In the process of globalization，energy shortage，environment pollution and global warming and other issues have also gradually attracted the attention of the world，which has also led to a green industrial revolution with a low-carbon economy as the core.But the development of low-carbon economy in China is very slow，and facing many difficulties.Therefore，the research related low-carbon economy，will contribute to solving to the slow develop-ment of low-carbon economy in China.This paper tries to analyze the dilemma that China faces in developing low-carbon economy from two aspects：first of all，in the process of developing low-carbon economy，we will illustrate the game among the central government，local government and the enterprise from profit caused the contradiction and the loss of efficiency.And then from the perspective of empirical analysis，we analysis a positive causal relationship between annual energy consumption and economic growth；the policies of energy-saving and emission-reduction will lead to real GDP reduction，and then resulting the difficulties in low-carbon economic development.Finally，we draw the conclusion and discuss it further.