从全球范围看，建筑与工业、交通是三大高耗能产业，依据发达国家经验，我国未来建筑能耗将超过工业能耗。由于节能建筑比普通建筑成本要高，因此建筑节能在很长一段时间内需要政府通过政策手段来主导其发展，但各微观经济主体才是推动建筑节能市场转型的决定性力量。

我国正处在加快经济发展方式转变和城镇化水平迅速提高的阶段，建筑能耗将大幅提高，但我国节能潜力很大，建筑节能对于我国的低碳转型十分重要，对于政策的需求也十分紧迫。

房地产开发企业和消费者作为建筑节能领域最有代表性的微观经济主体，均有强烈的政策需求，要实现建筑节能的社会目标，就必须通过政策设计充分调动微观经济主体的主动性。我国经济社会发展战略已经预告了建筑节能未来的获利机会，在一定程度上改变着开发企业和消费者的预期，而正外部性、信息不对称和体制政策障碍等问题的存在，是微观主体需求建筑节能政策的本质原因。

“十一五”时期，我国建筑节能工作取得了很大进展，但仍存在诸多障碍。建筑节能改变了各主体间的利益平衡，利益受损的一方未得到合理补偿，自然就成为建筑节能的阻碍力量。当利益平衡被改变，原有的政策均衡已经不能实现个体利益的最大化。对新政策的需求就会产生，因此，障碍只是建筑节能问题的表象，利益冲突才是问题的本质。

政策缺失和政策执行不力等政策非均衡因素导致建筑节能发展的障碍。其中，政策缺失的根源在于：我国市场经济体系不完善，以税收和贷款为主要形式的经济激励政策面临约束；独立的第三方评价机构和自愿性协议类政策工具需要以完善的社会信用体系为基础，我国目前还不具备这一条件。政策执行不力的原因包括：法律缺乏强制力、监测机制不完善、地方政府执行不足等体制机制问题。这些问题要在我国经济体制和政治体制改革不断推进的过程中，逐步得到解决。

我国建筑节能政策设计应遵循政策需求与供给均衡、统筹兼顾各主体利益、成本收益有效和政策系统总体协调四个原则，这四个原则可用于指导新建建筑节能政策设计和既有建筑节能改造政策设计。我国建筑节能工作总目标，是在满足相同的室内环境舒适性要求的前提下，以最低成本降低单位面积的建筑物终端能耗。以此为目标进行政策工具选择和实施机制的安排。另外，建筑节能政策不能孤立存在并发挥作用，能源价格改革、节能服务体系、能效标识体系、建筑能耗统计系统是建筑节能支持体系，其快速发展可极大提高建筑节能政策实施效果。

我国新建建筑节能市场有两个发展方向：一是通过强制性节能标准让所有新建建筑都达到最低能耗要求，在此基础上鼓励开发更高节能水平的普通建筑；二是走高端节能建筑路线。第二个发展方向与政府设定的政策目标不一致，政府的初衷是鼓励通过采用简单技术、低成本的方式实现建筑节能，而不是走只有少数人才能消费得起的建筑节能之路。

我国新建建筑节能市场尚未形成的原因是节能建筑在经济效益、环境效益、社会效益方面所具有的优势还不能轻松地转化为市场动力，无法激发开发企业、材料供应企业、消费者参与的积极性。

建筑节能产业链上的各主体有着紧密的利益联结，通过影响他们之间的互动关系，找到政策设计的切入点，可取得好的政策效果。新建建筑节能政策设计应以利益相关主体个人目标与社会目标的差异为切入点。新建建筑节能的社会目标是以低成本实现单位面积建筑物终端能耗降低。要实现这一目标需要做两个方面的努力，首先要保证所有新建建筑物都符合国家强制性节能标准（节能50%或65%），其次要给提供和购买更高能效水平（节能高于65%）、较低增量成本建筑的微观经济主体鼓励，以帮助其实现市场转型。这样的目标和努力符合社会大多数人的利益。

