2024年4月15日  欧盟能源总司欧盟委员会通过新的《欧洲太阳能宪章》支持欧洲光伏制造业

欧盟委员会今天正在加紧努力，通过《欧洲太阳能宪章》支持欧洲的太阳能行业。今天，由欧盟能源专员卡德里·西姆森（Kadri Simson）代表的欧盟委员会、来自23个欧盟国家的能源部长和行业代表在非正式能源理事会会议期间签署了该宪章，该宪章规定了为支持欧盟光伏行业而采取的一系列自愿行动。

卡德里·西姆森专员在签字仪式后发表讲话说

“太阳能光伏制造业是实现我们的能源、气候和竞争力目标的关键。我们必须确保太阳能产业在欧洲未来以可再生能源为中心的能源结构中保持强劲。《欧洲太阳能宪章》将欧盟委员会、国家当局和行业聚集在一起，促进合作并为欧洲制造的太阳能电池板生产提供支持。

《宪章》签署方承诺支持欧洲光伏制造业的竞争力，并促进为符合高可持续性和弹性标准的高质量产品创造市场，同时充分尊重欧盟的气候和能源目标。《宪章》概述了在这方面可以帮助的一系列要素，包括尽早实施《净零工业法》中关于在可再生能源拍卖、公共采购或其他相关支持计划中使用非价格标准的相关规定。

《欧洲太阳能宪章》标志着欧盟委员会支持欧洲太阳能电池板制造的最新一步。此前的措施包括《净零工业法案》（Net-Zero Industry Act）提案，该法案现已由共同立法者临时商定，以及建立欧洲太阳能光伏产业联盟（European Solar Photovoltaic Industry Alliance）。这将有助于确保绿色转型和欧洲的工业目标齐头并进，加速可再生能源的部署，同时提高该行业的竞争力并创造绿色就业机会。

背景

更快、更广泛地部署可再生能源，尤其是太阳能，对于实现欧盟 2030 年可再生能源至少占 42.5% 的目标（到 2030 年达到 45%）和 2050 年气候中和目标至关重要。

太阳能，尤其是光伏发电的部署，目前是欧盟增长最快的可再生能源领域，在过去 3 年中，年装机量创下历史新高（2021 年约为 28 吉瓦，2022 年约为 41 吉瓦，2023 年为 56 吉瓦）。

然而，欧洲对太阳能组件的大部分需求都来自进口。目前，进口到欧盟的太阳能电池板中有97%来自中国。

欧洲太阳能宪章

太阳能，特别是光伏（PV），是目前欧盟增长最快的可再生能源。去年，欧盟安装了56吉瓦的太阳能光伏，其中三分之二安装在屋顶上，为消费者赋能，保护他们免受高电价的影响，并减少土地使用。2022 年和 2023 年的装置总共节省了相当于 150 亿立方米的俄罗斯天然气进口，降低了欧盟天然气供应中断的风险。此外，该部门提供了约65万个工作岗位，其中90%在部署方面，预计到2030年将增加到约100万个。

要实现欧盟2030年可再生能源至少占42.5%的目标，并力争达到45%，就需要进一步加快可再生能源的部署，包括太阳能。

欧洲对太阳能组件的大部分需求来自单一供应商中国的进口，这种集中给价值链的弹性带来了短期风险，由于依赖欧洲以外的供应商，太阳能电池板的价格稳定也带来了长期风险。因此，从各种来源获得负担得起的太阳能组件以及有弹性、可持续和有竞争力的欧洲太阳能价值链对于实现符合上述目标的部署率，同时提高供应安全性并降低供应链中断的风险是必要的。

然而，由于进口依赖和进口组件价格的大幅下跌，欧洲太阳能组件制造商最近面临着特殊的挑战。2023年，欧盟和全球太阳能光伏行业太阳能电池板价格从约0.20欧元/瓦暴跌至不到0.12欧元/瓦。这种不可持续的局面正在削弱现有欧洲生产的可行性，并危及过去两年宣布的对新制造工厂的计划投资。因此，一些欧洲公司要么减少业务，要么宣布将优先在其他国际市场（尤其是美国）生产，甚至宣布关闭。

