Pre-Evaluation Index System Research of Urban Energy-Saving Emission Reduction Policies *

Energy-saving is an important aspect of sustainable development in China. It affects the realization of China’s sustainable economic development strategy. Cities are important units of the country’s economic development and the effect of cities’ energy saving work will affect national strategic planning. Urban energy saving policy evaluation system is an important tool to measure a city’s energy saving work. It can be divided into pre-implementation evaluation, ongoing evaluation and post-implementation evaluation according to the implementation phase of the evaluation. This paper builds a pre-evaluation index system of urban energy conservation policy using energy saving policy classification and multi-angle evaluation of the integrated program of National 11th and 12th Five-Year Plan for Energy Saving.


Introduction
China's economic growth rate averaged around 9% in the last 3 decades at the cost of rapid consumption of natural resources and pollution to the environment.This becomes to restrict the sustainability of economic growth [1].Therefore, the energy-saving emission reduction has become an important way to adjust the economic structure.It's also an important means to realize the transformation of economic growth mode [2].Since the city is the basic unit of national economy, overall economic transition in China cannot be achieved without city economic transformation.
There are quite some domestic and international academic studies on energy-saving emission reduction policies.These studies fall into three categories: one is the basic research in energy-saving emission reduction policies.These studies are the theoretical core of energysaving emission reduction policies, such as Adam Smith's resource utility theory, energy-saving emission reduction policies in the external environment, such as energy consumption and pollution emissions and the macroscopic and microscopic field factors.The second one is the study of energy-saving emission reduction policies.Researches in this area mainly involve determining the nature and characteristics of energy-saving emission reduction policies, etc.The third area focuses on the evaluation of energy-saving emission reduction policies.Research content in this area is widespread, but evaluations are mainly done after the energy-saving emission reduction policies are implemented.
With the advance of China's energy-saving emission reduction effort, the cities have established a large number of energy-saving emission reduction policies.We need to find scientific evaluation methods to evaluate the policy system regarding city's energy-saving emission reduction.According to the implementation stage evaluation of view, it can be divided into ex-ante evaluation, evaluation and post-evaluation in the matter.This paper introduced the idea of ex-ante evaluation, evaluation of the city's energy-saving emission reduction policies, that can avoid obstacles in implementing a policy and those undermines its maneuverability, integrity, objectivity and validity due to the introduction of the policy hastily.Therefore, this paper takes a city as an object and analyses index system of evaluation for energy-saving emission reduction policies.

Review of the Literature
There are a lot of academic studies in the area of evaluation on policies though researches on pre-evaluation are much scarce.Dai min [3] proposed pre-evaluation model for the information system using uncertain multiple attribute decision making theory.It tries to express the fuzzy and uncertain of the mind of decision makers through the definition of linguistic variables.Liang Yun [4] took the theory of AHP and fuzzy comprehensive evaluation method from the Balanced Scorecard theory and studied the pre-evaluation of enterprise information.Gong Yanbing [5] provided a new idea for the ex-ante evaluation using fuzzy relative potential model on management information system.
In the evaluation of energy-saving emission reduction policies research field, many scholars studied various aspects and life-cycle of production from both the perspective of government and of enterprises.Lin J. [6] studied the administrative policy of energy saving and emission reduction and its influence.G. C. Nwaobi [7] studied the effect of greenhouse gas emission reduction policies for economic development in Nigeria using dynamic CGE model, suggested for energy-saving emission reduction policies in other countries is presented.Wang Yanpeng [8] set up our country's overall energy-saving emission reduction target system and put forward 39 indexes in five aspects and all of which are quantifiable.Chu Sha, Chen Lai [9] used the method of variation coefficient to evaluate the energy saving and emission reduction situation in Anhui Province.Li Hong, Li Xiyun [10] evaluated the comprehensive effects of energy-saving emission reduction of coal resource type city using random simulation angle method for comprehensive evaluation.Shen Cheng [11] constructed three dimensions system with a total of 15 indicators to study the enterprise energy-saving emission reduction effect from the perspective of resources and environment.Liu Yuanming [12] proposed the construction of a evaluation system in six categories of a total of 27 indicators in energy consumption index, index of pollutant emission reduction, ecological protection index which gave a comprehensive evaluation of energy saving and emission reduction of coal enterprises.Chen Wen [13] evaluated performance of provincial industrial energy conservation and emission reduction in China using the TOPSIS comprehensive evaluation method, a new evaluation method.Duan Wanchun [14] presented a model that evaluated the performance of energy-saving emission reduction of telecom enterprises using fuzzy comprehensive evaluation.
Throughout all these domestic and international researches on evaluation, most of them concentrated in the evaluation of energy-saving emission reduction situation level.We hardly see any research that uses city as object of study and with a focus on pre-evaluation on energy-saving emission reduction policy system.