新建建筑节能政策设计的主要内容包括：

（1）继续加强强制性节能标准的执行监管。坚持对新建建筑节能标准执行情况进行专项检查，检查范围应由特大城市和大城市扩大到中小城市；坚持要把节能性能作为建筑质量验收最重要的指标之一。

（2）“十二五”期间加强对建筑节能经济激励性政策的试点工作。建立针对开发企业、建设单位、消费者的税收优惠、贷款优惠政策，并完善建筑节能专项资金和政府采购制度。

（3）完善建筑节能产业链。逐步建立建筑节能材料、建筑节能技术国家标准。国家建设主管部门、节能主管部门、科技部门会同标准制定机构分步骤制定建筑节能材料和技术相关标准。首先对主流技术和重点技术制定统一的能效标准；对市场出现的新的集成设备或技术的研发、应用和推广提供政策引导，出台指导性的技术政策。

（4）将住宅产业化作为国家建筑节能工作的中长期目标。住宅产业化是发展节能建筑的重要路径，只有从根本上改变建筑“制造”方式的随意性，才能最终实现建筑节能和绿色的目标。先从试点城市开始，加强住宅产业化联盟，政府给予优惠政策，鼓励有实力、有住宅产业化实践的开发企业先行试点。

既有建筑节能改造面临的最大障碍是体制障碍。供热计量推行最大的阻力来自于供热企业，供热企业短期利益因供热计量改革而受损，才是计量收费推进困难的根本原因。

费用分摊原则是改造能否达到预期政策目标的关键。唐山项目为今后的工程提供了可借鉴的模式，其中坚持要受益用户承担部分费用，与产品企业合作来筹措部分资金的做法都为后来者提供了可选择的方式。在住房私有化情况下，投融资机制是我国能否规模化开展既有建筑综合节能改造的关键。在该项目中，住户既是住房的所有者，又是节能改造的受益者，应该出资参与改造。唐山项目在制定融资政策时就确定合并居民要为节能改造投资的总思路，但因为该项目有国际合作背景，两国政府的资助，居民的投资可以少一些，但是节能改造居民要投资作为项目的一个重要特点，为规模改造制定合适的融资政策奠定了基础。

既有建筑节能改造政策设计的主要内容：

（1）既有建筑节能改造责任主体和资金筹措渠道。在既有建筑节能改造市场还不完善的情况下，应推行以政府为主导的投融资模式。通过对节省的能源费用合理分配，鼓励社会资本进入既有建筑节能改造领域，鼓励供热企业、建筑节能材料和部品企业、供热计量产品企业、节能服务公司等既有建筑节能改造市场上重要的微观经济主体主动参与。

（2）推行按用热量计量收费。在“十二五”期间，供热计量改革的重点应是大力推行按用热量计价收费，坚持供热计量改造与按用热量计价收费同步进行。各地方政府要制定“十二五”期间供热计量收费的具体方案，颁布相关政策。将供热计量改革工作情况作为建筑节能专项检查的重点。

（3）建设大型公共建筑节能的五大保障体系。大型公共建筑节能需要在政府监管下通过价格杠杆和能耗评估来实现，具体来说需要五大系统来支持，即大型公共建筑能耗统计系统、能源审计系统、能耗限额标准、阶梯能源价格和公众监督系统。

（4）支持节能服务公司发展。尽快出台鼓励节能服务公司实施大型公共建筑节能项目的财税优惠政策和节能融资政策，并积极支持节能服务公司探索符合中国国情的大型公共建筑节能服务模式。