在过去几年中，欧盟已采取措施加强对欧洲太阳能光伏制造业的支持，其中包括价值链中几个步骤中的几家具有全球竞争力的公司。

欧洲太阳能光伏产业联盟（ESIA）于2022年12月成立，旨在加强行业内的合作，为自己设定了价值链上30吉瓦产能的目标，这一目标被认为到2030年可以实现。ESIA管道包括20多个项目，包括几个多GW规模的项目。今年2月达成政治协议的《净零工业法案》（NZIA）旨在确保到2030年，欧盟的整体战略性净零技术制造能力（包括太阳能光伏）接近或达到至少40%的年度部署需求。该法案包括具体措施，例如通过在公共采购、可再生能源拍卖和其他支持计划中使用非价格标准来加速许可或市场准入便利化。

然而，短期内需要采取进一步的紧急行动来解决欧洲制造业的危机。所有相关利益攸关方——欧盟委员会、成员国和活跃在欧洲太阳能光伏价值链上的公司——都应确保绿色转型和欧洲工业目标齐头并进，加速可再生能源的部署，同时通过支持该行业的竞争力及其在欧盟创造的就业机会来增强欧盟的供应安全。

为此，《欧洲太阳能宪章》规定了欧盟委员会、成员国和太阳能光伏价值链代表应立即采取的行动，特别是批发、分销和制造部分，以确保完全遵守欧盟竞争法和国家援助规则。

以下签署的成员国和太阳能行业代表分别承诺优先实施以下行动：

促进欧洲高质量可持续太阳能光伏产品的弹性供应，包括：

在可再生能源拍卖或其他相关支持计划的框架内，除价格标准外，还通过应用雄心勃勃的非价格标准，包括弹性、可持续性、负责任的商业行为、“交付能力”、创新和网络安全标准，快速尽早实施相关的 NZIA 条款。

在太阳能产品公共采购的框架内：除价格标准外，还通过应用雄心勃勃的弹性、可持续性、社会、“交付能力”、创新或网络安全标准，迅速及早实施NZIA和《建筑物能源性能指令》中的相关规定;确保《外国补贴条例》的有关规定得到全面落实。

促进创新形式的太阳能部署，如农业光伏、漂浮太阳能、基础设施一体化光伏、车载一体化光伏或建筑一体化光伏，特别关注创新商业模式，如建筑光伏一体化的交钥匙工程，包括通过消除可能的监管和许可障碍，以及调整现有的公共支持计划或制定具体的公共支持计划。

为光伏产品的制造设施和额外投资创造有利的框架条件，以支持实现新西兰制造业基准，包括通过快速尽早实施新西兰知识产权局关于许可和净零加速领域的相关规定，提高制造技能的可用性，以及在整个价值链中的参与，以提高回收材料的可用性。

整个欧盟太阳能光伏价值链对持续创新、技术卓越、负责任的商业行为、网络安全、可持续性、供应链多元化、社会融合的共同承诺。

考虑利用所有可用的欧盟融资机会以及国家援助临时危机和过渡框架（TCTF）下的灵活性，为太阳能供应链的新投资提供支持。

参与欧洲太阳能产业联盟下属的成员国工作组，交流应用非价格标准的最佳做法，为行业和战略项目提供支持，以及促进太阳能部署的创新形式

因此，将批发商、分销商和安装商等相关市场参与者的产品组合纳入其中，并考虑到提高欧盟的竞争力和供应多样化，将与欧盟的制造能力相称的太阳能光伏产品纳入高弹性、可持续性和负责任的商业行为标准。这包括定制和创新的太阳能光伏产品以及用于创新部署形式的产品（如建筑一体化光伏、农业三伏、漂浮太阳能、基础设施一体化光伏或车载一体化光伏），为这些产品的关键质量和来源提供特定的可见性，并逐步增加其数量。

