emitting sectors and their leading firms evaluated in this report may align with China’s 2030 peaking target—the most immediate focus of emissions action planning and a fairly straightforward goal to meet. But achieving neutrality by 2060 will require far greater ambition—and policy signals that reward such ambition. Observers should watch for the release of key policy documents over the coming months, particularly national sectoral five-year plans and emissions peaking action plans, to see whether Chinese officials are sending the signals needed for firms to start ratcheting up their long-term ambitions.ENERGYPOLICY.COLUMBIA.EDU | AUGUST 2021 | 7 GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES On September 22, 2020, at the general debate of the 75th session of the United Nations General Assembly, Chinese president Xi Jinping announced that China would “aim to have CO 2 emissions peak before 2030 and achieve carbon neutrality before 2060.” 1 The peaking goal was a modest update on China’s prior target of peaking “around 2030.” 2 But the neutrality goal was a breakthrough for Chinese and global climate ambitions: a net-zero target from a country responsible for around one-quarter of global greenhouse gas (GHG) emissions, more than any other country. 3 The new peaking and neutrality targets—often identified in Chinese policy discussions as the “30-60” targets—have become centerpieces of Chinese climate policy. They serve as key reference points for both government and corporate actors in defining the scope and ambition of their climate actions. They also marked a break from China’s prior approach to climate policy, which had demanded little direct engagement from firms in carbon management. In the past, carbon intensity declines came as an ancillary benefit of more immediate priorities like energy efficiency and industrial upgrading that determined the actual landscape of mandates and incentives guiding firm strategic decisions. The 30-60 targets have turned carbon emissions cuts into a stand-alone priority and forced firms’ policy expectations to shift accordingly. This report examines corporate and sectoral emissions reduction targets through the first half of 2021 from three of China’s largest sources of direct emissions: coal electricity generation, cement, and steel. Such targets can work as greenwashing if unaccompanied by deeper corporate commitments to carbon management. But they can also be powerful tools for firms to develop and implement these kinds of deeper commitments, by scoping emissions reductions strategies and setting clear benchmarks to coordinate firm-wide efforts. They are like yeast in making bread: invaluable in the right environment. The report finds that none of the largest Chinese firms in the coal generation, cement, and steel sectors had publicized quantitative targets for reducing or controlling carbon emissions before the 30-60 pledges were announced. Corporate inaction reflected Chinese authorities’ policy priorities, which emphasized meeting national carbon goals through progress in climate-adjacent areas like energy efficiency rather than carbon management itself. The limited array of corporate targets released since September suggests that many sector majors are still filling gaps in carbon management expertise and waiting for further policies and pronouncements that can clarify government expectations or establish official frameworks for target setting, as has been done for energy efficiency from the late 2000s. Nonetheless, the targets released thus far do give useful insights into how firms are adapting to the 30-60 reality. In coal generation, China’s biggest firms have been slowly shifting their growth strategy over the past decade from adding coal plants to adding renewables. Pledges from sector leaders to peak emissions by 2025 and ramp up renewable capacity installations suggest a push to complete that shift over the coming five years. Their success in this work INTRODUCTION8 | CENTER ON GLOBAL ENERGY POLICY | COLUMBIA SIPA GETTING TO 30-60: HOW CHINA’S BIGGEST COAL POWER, CEMENT, AND STEEL CORPORATIONS ARE RESPONDING TO NATIONAL DECARBONIZATION PLEDGES will require an embrace of solar, which they have historically eschewed in favor of large-scale wind projects that fit with their traditional expertise in enormous thermal and hydropower plants. It will also require further progress in tackling institutional challenges—affecting wind as well as solar—impeding China’s transition from a coal-heavy power system with rigid dispatch protocols to a low-carbon grid with flexible market designs to guarantee energy security. In cement and steel, meanwhile, targets to peak sectoral emissions in 2023 and 2025 reflect long-expected output declines that are likely to come once spending wraps up from China’s infrastructure-heavy COVID stimulus. (The steel sector’s target has been reported but not officially confirmed.) But the steel sector has also led the way in introducing neutrality commitments to the Chinese corporate world with 2050 net-zero targets from its two biggest c