From a global perspective, building and industry, transportation are the three major energy-consuming industries, according to the experience of developed countries, China's future building energy consumption will exceed industrial energy consumption. Since energy-saving buildings are more expensive than ordinary buildings, building energy conservation requires the government to lead its development through policy means for a long time, but each microeconomic entity is the decisive force to promote the transformation of the building energy-saving market. China is in the stage of accelerating the transformation of economic development mode and the rapid improvement of urbanization level, building energy consumption will be greatly improved, but China's energy conservation potential is very large, building energy conservation is very important for China's low-carbon transformation, and the demand for policies is also very urgent. Real estate development enterprises and consumers, as the most representative microeconomic subjects in the field of building energy conservation, have strong policy needs, and in order to achieve the social goal of building energy conservation, it is necessary to fully mobilize the initiative of microeconomic subjects through policy design. China's economic and social development strategy has predicted the future profit opportunities of building energy conservation, to a certain extent change the expectations of development enterprises and consumers, and the existence of positive externalities, information asymmetry and institutional policy obstacles is the essential reason for the micro subject demand for building energy conservation policies. During the "Eleventh Five-Year Plan" period, China's building energy conservation work has made great progress, but there are still many obstacles. Building energy conservation changes the balance of interests among various subjects, and the party whose interests are damaged is not reasonably compensated, which naturally becomes an obstructive force for building energy conservation. When the balance of interests is changed, the original policy balance can no longer maximize individual interests. The need for new policies will arise, so obstacles are only a symptom of building energy efficiency, and conflicts of interest are the essence of the problem. Policy imbalances such as lack of policies and poor implementation of policies lead to obstacles to the development of building energy efficiency. Among them, the root cause of the lack of policy is: China's market economy system is not perfect, and economic incentive policies in the form of taxation and loans are facing constraints; Independent third-party evaluation institutions and voluntary agreement policy tools need to be based on a sound social credit system, which China does not currently have. The reasons for the weak implementation of policies include: lack of coercive laws and regulations, imperfect monitoring mechanisms, and insufficient implementation by local governments. These problems should be gradually resolved in the course of the continuous advancement of China's economic and political structural reform. The design of China's building energy conservation policy should follow the four principles of balanced policy demand and supply, overall consideration of the interests of all subjects, effective cost and benefit and overall coordination of policy system, which can be used to guide the design of energy conservation policy design of new buildings and the design of energy conservation renovation policy of existing buildings. The overall goal of China's building energy conservation work is to reduce the terminal energy consumption per unit area of buildings at the lowest cost under the premise of meeting the same indoor environmental comfort requirements. With this as the goal, the selection of policy instruments and the arrangement of implementation mechanisms are carried out. In addition, building energy conservation policy can not exist in isolation and play a role, energy price reform, energy conservation service system, energy efficiency labeling system, building energy consumption statistics system is the building energy conservation support system, its rapid development can greatly improve the implementation effect of building energy conservation policy. China's new building energy-saving market has two development directions: one is to make all new buildings meet the minimum energy consumption requirements through mandatory energy-saving standards, and on this basis, encourage the development of ordinary buildings with higher energy-saving levels; The second is to take the route of high-end energy-saving buildings. The second direction is inconsistent with the policy goals set by the government, which originally encouraged the use of simple technology and low-cost energy efficiency in buildings, rather than taking the road of building energy efficiency that only a few people can afford. The reason why China's new building energy-saving market has not yet formed is that the advantages of energy-saving buildings in terms of economic benefits, environmental benefits and social benefits cannot be easily transformed into market power, and cannot stimulate the enthusiasm of development enterprises, material supply enterprises and consumers to participate. All subjects in the building energy-saving industry chain have a close connection of interests, and by influencing the interaction between them, finding the entry point of policy design can achieve good policy results. The design of energy conservation policies for new buildings should take the difference between the personal goals and social goals of stakeholders as the starting point. The social goal of energy efficiency in new buildings is to reduce the final energy consumption per unit area of buildings at low cost. Achieving this goal requires two efforts: first, to ensure that all new buildings comply with the national mandatory energy conservation standards (50% or 65% energy savings), and secondly, to encourage microeconomic actors who provide and purchase higher energy efficiency levels (energy savings above 65%) and lower incremental cost buildings