根据本宪章中通过的公共和私人承诺，保持并在可能的情况下扩大当前的生产能力，以满足对其产品的预期增长需求。

就太阳能光伏产品承购商而言，应将弹性、可持续性、负责任的商业行为、“交付能力”、创新和网络安全考虑纳入其战略，包括通过与制造商的合作。

欧盟委员会打算：

进一步促进欧盟在恢复和复原基金、结构基金、创新基金、现代化基金和欧洲地平线计划下为太阳能光伏制造项目获得欧盟资金，包括通过欧洲战略技术平台（STEP）。创新基金选择了总计4亿欧元的太阳能光伏制造项目，并在2023年呼吁提供14亿欧元用于清洁技术制造，包括太阳能光伏。

与欧洲投资银行合作，加强其对太阳能制造价值链投资的支持，包括通过InvestEU。

支持成员国在可再生能源拍卖、公共采购中纳入透明、非歧视和客观的非价格标准，并促进太阳能部署的创新形式，包括通过建议、指导和适当论坛的结构化对话，包括公共采购可持续太阳能光伏公共买家社区。

通过欧洲联合论坛与成员国合作，探索建立欧洲共同利益重要项目（IPCEI）的可能性，以支持创新及其在太阳能光伏制造价值链中的首次工业部署。

鉴于欧洲太阳能光伏产业联盟目标的实现，继续为其提供支持，并直接与成员国当局在专门工作组中合作，分享需求侧措施的最佳实践，并为该行业和战略项目提供支持。

继续与第三国合作，通过现有和未来的伙伴关系、对话和贸易协定以及论坛，增强供应链的弹性和多样化。

与成员国和社会伙伴合作，通过太阳能学院和可再生能源技能伙伴关系等方式，促进扩大欧盟太阳能部门的技能可用性，包括制造业。

为太阳能光伏产品提出前瞻性的生态设计和能源标签法规，以在稳健方法的基础上为该行业建立适当的环境和能源绩效标准。

通过支持成员国迅速实施修订后的《可再生能源指令》和实施《电网行动计划》，促进部署的加速。

评估行业或其他独立来源提出的涉嫌不公平做法的所有证据。

所有签署方都承诺监测该行业的未来发展，并为太阳能行业的公平和竞争国际环境做出贡献。

在《宪章》签署一年后，委员会将审查已通过的承诺的执行情况。

【以上中文为自动翻译，谨慎参考使用，以下面英文为准】

NEWS ANNOUNCEMENT15 April 2024Directorate-General for Energy2 min read

Commission supports European photovoltaic manufacturing sector with new European Solar Charter

The Commission is today stepping up its efforts to support the solar sector in Europe through the European Solar Charter. Signed today in the margins of the informal Energy Council meeting by the Commission – represented by EU Commissioner for Energy Kadri Simson - energy ministers from 23 EU countries and industry representatives, the charter sets out a series of voluntary actions to be undertaken to support the EU photovoltaic sector.

Speaking after the signature ceremony, Commissioner Kadri Simson said

'The solar photovoltaic manufacturing sector is key for achieving our energy, climate and competitiveness goals. We must ensure the solar industry remains strong for Europe’s future, renewables-centred energy mix. The European Solar Charter brings together the Commission, national authorities and the industry, fostering cooperation and bringing support to the production of solar panels made in Europe.'

The signatories of the Charter commit to supporting the competitiveness of the European PV manufacturing industry and promoting the creation of a market for high-quality products meeting high sustainability and resilience criteria, in full respect of the EU’s climate and energy objectives. The Charter outlines a range of elements which can help in this regard, including the early implementation of relevant provisions in the Net-Zero Industry Act on the use of non-price criteria in renewable energy auctions, public procurement or other relevant support schemes.