To Establish the Evaluation Space
There are multiple-dimension effects of city energysaving emission reduction policies such as environmental protection, industrial restructuring, economic growth, social stability, sustainable development etc.It is not sufficient if we take just one dimension to evaluate energy-saving emission reduction policies.For example, evaluation simply from the environmental point of viewno matter how strong a policy is on environmental protection, if the policy restricts economic growth, it cannot support economic sustainable growth.Simply focus on economic growth, do not pay attention to energy saving and environmental protection, economic growth will be tied down; Even if the policy effect on energy saving and environmental protection, economic growth, but if the transformation, industrial upgrading has little effect on the technology, which can make economic growth gradually slow, energy saving and environmental protection without relying on; On the contrary, only attach importance to energy security, laying the foundation for sustainable development, ignoring the existing economic growth, it may has great staying power, but economic support to its advantage fully, there are questions.Therefore, how to evaluate the energy-saving emission reduction policies from multiple dimensions is a problem to be studied.This paper attempts to evaluate the system energy-saving emission reduction policies for the city by building a multi-dimensional evaluation space.
To establish the evaluation space need to find the right dimensions, this paper intends to construct three dimensions that can reflect the characteristics of the energysaving emission reduction policies, economic growth, structural adjustment, innovation and development, and construct the spatial dimensions of the evaluation and the establishment of the city's energy-saving emission reduction policies.Three evaluation dimensions for ideas as shown in Figure 1.
The first step: This research collect 2007-2012 years more than 80 articles about energy saving and emission reduction in an academic paper through the keyword "energy-saving emission reduction policy research" and "energy-saving emission reduction evaluation".
The second step: Through comparative study research  Copyright © 2013 SciRes.IB and evaluation system of policy documents, the research contents were collected according to the analysis of five aspects of author, title, year, literature and evaluation dimensions related content, dimension.The third step: according to the second step organize content, choice involves a broader, more pervasive evaluation dimensions of integration, can be summarized as the three dimensions of economic growth, structural adjustment, innovation development.
According to the literature on the three dimensions of meaning, the descriptions are as follows: First, economic growth evaluation dimension refers to energy-saving emission reduction policies in the city within the scope of certain time and area, will promote the sustained increase of per capita production.
Second, structural adjustment evaluation dimension refers to whether the energy-saving emission reduction policies influence on city energy production, consumption structure and industrial mode.
Third, innovation development evaluation dimension refers to energy-saving emission reduction policies of city management, innovation management method, or to the technology, the application process to produce innovative.
Therefore, this paper uses the economic growth, structural adjustment, innovation and development of the three dimensions of space.