to help them achieve market transformation. Such goals and efforts are in the interest of the majority of society. The main contents of the energy conservation policy design of new buildings include: (1) Continue to strengthen the implementation and supervision of mandatory energy conservation standards. Insist on special inspections of the implementation of energy conservation standards for new buildings, and the scope of inspection should be expanded from megacities and large cities to small and medium-sized cities; Insist on energy-saving performance as one of the most important indicators for building quality acceptance. (2) During the "Twelfth Five-Year Plan" period, strengthen the pilot work of economic incentive policies for building energy conservation. Establish preferential tax and loan policies for development enterprises, construction units and consumers, and improve the special fund and government procurement system for building energy conservation. (3) Improve the building energy-saving industry chain. Gradually establish national standards for building energy-saving materials and building energy-saving technologies. The national departments in charge of construction, energy conservation, and science and technology shall, in conjunction with standard-setting bodies, formulate standards related to building energy-saving materials and technologies step by step. First, formulate unified energy efficiency standards for mainstream technologies and key technologies; Provide policy guidance for the research and development, application and promotion of new integrated equipment or technologies emerging in the market, and introduce guiding technical policies. (4) Take the industrialization of housing as the medium- and long-term goal of national building energy conservation. Residential industrialization is an important path for the development of energy-saving buildings, and only by fundamentally changing the arbitrariness of building "manufacturing" methods can we ultimately achieve the goal of building energy conservation and green. Starting from the pilot cities, strengthen the housing industrialization alliance, and the government will give preferential policies to encourage development enterprises with strength and residential industrialization practice to pilot first. The biggest obstacle to the energy-efficient renovation of existing buildings is the institutional barrier. The biggest resistance to the implementation of heat metering comes from heating enterprises, and the short-term interests of heating enterprises are damaged by the reform of heat metering, which is the fundamental reason for the difficulty in promoting metering and charging. The principle of cost-sharing is the key to whether the transformation can achieve the desired policy objectives. The Tangshan project provides a model for future projects, in which insisting that beneficiary users bear part of the costs and cooperating with product enterprises to raise part of the funds provide options for latecomers. In the case of housing privatization, the investment and financing mechanism is the key to whether China can carry out comprehensive energy-saving renovation of existing buildings on a large scale. In this project, the occupants are both the owners of the housing and the beneficiaries of the energy-saving renovation, and should contribute to the renovation. When formulating the financing policy, the Tangshan project determined the general idea of merging residents to invest in energy-saving transformation, but because the project has an international cooperation background and the funding of the two governments, the residents' investment can be less, but the investment of energy-saving renovation residents is an important feature of the project, which lays the foundation for the formulation of appropriate financing policies for large-scale transformation. The main contents of the policy design of existing building energy conservation renovation: (1) The main body responsible for the energy conservation transformation of existing buildings and the funding channel. In the case that the existing building energy-saving renovation market is not perfect, a government-led investment and financing model should be implemented. Through the rational allocation of energy cost savings, encourage social capital to enter the field of energy-saving renovation of existing buildings, and encourage important microeconomic entities in the energy-saving renovation market of existing buildings, such as heating supply enterprises, building energy-saving materials and parts enterprises, heat metering product enterprises, and energy-saving service companies, to actively participate. (2) Implement metered charging based on heat consumption. During the "Twelfth Five-Year Plan" period, the focus of heat metering reform should be to vigorously promote charging according to heat consumption, and insist that the transformation of heat metering and charging according to heat consumption should be carried out simultaneously. All local governments should formulate specific plans for heat metering and charging during the "Twelfth Five-Year Plan" period and promulgate relevant policies. Take the reform of heat metering as the focus of special inspection of building energy conservation. (3) Build five major guarantee systems for energy conservation in large public buildings. Energy conservation in large public buildings needs to be achieved through price leverage and energy consumption assessment under government supervision, specifically requiring five major systems to support, namely large public building energy consumption statistics system, energy audit system, energy consumption limit standard, ladder energy price and public supervision system. (4) Support the development of energy-saving service companies. Introduce as soon as possible fiscal and tax preferential policies and energy-saving financing policies to encourage energy-saving service companies to implement energy-saving projects in large-scale public buildings, and actively support energy-saving service companies to explore energy-saving service models for large-scale public buildings that meet China's national conditions.（AI翻译）