The European Solar Charter marks the latest step in the Commission’s actions to support solar panel manufacturing in Europe. Previous measures include, amongst others, a proposal for a Net-Zero Industry Act, which is now provisionally agreed by the co-legislators, and the establishment of the European Solar Photovoltaic Industry Alliance. It will help ensure that the green transition and Europe’s industrial objectives go hand in hand, accelerating the deployment of renewables, while at the same time enhancing the competitiveness of the sector and the creation of green jobs.

Background

Faster and broader deployment of renewable energy, and especially solar energy, is indispensable for achieving the 2030 EU target of at least 42.5% renewable energy by 2030, with the aspiration to reach 45%, and the 2050 climate neutrality objective.

Solar energy, and in particular the deployment of photovoltaics, is currently the fastest growing renewable energy sector in the EU, leading to record numbers of annual installations in the last 3 years (around 28 GW in 2021, 41 GW in 2022 and 56 GW in 2023).

However, the bulk of the demand for solar modules in Europe is covered by imports. Currently, 97% of the solar panels imported into the EU come from China.

European Solar Charter

Solar energy, in particular photovoltaics (PV), is currently the fastest growing renewable energy source in the EU. Last year, 56 GW of solar PV were installed in the EU, two thirds of it on rooftops, empowering consumers and protecting them from high electricity prices and reducing land use. The installations in 2022 and 2023 saved the equivalent of 15 billion cubic meters of Russian gas imports in total, mitigating the risk of disruption of gas supplies to the Union. In addition, the sector provides around 650 000 jobs, 90% of these on the deployment side, and is projected to increase until around 1 000 000 by 2030.

Achieving the 2030 EU target of at least 42.5% renewable energy by 2030, with an ambition to reach 45%, will require further acceleration in the deployment of renewable energy, including solar energy.

The bulk of the demand for solar modules in Europe is covered by imports from a single supplier, China, a concentration that creates short-term risks for the resilience of the value chain and long-term risks for price stability for solar panels due to dependencies on suppliers outside of Europe. Access to affordable solar modules from a diversity of sources as well as a resilient, sustainable and competitive European solar value chain are therefore necessary to achieve a deployment rate in line with the above targets while enhancing security of supply and mitigating the risk of supply chain disruptions.

However, the European solar module manufacturers have faced recently a particular challenge due to the combination of import dependency and a sharp drop in the prices of imported panels. In 2023, the solar photovoltaic sector in the EU and globally saw the prices of the panels plummet from ca. 0.20 EUR/W to less than 0.12 EUR/W. This unsustainable situation is weakening the viability of existing European production and jeopardises planned investments for new manufacturing plants announced over the last 2 years. As a consequence, some European companies have either reduced their operations, announced that they would prioritise production in other international markets, in particular the U.S., or even announced their closure.

Over the last years, the EU has taken initiatives to strengthen its support to the European solar PV manufacturing sector, which includes several globally competitive companies in several steps of the value chain.

The European Solar PV Industry Alliance (ESIA), launched in December 2022 to reinforce the cooperation within industry, set itself the target of 30 GW of production capacity along the value chain, an objective considered achievable by 2030. The ESIA pipeline includes more than 20 projects, including several at multi-GW scale. The Net-Zero Industry Act (NZIA), on which a political agreement was reached in February, aims to ensure that the Union’s overall strategic net-zero technologies manufacturing capacity, including solar PV, approaches or reaches at least 40% of the annual deployment needs by 2030. The act includes concrete measures, such as accelerated permitting or market access facilitation through the use of non-price criteria in public procurement, renewable energy auctions and other support schemes.

However, further urgent action is needed in the short term to address the crisis in the European manufacturing industry. All relevant stakeholders – the Commission, the Member States and the companies active along the European solar PV value chain - should ensure that the green transition and the European industrial objectives go hand in hand, accelerating the deployment of renewables while at the same time enhancing the EU’s security of supply by supporting the competitiveness of the sector and the jobs it creates in the EU.

