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In October and November 2010, two important events took place in China's new energy industry. First, the U.S. Trade Representative Office initiated the “301†investigation of China’s new energy industry, and the second was the cancellation of several departments of the Ministry of Finance. The "Golden Sun Project" financial subsidies.
All these have sounded the alarm for the "government hand" existing in the development of new energy industries. To what extent did financial subsidies promote the marketization of new energy industries? How to more effectively use fiscal subsidy policies to avoid market competition that leads to suppression and distortion of the industry?
The strategy of vigorously subsidizing the new energy industry is undoubtedly based on its high status. However, due to the gap in technology, application and consumption that new energy is facing, the government has studied the development of new energy sources in all countries. With the market-oriented research institutions and production and sales companies to a certain extent, financial subsidies. In China, so too.
"Compared with foreign developed countries, China's new energy industry fiscal subsidy policy does not lag behind. Compared with the United States, even greater intensity." Senior investment researcher Li Shengmao told reporters.
Wind power, solar energy and electric vehicles are currently the three pillars of the new energy sector. The national support for these three industrial chains is mainly divided into policy support and financial support. Policy support includes tax relief, land approval, and other conveniences. Support can be divided into financial direct subsidies, special fund support, and bank loan interest subsidies.
In wind power, in January 2006, the National Development and Reform Commission promulgated the "Trial Measures for the Management of Renewable Energy Power Generation Prices and Expenses Allocation", which clarified the composition of the on-grid electricity price of renewable energy power generation, listed the scope of state subsidies, and benchmarked the prices of renewable energy power generation. The price of electricity plus the price of subsidized electricity. In August 2008, the Ministry of Finance promulgated the Interim Measures for the Administration of Special Funds for the Industrialization of Wind Power Generation Equipment, and arranged special funds to support the industrialization of wind power generation equipment.
In solar power generation, in March 2009, the Ministry of Finance, the Ministry of Housing and Urban-Rural Development issued the "Implementation Opinions on Accelerating the Application of Solar Photovoltaic Buildings." The opinion pointed out that the central government will arrange special funds to subsidize the qualified demonstration projects for photovoltaic building applications to partially compensate for the initial investment in photovoltaic applications. At the same time, the Ministry of Finance promulgated the Interim Measures for the Administration of Financial Subsidy Funds for Solar Photovoltaic Buildings, and set the subsidy standards as 20 yuan/Wp (peak watts) in principle.
In July 2009, the Ministry of Finance, the Ministry of Science and Technology, and the National Energy Administration jointly issued the Interim Measures for the Administration of Financial Subsidy Funds for Golden Sun Demonstration Projects, focusing on supporting the development of photovoltaic power station projects. The method pointed out that 50% of grid-connected photovoltaic power generation project systems and 70% of independent power generation system subsidies.
In the field of new energy vehicles, prior to this, the state financial funds have provided financial support and subsidies for the research and development of new energy vehicles for many years. In May 2010, the Ministry of Finance, the Ministry of Science and Technology, the Ministry of Industry and Information Technology, and the National Development and Reform Commission jointly issued the Notice on Launching Private Subsidy Pilots for Purchase of New Energy Vehicles, which was determined in Shanghai, Changchun, Shenzhen, Hangzhou, and Hefei. The cities started private subsidies for the purchase of new energy vehicles. The financial subsidy program for new energy vehicles is aimed at consumers and charging equipment. For example, pure electric vehicles are given a subsidy of up to 60,000 yuan.
"Under the form of legislation that supports the new energy industry in the United States, China's current support policies are more manifested in the formulation of departmental documents, which are very diverse," said Li Shengmao.
In addition to fiscal subsidies, tax incentives are also an indirect subsidy. In September 2008, the Ministry of Finance and the State Administration of Taxation issued the “Circular on Issues Concerning the Implementation of the Corporate Income Tax Concessionary Directory for Comprehensive Utilization of Resources,†noting that companies have been operating since January 1, 2008. With the resources listed in the “Catalogue for the Comprehensive Utilization of Corporate Income Taxes for Enterprises†as the main raw material, the income generated from the production of the products in the Catalogue that meet the relevant national or industry standards will be reduced by 90% when calculating the taxable income. Total income.
In December of the same year, the Ministry of Finance and the State Administration of Taxation issued the "Notice on the Comprehensive Utilization of Resources and Value-added Tax Policies for Other Products", which stipulates that the value-added tax realized through the use of wind-generated electricity be subject to a 50% rebate policy. For the comprehensive utilization of biodiesel from sales, the policy of first-off return of value-added tax shall be implemented.
Under the requirements of the central government's administrative documents, at the local government level, various taxation and financial subsidy policies for the new energy industry have also been introduced. Almost every province has set up a special fund for new energy industries for scientific research and equipment. Bidding and application of projects for financial subsidies. “Compared with the direct subsidy of central funds and local matching funds, local special funds are indirect subsidies, and the amount is also very large,†said Li Shengmao.
