National Development and Reform Commission and National Energy Administration on promotingGuiding Opinions on the Consumption and Regulation of New EnergyNational Development and Reform Commission Energy Document No. 1360 [2025]Development and Reform Commissions and Energy Bureaus of all provinces, autonomous regions, municipalities directly under the Central Government, and Xinjiang Production and Construction Corps; Beijing Municipal Commission of Urban Management; Tianjin Municipal Bureau of Industry and Information Technology; Liaoning Provincial Department of Industry and Information Technology; Shanghai Municipal Commission of Economy and Information Technology; Chongqing Municipal Commission of Economy and Information Technology; Gansu Provincial Department of Industry and Information Technology; all dispatched agencies of the National Energy Administration; and relevant central enterprises:In order to fully implement the spirit of the 20th National Congress of the Communist Party of China and its subsequent plenary sessions, implement the Energy Law of the People's Republic of China, improve policies and measures for the consumption and regulation of new energy sources, and provide strong support for the construction of a new energy system and a new power system, the following opinions are hereby proposed.Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, and thoroughly implementing the new energy security strategy of "four revolutions and one cooperation," we will adhere to a systematic approach, differentiated policies, diversified consumption, market guidance, security as the foundation, and innovation-driven development. We will improve new energy consumption measures, optimize system regulation, and promote high-quality consumption of new energy while simultaneously developing it on a large scale. By 2030, a coordinated and efficient multi-level new energy consumption regulation system will be basically established, continuously ensuring smooth grid connection, diversified utilization, and efficient operation of new energy. New electricity demand will be primarily met by new new energy power generation. The adaptability of the new power system will be significantly enhanced, the system regulation capacity will be greatly improved, the mechanism for promoting new energy consumption in the electricity market will be more sound, and inter-provincial and inter-regional new energy trading will be smoother, meeting the reasonable consumption needs of more than 200 million kilowatts of new energy added annually nationwide, and contributing to the achievement of the carbon peaking target. By 2035, a new power system adapted to a high proportion of new energy will be basically completed, the new energy consumption regulation system will be further improved, the national unified electricity market will play a fundamental role in the allocation of new energy resources, and new energy will be optimally allocated and efficiently consumed nationwide, supporting the achievement of the national independent contribution target.II. Categorized Guidance for New Energy Development and Consumption(I) Coordinating the external transmission and local consumption of new energy bases in deserts and wastelands. Fully implement the decisions and plans of the Party Central Committee on desertification control and the development and layout plan for new energy bases in deserts and wastelands, promoting both external transmission and local consumption of new energy from these bases. Focus on rationally allocating external transmission bases in desert, Gobi, wasteland, sandy areas, and salinized areas to improve the economic viability of these bases. Establish a system for fulfilling national strategic responsibilities at both the transmitting and receiving ends, strengthening the responsibility for new energy consumption at the receiving end. Promote large-scale local consumption of new energy from deserts and wastelands through integrated development of new energy, the gradient transfer of industries from the eastern region, and tapping the consumption potential of the western region.(ii) Optimize the integrated development and utilization of hydropower, wind power, and solar power bases. Relying on large-scale hydropower bases in Southwest China, and fully considering the regulatory characteristics of hydropower, optimize the allocation of new energy sources. For existing hydropower transmission channels with suitable conditions, rationally increase the allocation of new energy sources to improve the utilization level of these channels. In conjunction with the development of the Yaxia hydropower base, optimize and demonstrate the allocation, transmission, and utilization schemes for new energy sources.(III) Promote the standardized and orderly development and utilization of offshore wind power. Implement the requirements for high-quality development of the marine economy, scientifically plan the development of offshore wind power, continue to promote near-shore wind power development, and orderly promote the construction of deep-sea wind power bases. Optimize the offshore power transmission network in a coordinated manner, intensively plan submarine cable corridors and landing points, and achieve centralized power transmission from offshore wind power bases, with power mainly utilized in coastal areas.