To this end, the European Solar Charter sets out immediate actions to be taken by the Commission, Member States and the representatives of the solar PV value chain, in particular 2 wholesale, distribution and manufacturing parts, to be implemented ensuring full compliance with EU competition law and state aid rules.

The undersigning Member States and solar industry representatives, respectively COMMIT to implementing as a matter of priority the following actions:

Promote resilient supply of high-quality sustainable solar PV products in Europe, including through:

In the framework of renewable energy auctions or other relevant support schemes, rapid early implementation of the relevant NZIA provisions through the application of, in addition to price criteria, ambitious non-price criteria, including resilience, sustainability, responsible business conduct, ‘ability to deliver”, innovation and cybersecurity criteria.

In the framework of public procurement of solar energy products: rapid early implementation of the relevant provisions in the NZIA and in the Energy Performance of Buildings Directive through the application of, in addition to price criteria, ambitious resilience, sustainability, social, ‘ability to deliver”, innovation or cybersecurity criteria; ensure the relevant provisions in the Foreign Subsidies Regulation are fully implemented.

The promotion of innovative forms of solar energy deployment, such as agri-PV, floating solar, infrastructure-integrated PV, vehicle-integrated PV or building-integrated PV with a specific focus on innovative business models such as turnkey projects for PV integration in buildings, including through the removal of possible regulatory and permitting barriers as well as the adaptation of existing public support schemes or the creation of specific public support schemes.

Create favourable framework conditions for manufacturing facilities of PV products and for additional investments, with a view to supporting the achievement of the manufacturing benchmark in the NZIA, including through rapid early implementation of relevant NZIA provisions on permitting and net-zero acceleration areas, improved availability of manufacturing skills and engagement across the value chain to improve the availability of recycled materials.

A joint commitment across the EU solar PV value chain to continuous innovation, technological excellence, responsible business conduct, cybersecurity, sustainability, diversification of supply chains, social integration.

Consider using all available EU funding opportunities as well as flexibilities under the State aid Temporary Crisis and Transition Framework (TCTF) to provide support for new investments in the solar energy supply chain.

Engage in the Member States Task Force under the European Solar Industry Alliance to exchange best practices on the application of non-price criteria, provide support to the industry and to strategic projects, and on the promotion of innovative forms of solar energy deployment

Include therefore in the portfolios of the relevant market players, such as wholesalers, distributors and installers and in view of improving the competitiveness of the Union and diversification of supplies, solar PV products commensurate to the EU’s manufacturing capacity meeting high resilience, sustainability and responsible business conduct criteria. This includes custom-made and innovative solar PV products as well as products for innovative forms of deployment (such as building-integrated PV, agri- 3 PV, floating solar, infrastructure-integrated PV or vehicle-integrated PV), provide specific visibility to key qualities and origin of these products and gradually increase their volume.

Maintain and, where possible, expand the current production capacity, in line with expected growing demand for their products, based on the public and private commitments adopted in this Charter.

In the case of solar PV products offtakers, incorporate resilience, sustainability, responsible business conduct, ‘ability to deliver”, innovation and cybersecurity considerations in their strategies, including through cooperation with manufacturers.

The European Commission INTENDS to:

Further facilitate access to EU funding for solar PV manufacturing projects under the Recovery and Resilience Facility, structural funds, the Innovation Fund, the Modernisation Fund, and Horizon Europe, including through the Strategic Technologies European Platform (STEP). The Innovation Fund has selected solar PV manufacturing projects for a total of €400 million and made €1.4 billion available in its 2023 call for clean tech manufacturing, including solar PV.

Work with the European Investment Bank to reinforce its support to investments in the solar manufacturing value chain, including through InvestEU.

Support Member Statesin the inclusion of transparent, non-discriminatory and objective non-price criteria in renewable energy auctions, in public procurement as well as the promotion of innovative forms of solar energy deployment, including through recommendations, guidance, and the structured dialogue in the appropriate fora, including the Community of Public Buyers for Sustainable Solar PV for public procurement.