"Compared with the support of the United States mainly through taxation, China's financial resources are more strongly supported. Compared with fiscal funding, the bank's loan interest subsidy is more supportive. Large companies and large-scale projects are launched. Bank loan interest rates." Li Shengmao pointed out.
It is difficult to count the specific subsidy amount of the new energy industry from the central and local governments in the past few years. “At present, the state finance needs to subsidize more than 7 billion yuan for photovoltaic power generation each year.†Wang Sicheng, a researcher and photovoltaic expert at the Energy Research Institute of the National Development and Reform Commission, once said. It seems that the financial subsidies for new energy industries are still showing a growing trend.
On August 3, 2010, the Ministry of Industry and Information Technology, led by the Ministry of Industry and Information Technology, published the draft of the “Auto and New Energy Vehicle Industry Development Plan†(2011~2020). According to the draft, the central government will spend more than 100 billion yuan in this area in the next 10 years. .
Earlier, Liang Zhipeng, Director of the New Energy Division of the New Energy and Renewable Energy Division of the National Energy Administration, said in an interview with the media that the forthcoming "New Energy Industry Development Plan" involves a cumulative direct investment increase of 5 trillion yuan. . The total amount of 5 trillion yuan includes the state investment and the commercial social investment driven by it.
The disputed government’s financial subsidy for new energy is partly due to the high initial manufacturing cost of new energy products. It is difficult for them to rely solely on the cost of their own efforts to digest the cost. On the other hand, in the terminal market, the promotion of new energy is still facing a series of bottleneck.
Taking photovoltaic power generation as an example, according to Shi Lishan, deputy director of the New Energy and Renewable Energy Division of the National Energy Administration, the current investment cost for photovoltaic installations is about 18,000 yuan per kilowatt, while that for conventional thermal power is about 3,000 to 4,000 yuan per kilowatt. The photovoltaic power price is more than three times that of conventional thermal power, and the biggest obstacle to the development of photovoltaic scale is the cost is too high.
“From the point of view of the current financial subsidies, wind power due to relatively mature technology and industrialization, the cost gap between companies is getting smaller and smaller, so the intensity of financial subsidies will be adjusted, electricity prices are indirect subsidies, other subsidies are gradually weakening; The financial subsidies for the photovoltaic industry will focus on installation and marketing. Subsidies for the manufacturing sector will also gradually decrease. As for the new energy vehicle sector, the technology of new energy vehicles is still the biggest problem, so the subsidies for technology research and development It is still a very important link," said Li Lei, a researcher of the China New Energy Power and Energy Storage Committee.
With policy support and financial support, China’s new energy industry is developing rapidly. In terms of wind power, the cumulative installed capacity across the country has increased from 2,600 megawatts in 2006 to 25,000 megawatts in 2009, an increase of nearly 10 times; photovoltaics, solar photovoltaics Annual output of battery modules increased from 438 megawatts in 2006 to 4,100 megawatts in 2009, accounting for nearly 40% of world production.
Because of the “free lunch†of financial subsidies, some negative effects have also come along. In the process of financial subsidies, some problems in the subsidy and subsidy methods have also been revealed.
On November 23, 2010, the Ministry of Finance issued the “Notice on Doing a Good Job of Demonstrating the 2010 Golden Sun Concentrated Application (Caijian No. 2010-923)â€. The "Notice" clearly stated that the Ministry of Finance, the Ministry of Science and Technology, the Ministry of Housing and Urban-Rural Development, and the National Energy Administration have adopted a unified bidding method to determine the list of 2010 Golden Sun demonstration projects and decided to cancel the list of 2009 Golden Sun demonstration projects. There were 39 projects that could not be implemented, totalling 54 MW. In this batch of canceled projects, including Wuxi Suntech, BP, Astor and other international photovoltaic giants as owners of the project.
All along, in accordance with the policy, the government has implemented an initial investment subsidy method for the “Golden Sun†project and has given a 50% subsidy to the project project investment. Therefore, “there are some situations in which 'circle is not built', and many investors When reporting on the construction price of 'Golden Sun' project, they tend to report higher prices, so that more subsidies can be obtained. This may lead to waste, violate the original intention of the policy, and even some investors declare the project investment amount at a high price. In the implementation, it is not implemented in accordance with the declared price, the procurement of cheap equipment to reduce costs.†An interviewee told reporters.
“Because the Golden Sun project was previously independently tendered by the owners, this led to the act of seeking rent and collecting subsidies during the tendering process. The tender price and the reported price were inconsistent, and there was set of subsidies and corruption.†Say.
In fact, this is also a major problem in the current financial subsidies for new energy industries. In the current fiscal subsidy system, the Ministry of Finance is responsible for making money, the Development and Reform Commission is responsible for the project, and the Ministry of Science and Technology is responsible for the technical task force, but after a large amount of capital investment, Regardless of whether the National Development and Reform Commission, the Ministry of Industry and Information Technology, the Ministry of Finance, or the Ministry of Science and Technology have no specific departments to follow-up, monitor, and evaluate these subsidy funds and subsidy programs, the efficiency of financial input cannot be evaluated.
"Even the assessment of the financial department is to evaluate itself and lack of independence." The above person said.