Constructing Thinking of the Evaluation Indexing System
Because the city is an important basic unit of national economic development, the introduction of the various energy-saving emission reduction policies should be formulated in the national energy-saving emission reduction policy guidance.The representation of national energy-saving emission reduction policy is the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction by State Council.Therefore, this paper will design the evaluation indexing system with the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction by State Council.Specific design ideas as shown in Figure 2.
Step 1: To analysis the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.It's a wide range is very wide in a Integrated view, involving energy-saving emission reduction targets, fiscal support, the adjustment of industrial structure, many aspects of the development of circular economy.The whole analysis process in addition to the adjustment of industrial structure, vigorously develop the circular economy, has obvious classification features, such as strengthen energy-saving emission reduction management, based on its content presents production and life Step 4: To arrange all indicators, the evaluation indexes are classified into three categories, and make a large class of policy with three dimensions.
Step 2: according to each kind of specific work content, carries on the research analysis, summed up the index evaluation of each kind of specific work content.
Step 3: To determine the dimensions of each indicator, according to the content and the meaning of each index, starting from the definition of three dimensions.
Step  saving energy and reducing class row, covering the implementation of key projects, strengthening of industrial energy-saving emission reduction, etc.This paper summarized the whole content, ultimately determine energysaving emission reduction policies corresponding city into seven categories, specifically: the adjustment of industrial structure, production and life of energy-saving emission reduction, development of circular economy, development and application of new technology, economic support, market mechanism is established and the whole society to participate in action.
Step 2: Research and analysis each kind of specific work contents, Sum up the index evaluation of each kind of specific work content.To adjust the industrial structure as an example, through the study of China's energysaving emission reduction program of work plan on the adjustment and optimization of industrial structure in terms of content, such as: sort out the effect of high energy consumption, high emission industries excessive growth, adjusting the energy structure, and the details of the sort merge, finally get the evaluation index and its comprehensive coverage of the content of the content, in particular: advanced technology, traditional energy development, the development of emerging industries, strict control of service industry in new projects, the development of renewable energy, development, backward production capacity, to establish the responsibility system of the project out of a total of 8 indexes.
Step 3: The research content and the meaning of each index, to determine the dimensions of each indicator.The industrial structure adjustment indexes-for example, the advanced technology of index is an indicator on the expansion of production capacity, reduce energy consumption and reduce emissions.The introduction of advanced technology leads to enhanced productivity and it promotes economic growth.From the general situation which belongs to the economic growth dimension.Strict control of new projects is a pointer to the high energy consumption, high emission projects.Whether or not bring much economic benefits, always calls for strict examination and approval.So the nature of such indicator belongs to the structure adjustment dimension according to its essence.
Step 4: Finishing all the indicators, the evaluation index to each kind of policy to economic growth, structural adjustment, innovation and development of the three dimensions, and finally finishing the formation of the city's energy-saving emission reduction policy evaluation index system.

Design of the Evaluation Indexing System
According to the idea of constructing the evaluation index is introduced, this paper constructs the seven categories, three-dimensional city energy-saving emission reduction policy evaluation index system, a total of 61 items, the following are introduced in detail to each kind of policy.
1) Policies targeted on industrial structural adjustment: Policies targeted on industrial structural adjustment focus on adoption of new technology, improving effi-cient resource consumption in production to achieve energy saving and pollution reduction and promote transformation in economic growth.They include those that control expansion of industry with high energy consumption and high prolusion, eliminate outdated industrial capacity and those related to adjustment of energy structure etc. in the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.These 8 industrial structural adjustment policies fall on all three dimensions.They are listed in Table 1.
2) Manufacturing operation and consumer activity indicators: Indicators in the area of manufacturing operations and consumer activities cover those in manufacturing, agriculture, construction, transportation.These are the major areas to achieve goals in energy conservation and emission reduction and thus have more related policies, according to the Energy Saving and Emission Reduction issued by State Council.In this research we have the elimination of old agricultural implements, organic agriculture development, etc, altogether 17 indicators through 3 dimensions that described in Table 2.
3) Indicators in cyclic economic growth: Indicators for cyclic economy refers to those polices that realize economy growth through utilization of sustainable resources in manufacturing, consumption and resource investment.According to the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council, comprehensive indicators include implementation of major cyclic economic projects,

Service industry development
Promote faster development of the service sector, increase its share in the economy.