(iv) Promote the scientific and efficient development and consumption of centralized new energy sources within the province. Taking into account resource conditions and electricity consumption growth, and in accordance with the requirements for implementing the responsibility weight for renewable energy power consumption, scientifically plan the development of centralized new energy sources within the province, optimize the development structure, rationally control the construction pace, strengthen regulation capacity building, enhance the grid's carrying capacity, and ensure the efficient consumption of new energy sources. Conduct pilot surveys of new energy resources.(V) Actively expand the development and consumption space of distributed renewable energy. Fully explore the potential of distributed renewable energy resources and expand the development scenarios of distributed renewable energy. Enhance the self-regulation capability of distributed renewable energy and increase the proportion of self-generation and self-consumption. Revise the assessment standards for the grid connection carrying capacity of distributed renewable energy to release the open capacity of the public grid to accommodate distributed renewable energy.III. Vigorously promote the innovative development of new models and new business forms for new energy consumption.(vi) Innovate the integrated development model of new energy. Research and formulate policies and measures to promote the integrated development of new energy, support resource-rich areas such as deserts and wastelands to strengthen the synergy of the upstream and downstream industrial chains of new energy, and establish an integrated development industrial system. Improve the green electricity application level of new energy equipment manufacturing to achieve "greening through greening." Coordinate the layout of integrated industries for the production, storage, transportation, and utilization of green fuels such as green hydrogen, ammonia, and alcohols to create "flexible loads." Promote the construction of zero-carbon industrial parks.(vii) Promote the integrated development of new energy and industry. Actively promote the coordinated transfer of industries from the eastern region to the local consumption of new energy bases, and steadily and orderly promote the transfer of energy-intensive industries to western regions with clean energy advantages. Encourage traditional industries to innovate processes and improve load flexibility, and use more new energy in heat, heating, cooling, and power sectors. Support the integrated development of strategic emerging industries such as information technology, high-end equipment manufacturing, and new materials with new energy in regions rich in new energy resources. Strengthen the coordinated planning, layout, and optimized operation of new energy and computing facilities, and promote the green development of computing facilities.(viii) Support the development of new models for local consumption of renewable energy. Promote the healthy and sustainable development of new models for local consumption of renewable energy, such as integrated generation, grid, load and storage, direct green electricity connection, smart microgrids, and renewable energy access to incremental distribution networks. Support the local access of renewable energy and improve the green electricity consumption of industrial parks, buildings, export-oriented enterprises, and energy-intensive enterprises, as well as the power supply guarantee level in remote areas. Develop and improve supporting policies, management systems and technical standards according to different categories, strengthen overall coordination with power grid planning, clarify the safety, economic and social responsibility interfaces with the public power grid, enhance self-balancing and self-regulating capabilities, and exclude renewable energy curtailment from statistics.IV. Enhancing the adaptability of new power systems to new energy sources(ix) Accelerate the enhancement of system regulation capacity. Actively promote the construction of key reservoir power stations in river basins and the expansion and upgrading of hydropower capacity. Accelerate the construction of pumped storage power stations to fully leverage their multiple functions, including peak shaving and valley filling. Vigorously promote the construction of technologically advanced, safe, and efficient new energy storage systems, explore the potential for energy storage regulation in conjunction with new energy sources, and improve utilization levels. Appropriately plan for peak-shaving gas-fired power generation. Construct solar thermal power plants according to local conditions. Promote the transformation and upgrading of next-generation coal-fired power plants and drive the replacement of coal-fired self-owned power plants with new energy sources. Fully leverage the role of virtual power plants in aggregating load-side regulation resources and expand the large-scale application of vehicle-to-grid interaction.(x) Enhance the grid's capacity to accommodate new energy sources. Accelerate the construction of a new grid platform that integrates main grid, distribution, and microgrids to improve the grid's carrying capacity. Optimize the national power flow, further expand the scope of new energy resource allocation, and steadily increase the scale of inter-provincial and inter-regional power transmission channels. Make full use of inter-regional and inter-provincial regulation resources and the complementary characteristics of new energy output, rationally plan flexible and mutually supportive grid projects, and enhance mutual support capabilities. Strengthen the construction of the main grid structure to improve the grid connection and acceptance capacity of new energy sources. Vigorously promote the construction, transformation, and intelligent upgrading of the distribution network, and accelerate the creation of a new distribution system adapted to large-scale distributed new energy access. Promote the coordinated development of smart microgrids and the main grid according to local conditions.