“双碳”目标下光伏发电项目环评“重大变动”界定困境与对策研究

Research on the Challenges and Countermeasures in Defining “Major Changes” in Environmental Impact Assessments for Photovoltaic Power Generation Projects under the “Dual Carbon” Goals

摘要: 在“双碳”目标驱动下，我国光伏发电项目呈现规模化、复合化发展趋势，其生态环境影响日趋复杂。科学界定环评中的“重大变动”是协调能源发展与生态保护的关键。本文系统分析了当前光伏项目“重大变动”界定存在的突出问题，包括专项依据缺失、升压站变更参照受限、节点模糊与责任滞后等。针对这些问题，研究首次提出适用于光伏项目的“重大变动清单”框架，涵盖性质、规模、地点、生产工艺与环保措施五个维度，并明确以“并网发电时间”作为竣工关键节点，以强化全过程监管。研究成果可为完善光伏项目环评管理提供理论依据与实践参考，推动能源转型与生态保护协同发展。

Abstract: China’s photovoltaic power generation projects are developing in a scaled and diversified manner, driven by the dual carbon goals, with increasingly complex ecological and environmental impacts. It is crucial to scientifically define “significant changes” in environmental impact assessments in order to balance energy development and ecological conservation. This paper systematically analyses key issues in defining “significant changes” for current photovoltaic projects, including the absence of specialised guidelines, limited references for substation modifications, ambiguous criteria and delayed accountability. To address these challenges, the study introduces a pioneering “Major Change Checklist” framework tailored for PV projects. This framework encompasses five dimensions: nature, scale, location, production processes and environmental protection measures. It explicitly designates “grid-connected power generation time” as the critical completion milestone to strengthen full-process oversight. These findings lay the theoretical foundations and provide practical guidance for improving the management of PV project EIAs, thereby promoting the coordinated development of energy transitions and ecological conservation.