Explore, in cooperation with Member States through the Joint European Forum the possibility of an Important Project of Common European Interest (IPCEI) to support innovations and their first industrial deployment in the solar PV manufacturing value chain.

Continue providing support to the European Solar PV Industry Alliance in view of the achievement of its objectives, and directly engage with Member State authorities in the dedicated taskforce to share best practices on demand-side measures and support to the sector and to strategic projects.

Continue to cooperate with third countries to enhance the resilience and diversification of supply chains via existing and future partnerships, dialogues and trade agreements and fora.

In collaboration with Member States and social partners, facilitate the expansion of skills availability for the EU solar sector, including for manufacturing, through inter alia the Solar Academy and the Renewable Energy Skills Partnership.

Propose forward-looking Ecodesign and Energy Labelling regulations for solar PV products to establish, on the basis of a robust methodology, appropriate environmental and energy performance standards for the sector.

Promote the acceleration of deployment by supporting Member States in the swift implementation of the revised Renewable Energy Directive and by implementing the Grids Action Plan.

Assess all evidence of alleged unfair practices put forward by the industry or from other independent sources.

All signatories COMMIT to monitor future developments in the sector and contribute to a fair and competitive international environment in the solar sector.

图片

"Check against delivery"

Ladies and Gentlemen,

The growth of solar energy over the past two years has been extraordinary.

It has become the centre piece of the energy transition.

Because it's a reliable and fast-growing source in our quest to electrify our energy system.

Yet, this bright picture is overshadowed by what is happening to the EU PV manufacturing industry.

We have all invested in the renaissance of a European solar manufacturing sector, together, since the launch of the Solar Strategy and the Solar Alliance in 2022. 

But this effort can be made futile if the Single Market is flooded by cheap imports coming from markets where overcapacity and massive state support exist.

We will not accept that.

We need to think about building a resilient solar PV sector.

This requires thinking long-term, and thinking about the bigger picture of the EU energy system at large and our energy autonomy.

We have to do this in a balanced, proportionate way, keeping markets open, deployment affordable and supporting EU manufacturers.

We have already adopted a number of measures, from the Net-Zero Industry Act to the application of the Foreign Subsidies Regulation. The ecodesign requirements for solar PVs will follow shortly.

And I believe that with today's Charter, we have a good political framing.

The Charter brings together all key stakeholders: the Commission, Member States, industrial off-takers, wholesalers, manufacturers.

We all want a thriving EU solar manufacturing industry.

We all want strong value chains across the EU.

And the Charter gives us the process and the political push to make that happen.

The Commission will coordinate and help all players involved to implement the Charter.

We will work with Member States to ensure that best practices are identified and exchanged. And if they want to make even stronger commitments towards producers of European panels we will support them.

We will especially help them in their efforts to implement the Net-Zero Industry Act as soon as possible, use non-price criteria in auctions, and support innovative forms of PV deployment.

But we're also counting on industry.

We need large buyers of PV panels, project developers, wholesalers, manufacturers, and promoters, to all work in the same direction.

It's particularly important for large off-takers, the developers of big PV projects, to engage in this process – this is the exact purpose of the European Solar PV Industry Alliance.

We will continue our structured dialogue with the sector.

Dear colleagues,

Let me end by reiterating how much policy support to the EU PV manufacturing sector and its value chain is matched by concrete measures.

The EU is behind significant investments in solar sector projects.

There is EUR 400 million in grants from the Innovation Fund and counting.

Add to that the more than EUR 500 million financing decision from the EIB.

And let there be no doubt:

EU funds will continue to be available for bridging the funding gap for solar manufacturing projects in the EU.

We are in close dialogue with the EIB – Vice-President Östros was at the Informal Council today – on ways to expand support for clean technologies' manufacturing.

In this spirit, the Charter sends a clear message. The EU, with all actors, will continue working for a strong European solar supply chain, a booming solar sector, and a more resilient and secure energy system.

Thank you for your attention.