Infrastructure Adjustment
Elimination of outdated production capacity Establish procedure to retire outdated production capacity.

Industrial structural adjustment
Innovation Development

Implement responsibility system for projects
Implement efficient project responsibility system including auditing, confirmation and approval, and registration system.

Energy saving and emission reduction in major industry
Advance Energy saving and emission reduction in major industry such as power, coal, steel etc.

Transportation equipment management
Expansion in usage of energy consumption labeling in motor vehicle.Adopt the fourth and the fifth phase Automobile emission standard.

Biogas utilization
Biogas utilization in large and medium scale.Enhancement in operation and maintenance services.
environmental pollution control Control the area pollution in agriculture.Implement clean countryside project.

Energy saving and emission reduction in business services
Energy saving and emission reduction practice in business services, renovate energy saving equipment.

Pollution control in town and city
Urban pollutant treatment facilities and supporting pipe network construction.Strengthen the focus on the regional integrated pollution control.

Infrastructure Adjustment
Air pollution control Atmospheric pollution remediation focus on region.
Green building planning Establish Green building implementation plan.Enhance monitoring system on public buildings.

New energy saving building material
Promote building-integrated renewable energy source and innovative energy-saving construction material.
Urban lighting system management Implement Urban lighting system management.Reducing overuse of decorative lighting and over-lighting.

Construct comprehensive transportation system
Construct comprehensive transportation system and structure.Develop urban public transportation system and urban rail traffic system.

Build low carbon emission transportation system
Build pilot low carbon emission transportation system.

Energy saving campaign in consumer products
Promote application of highly efficient, energy-conserving lighting product.Incentive on environment friendly vehicles.

Create showcase Implementation
Create showcase implementation of energy efficient building.

Regulations on Energy Conservation of Public Institutions
Establish energy auditing on pubic institute, announcement on energy efficiency, quota control of energy consumption.clean manufacturing projects, comprehensive utilization of resources, recycled resource utilization,.There are 10 indicators in 3 dimensions described in Table 3.

4) New technology development and application indicators:
New technology development and application indicators are those policies targeting energy saving and emission reduction that take advantage of new and advanced technology to achieve economic growth as well as reducing energy consumption and emission.It includes policies to promote new technology adaption in industry, to promote technology innovation and to promote application of new technology and innovation in energy saving and emission reduction in the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.There are 5 indicators described in Ta-ble 4.
5) Financial support policy: Economic support policy is mainly refers to the city's energy-saving emission reduction policies, for the work of energy-saving emission reduction, involving financial, insurance industry in financing, resource products pricing, etc., According to the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council, research content of a comprehensive energy reduction program of work of the 9 indexes, economic support policy in three dimensions: the choice of energysaving products of financial subsidies, special funds to support, the government green procurement in Table 5.

6) Market Mechanism indicators:
The market mechanism index refers to the energysaving emission reduction areas, the development of en-

Renewable resource utilization
Promote renewable resource utilization.Improve post-consumer recycling system and testing standards for remanufactured product.

Mineral Resource utilization
Mineral Resource management and comprehensive utilization.

Production waste recycle
Comprehensive utilization of production waste, construction waste and waste slag, as well as crop straw.

Economic Growth
Waste-to-energy Waste processing monitoring, Enable facilities that burn in a furnace to heat, electricity.

Clean manufacturing process
Promote green process showcase in agriculture, manufacture, etc. Pollution and emission Control, reduce resource consumption.
Water management Establish red line over water resources development and utilization.Implement quota management of water consumption for water.Infrastructure Adjustment Non-traditional water resource utilization Promote the usage non-traditional water resource such as recycled water, mine water, seawater.Build pilot projects for seawater desalination and integrated application.

Cleaner Production Plan
Implement cleaner production execution plan.Establish and improve evaluation system for cleaner production.

Cleaner Production Audit
Publish cleaner production audit report.Publish list of enterprises that are required to pass mandatory cleaner production audit.

