碳市场通过市场机制控制温室气体排放，助力经济社会绿色低碳转型，推动碳达峰碳中和目标实现。前两个履约周期中，全国碳排放权交易市场仅覆盖发电行业，纳入的行业、交易主体单一，限制了市场机制低成本减碳功能的发挥。扩大全国碳排放权交易市场行业覆盖范围对落实国家重大部署、实现“双碳”目标、推动低成本减排、促进产业升级和提升国际影响力等具有重要意义。2024年国务院政府工作报告明确将扩大全国碳市场行业覆盖范围作为政府年度工作任务。生态环境部针对扩大全国碳排放权交易市场行业覆盖范围组织开展了专项研究，水泥、钢铁、电解铝行业将继发电行业之后进入全国碳排放权交易市场。在此过程中，扩大全国碳排放权交易市场行业覆盖范围面临数据质量、技术方法、企业经营和监督管理等方面的风险和挑战。需要统筹处理各方关系，综合考虑不同因素，按照“成熟一个、纳入一个”的原则，分阶段、有步骤地扩大行业覆盖范围。建议持续强化碳排放数据质量管理，加快完善纳入行业相关技术方法，积极促进企业减碳与增长双赢，切实做好统筹协调与实施保障，充分有效发挥全国碳排放权交易市场的低成本减碳作用。
The carbon market controls greenhouse gas emissions through a market-based mechanism，supporting the green and low-carbon transition of the economy and society，and facilitating the realization of the carbon peak and carbon neutrality goals. During the first two compliance periods，the National Carbon Emission Trading System（hereinafter the “National ETS”）only covered the power generation sector，with a narrow scope of sectors and limited trading participants，which constrained the market mechanism’s potential for achieving cost-effective emissions reductions. Expanding the sectoral coverage of the National ETS is of great significance for implementing major national strategies，promoting carbon peaking and carbon neutrality goals，achieving economically efficient emissions reductions，facilitating industrial upgrading，and enhancing international influence. The 2024 Report on the Work of the Government of China explicitly identified expanding the sectoral coverage of the National ETS as a government task of the year. The Ministry of Ecology and Environment has organized and conducted specialized research on expanding the sectoral coverage of the National ETS. The cement，iron and steel，and aluminum industries will be included in the National ETS following the power sector. However，this expansion faces risks and challenges in areas such as data quality，technical methods，operations and performance，and supervision. It is necessary to trade off various relationships，consider different factors comprehensively，and follow the principle of “including each sector as it becomes ready” to gradually and systematically expand the sectoral coverage of the National ETS in stages. Meanwhile，it is recommended to continuously strengthen the management of carbon emissions data quality，accelerate the improvement of relevant technical methodologies for the covered sectors，actively promote a win-win situation between emissions reductions and growth in enterprises，and effectively ensure thorough coordination and implementation support，fully realizing the low-cost emissions reduction potential of the National ETS.