Greater doubt about fiscal subsidies comes from overseas stakeholders. On October 15, 2010, the Office of the U.S. Trade Representative applied for the U.S. Steel Workers’ Federation to investigate a series of clean energy policies and measures formulated by the Chinese government in accordance with Section 301 of the U.S. Trade Act. The US Steel Workers Union stated that “China’s subsidies for the new energy industry in the economic stimulus plan are US$216 billion, which is twice that of the United States and half of the total scale of new energy subsidies in the stimulus plans of all countries.â€
Wind power and photovoltaic companies are the two areas that have been criticized. The federation said that the Chinese government has adopted a series of subsidies, tax reductions, preferential loans, land and other subsidies in the past, which has reduced the production costs of Chinese companies' products such as solar cells and wind turbines. . “The five main areas of protection and predatory measures taken by China to develop its green industry have undermined the United States’ production and employment creation.â€
Although Chinese enterprises and officials have denied this and criticized it as a common means of trade protection in the United States, it cannot be denied that behind this trade dispute, the export volume of China's new energy industry in equipment and components has been greatly increased. amazing. According to iSuppli's data, China produced more than 3.6 GW of photovoltaic (PV) batteries in 2009, 90% of which were sold to the international market, making China the world's largest solar cell exporter of the year.
According to data from 2009, China’s exports of solar photovoltaic products were US$15.44 billion, a year-on-year increase of 147.75%, of which exports to the European market were US$8.79 billion, a year-on-year increase of 489%.
How to avoid conflicts between financial subsidy policies and WTO rules and trigger trade conflicts is also one of the controversies.
Concerns Under the stimulation of fiscal subsidies and various local governments for the sake of GDP, the bigger concern is the disorderly development of the new energy industry. Wind power and photovoltaic products were even included in the overcapacity industries in 2009 and 2010, respectively.
Although the export is active, the contradiction of structural excess has already emerged. The current pattern is that photovoltaic products have a “two ends out†situation, namely, raw materials and component products are produced abroad, and domestic production. According to the statistics of the China Chamber of Commerce and Industry, in 2009, China's photovoltaic industry exceeded 60% of its exports in processing trade. This is contrary to the original intention of developing new energy industries. In the field of wind power, large-capacity fans are in short supply, while small-capacity fans have excess capacity.
However, the current subsidies for new energy industries in China are based on the amount of production and sales as a basis for subsidies, and they have their rationality. However, how to integrate industrial development trends into the basis of subsidies such as technical standards is conducive to industrial development and development. Considering the subsidy of products and companies, the current subsidy method is still extensive.
In terms of subsidies for the “Golden Sun†demonstration project, even those enterprises that started on schedule and received subsidies smoothly, there is a problem that electricity generation may not be connected to the grid (the generator current is connected to the grid), which will lead to waste of electricity. LDK Solar High-Tech Co., Ltd., a related person of the LDK Solar, told reporters that the “Golden Sun†project belongs to the government’s support policy for the photovoltaic industry and adopted the initial investment subsidies. However, this subsidy method also has certain problems. The way to adjust and subsidize grid-connected power generation in the future may be more conducive to increasing the enthusiasm of enterprises for investment and construction.
Han Xiaoping, CEO of China Energy Network, pointed out that the photovoltaic power generation industry is suitable for distributed generation and is not suitable for large-scale projects. However, the government is currently encouraging large-scale projects to increase the project cost, and the grid connection issue is due to the cost of access systems. It has been difficult to properly resolve these major projects.
“The local government has protected local state-owned enterprises and protected backward production capacity in the process of launching these projects and tendering. The disparity in financial subsidies will lead to unfair competition in the market,†said Li Shengmao.
In the field of new energy vehicles, the 16 electric-vehicle alliances established by the central government in August 2010 also caused concern to the industry that the state-owned enterprises and private enterprises that appeared in other industries in the past were unfairly competing and used their advantages to share the state financial support funds. It will repeat itself in the new energy industry.
Extensive financial subsidies have resulted in fragmented subsidies, various research institutions have vie for financial subsidies, enterprises have rushed around, various local governments have blindly built new energy industrial parks, and even county-level governments have used motorcycles and tricycles before them. The production plant is based on the phenomenon of building a new energy automobile industrial park.
It should be noted that although fiscal subsidies can stimulate market expansion, this is not the ultimate goal. Subsidies with developed countries are mainly focused on consumers, mainly because of market application and promotion. At present, China's financial subsidies cover almost all industrial chains. In the process of subsidy declaration, because financial departments are more difficult to assess the application qualifications, financial funds will inevitably not be wasted and inefficient.
During the "Twelfth Five-Year Plan" period, how the new energy policy bid farewell to the government subsidies alone to promote the development of the industry is a problem.
It is undeniable that a large number of policy support and financial subsidies have played a significant role in promoting the development and market application of China's new energy industry, but like the government intervention model experienced in the development of other industries, in the new energy industry, Some negative factors caused by government support, especially financial subsidies, have also begun to take off.
May 27, 2021