(XI) Optimize New Energy Dispatch Mode. Construct a new power dispatch system, further clarify the dispatch relationships and responsibilities of dispatching agencies, power grids at all levels, centralized new energy sources, and distributed new energy sources, strengthen the capabilities of municipal and county-level dispatching agencies, and comprehensively improve the observability, measurability, adjustability, controllability, and intelligent dispatch level. Explore cluster-based collaborative dispatch modes for new energy bases in desert areas, hydropower, wind power, and solar power bases, and offshore wind power bases, and accelerate the integrated output curve dispatch of new energy sources and on-site energy storage. Revise the power dispatch management system and strengthen power dispatch supervision.(xii) Strengthen the security governance of new power systems. Enhance the analysis of power grid security and stability during the planning stage of new energy bases and the management of power grid security and stability during the operation stage. Deepen the risk control of active distribution network operation and establish and improve the risk identification, monitoring and control system. Improve the grid-related security management system for new energy and new grid-connected entities, strengthen the full-cycle control of grid-related security performance and parameters, strictly implement grid-related performance evaluation procedures, standardize grid connection and operation management, and strengthen network security control.V. Improve the national unified electricity market system to promote the consumption of new energy sources.(XIII) Expand a multi-tiered market-based system for renewable energy consumption. Adapt to the fluctuating characteristics of renewable energy output, shorten medium- and long-term trading cycles, achieve flexible and continuous trading, promote multi-year power purchase agreements, and stabilize long-term consumption capacity. Fully leverage the functions of the spot market, strengthen its connection with demand-side response mechanisms, guide system regulation resources to actively participate in regulation, improve the mechanism for user-side participation in spot market trading, and stimulate the potential for flexible user-side regulation. Rationally set up power ancillary service trading varieties, improve the mechanism for transferring fees to the user side, and promote the stable operation of the system during the large-scale development of renewable energy. Solidify the "basic foundation" of inter-provincial renewable energy consumption through inter-provincial medium- and long-term transactions, and flexibly respond to short-term renewable energy consumption needs through inter-provincial spot transactions and inter-provincial mutual assistance transactions within the region, promoting normalized renewable energy power trading across power grid operating areas.(XIV) Improve the rules system to adapt to the participation of new energy in the electricity market. Promote the establishment of trading rules for the integrated model of new energy bases in desert, Gobi, and hydropower, wind power, and solar power to participate in the market; support new entities such as distributed new energy, energy storage, and virtual power plants to participate in the electricity market through aggregation and direct trading models; study and promote the participation of new energy entities and users in direct cross-provincial and cross-regional electricity market transactions; and promote the construction of market bidding methods that conform to the characteristics and distribution patterns of new energy power generation. Improve electricity market price limits and other mechanisms to give full play to the role of price signals in guiding the consumption of new energy. Actively promote the high-quality development of the green certificate market, advance the coordination of the "electricity-certificate-carbon" market, and scientifically reflect the environmental value of new energy.(XV) Innovate pricing mechanisms to promote the consumption of new energy. Establish and improve the pricing mechanism for cross-provincial and cross-regional new energy power transmission, and encourage the formation of overall transmission prices for various power sources in new energy transmission bases. Enhance the flexibility of cross-provincial and cross-regional transmission pricing mechanisms, and study relevant pricing mechanisms for offshore wind power transmission projects. Implement and improve pricing mechanisms to promote the local consumption of new energy. Improve and refine pricing mechanisms for capacity-based regulatory resources such as coal-fired power, pumped storage, and new energy storage. Accelerate the effective transmission of market price signals to end users, improve retail market pricing mechanisms that reflect time-of-use value differences, and study and establish a sound residential time-of-use pricing mechanism.VI. Strengthen the technological innovation support for new energy consumption(XVI) Breakthroughs in efficient power generation and utilization technologies for new energy sources. Strengthen research and development of efficient and low-cost photovoltaic and wind power technologies, and pilot the construction of ultra-large-capacity deep-sea wind turbine units. Accelerate the improvement of the accuracy of power prediction for new energy sources at different time scales, including ultra-short-term, short-term, and medium-to-long-term.