Recycling system
Establish and improve integrated Recycling system-collection station for recyclables for urban community, villages, sorting center and market place for recycled resources.

Circular Economy Development Innovation Development trash classification recycling
Improve urban trash recycling system.Improve trash classification recycling bylaws.airtight transportation and centralized processing.The whole society to participate in the action class index mainly refers to the city in the whole society to par- Promote government green purchase.Improve system of mandatory and preferred purchase list.
Resource products pricing Establish price of resources scientifically.Promote tiered prices for household consumption of electricity and water.
Sewage treatment fee set Establish all the sewage disposal and treatment fee policy, reform of waste disposal charges, increased collection efforts.

Energy-saving emission reduction tax concessions
The implementation of energy-saving emission reduction of income tax, value-added tax and other preferential policies.

Import and export tax incentives
To curb high energy consumption, high emission products export.
To increase imports of manufacturing large-scale environmental protection.

Investment credit support
Credit management mode to develop energy-saving emission reduction projects.

Financial support policy Innovation Development
The financial industry regulatory Environmental illegal information into the financial information disclosure system, Construction Bank green rating system, the green credit effect tube financial enterprise management hook.

The establishment of energy management contract
Establishment of contract energy management projects energy audit and trading system, to cultivate the third party audit assessment agencies.

Provide professional services
Large energy-using units build professional energy Service Corporation.Support all kinds of financing guarantee institutions to provide risk sharing service.

A pilot emissions trading
The main pollutant emission trading pilot compensation for the use and, the establishment of emissions trading market.ticipate in energy-saving emission reduction work in the strength and breadth, whether the policy provisions before releasing is the focus of this study, according to the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council, This paper chooses energy-saving emission reduction special action, the theme of propaganda etc, altogether 4 indicators in Table 7.

Conclusions
This article constructed 3-dimentional energy conservation and emission reduction evaluation system that covers economic growth, infrastructure adjustment and innovation.From the city's perspective, it puts the policies in 7 categories based on the characteristic of the current economic climate and the national strategic plan in en- The whole society to participate in actions.And this paper established the index system of city energy-saving emission reduction policy evaluation, altogether 61 indicators.
There are deficiencies in this paper: because preevaluation and post-evaluation are different, post-evaluation is constructed by effect of policy implementation index and evaluated by result data.But pre-evaluation index system should reveal the authoritative, the operational policy, comprehensive, systematic, objective and rational of policy.When the index system of city energysaving emission reduction policies was built, we based on the 11th & 12th Five-Year Plan for Energy Saving and Emission Reduction issued by the State Council, but it isn't the whole.The range is narrow, and it should have some omissive aspects.
In this paper, the city energy-saving emission reduction policy index data should be assigned through various policies frequency, issued department authority level, city policy degree of subdivision, short and long term policy supporting of several typical cities.This needs to find the city in accordance with the index system of the corresponding policies, and summarize and classify.This is a systematic analysis and comparison process, and it will be further expanded in the follow-up study.

Figure 2 .
Figure 2. Design ideas of evaluation indexing system.
Source: The 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.The 11th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.
Source: The 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.The 11th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.
Source: The 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.The 11th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.
Source: The 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.The 11th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.
Development Carbon emissions trading pilot Carry out carbon emissions trading pilot, promote the construction of carbon emission right trade market.Source: The 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.The 11th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.

Table 7 . The whole society to participate in actions.
Through a typical demonstration, special events, exhibitions, job creation, rationalization proposals and other forms, mobilize the whole society to participate in energy-saving emission reduction.It have 10 energy-saving emission reduction special action such as family and community, youth, enterprises, schools, barracks, rural, government agencies, technology, science and the media.:The 12th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.The 11th Five-Year Plan for Energy Saving and Emission Reduction issued by State Council.ergysaving and emission reduction: Industrial structural adjustment; Manufacturing operation and consumer activity; Cyclic economic growth; Those that are for new technology development and application; Financial support policy; Those that establish a market mechanism; Source