(XVII) Tackling Key Technologies for Flexible Load Adjustment. Innovatively apply various technological approaches, including flow batteries, compressed air energy storage, and gravity energy storage, to accelerate breakthroughs in large-capacity, long-duration energy storage technologies. Promote the inclusion of variable-speed regulation capabilities in newly built pumped-storage power stations. Deepen the application of virtual power plant coordinated operation control technology and diversified trading technology, and expand the application of new flexible load adjustment technologies. Accelerate the pilot application and promotion of next-generation coal-fired power plants.(18) Strengthen power grid operation technology. Enhance research on efficient simulation and stable operation control technologies for power systems with high proportions of renewable energy and power electronic equipment. Pilot and test high-proportion ultra-high voltage flexible DC transmission, large-capacity high-voltage offshore flexible DC cable transmission technology, and multi-terminal DC islanding operation technology. Improve the stable operation technology level of power source aggregation and weak-sending-end systems in renewable energy bases. Promote grid-based control technology to improve the grid connection performance and active support capabilities of renewable energy. Accelerate the revision of renewable energy grid connection technical standards.(19) Upgrade intelligent control technology. Accelerate the application of advanced technologies such as artificial intelligence, big data, and cloud computing in the coordination of main grid, distribution grid, and microgrid. Promote the application of state sensing technology to enhance the grid's dynamic sensing capability of distributed resources. Accelerate the application of massive source-grid-load-storage resource aggregation control technology and improve the coordinated control technology of new energy bases.20) Optimize the management mechanism for renewable energy consumption. Strengthen the guiding role of planning, set different regional renewable energy utilization rate targets in the five-year power development plan, scientifically coordinate renewable energy development and consumption, and synergistically promote the planning and layout of renewable energy and the construction of supporting power grids and regulation capabilities. Improve renewable energy consumption assessment methods, and promote the gradual transformation of renewable energy consumption assessment from a single renewable energy utilization rate indicator to a comprehensive evaluation indicator system. Provincial energy authorities should scientifically carry out the formulation of annual renewable energy utilization rate targets and the outlook for the next three years in their respective regions, and clarify the annual renewable energy development and consumption plan. Based on the renewable energy utilization rate targets and the renewable energy power consumption responsibility weight targets, coordinate and determine the annual new development scale of grid-connected renewable energy (including distributed renewable energy). Implement the minimum proportion target requirements for renewable energy consumption, accelerate the establishment of a green certificate consumption mechanism that combines mandatory consumption and voluntary consumption, and further strengthen the responsibility for renewable energy power consumption.(XXI) Clarify the division of responsibilities. The National Development and Reform Commission and the National Energy Administration will coordinate and promote the integration and regulation of new energy sources, and guide provinces to optimize their new energy utilization targets and development scale. Provincial energy authorities are the main responsible entities for ensuring the integration of new energy sources in their respective regions, and will comprehensively organize and implement various integration measures to achieve integration targets. Power grid companies are the main responsible entities for ensuring the grid connection and regulation of new energy sources, and will continuously strengthen power grid construction and optimize system operation. Power generation companies will improve their reliable substitution capabilities for new energy sources and strengthen the construction of regulation resources. All types of operating entities will actively participate in power system interaction.(22) Strengthen monitoring, supervision, and target implementation. Optimize the statistical release of new energy utilization rates and improve the management methods for monitoring and statistics of new energy utilization rates as needed. Provincial energy authorities should establish a full-cycle monitoring and early warning mechanism for new energy from planning to construction to grid connection to consumption, promptly analyze the consumption of new energy in their regions, and scientifically assess the scale of new energy grid connection in regions where new energy utilization rates have declined significantly or where utilization targets have not been met, to avoid a sharp decline in new energy utilization rates. The National Energy Administration's dispatched agencies will conduct routine supervision of the implementation of new energy consumption and regulation policies and measures, and report major issues promptly.National Development and Reform CommissionNational Energy Administration
