中国的能源转型

China’s Energy Transition

中华人民共和国国务院新闻办公室

The State Council Information Office of the People’s Republic of China

2024年8月

August 2024

目录

Contents

前言

Preface  

一、新时代中国能源转型之路

I. China’s Path of Energy Transition in the New Era

二、厚植能源绿色消费的底色

II. Promoting Green Energy Consumption

三、加快构建能源供给新体系

III. Moving Faster to Build a New Energy Supply System

四、大力发展能源新质生产力

IV. Developing New Quality Productive Forces in the Energy Sector

五、推进能源治理现代化

V. Modernizing Energy Governance

六、助力构建人类命运共同体

VI. Contributing to a Global Community of Shared Future

结束语

Conclusion

前言

Preface

能源是人类赖以生存和发展的重要物质基础，能源低碳发展关乎人类未来。工业革命以来，化石能源大规模开发利用有力推动了人类文明进步，但也产生资源枯竭、气候变化、地缘政治冲突等问题。加快能源转型发展，实现能源永续利用，持续增进民生福祉，为世界经济提供不竭动力，已成为各国共识。

Energy is essential to human survival and development, and the way we develop low-carbon energy will be of great significance to the future of humanity. Since the First Industrial Revolution, the extensive use of fossil fuels has propelled human progress, but has also caused major problems, such as resource depletion, climate change, and geopolitical tension. As a result, the international community widely recognizes the importance of transitioning to renewable energy sources and using energy in a sustainable way to promote people’s wellbeing and drive long-term economic growth.

新中国成立75年来，能源事业加快发展，中国已成为世界上最大的能源生产国和消费国。党的十八大以来，中国能源进入高质量发展新阶段。2014年，习近平总书记提出推动能源消费革命、供给革命、技术革命、体制革命和全方位加强国际合作的“四个革命、一个合作”能源安全新战略，为新时代能源发展指明了前进方向、提供了根本遵循。在能源安全新战略指引下，中国走出了一条符合国情、顺应全球发展大势、适应时代要求的能源转型之路。

Over the past 75 years since the founding of the People’s Republic of China in 1949, China has experienced rapid growth in its energy sector, and has emerged as the largest energy producer and consumer in the world. After the 18th National Congress of the Communist Party of China in 2012, China’s energy sector entered a stage of high-quality development. In 2014, President Xi Jinping proposed a new energy security strategy aimed at revolutionizing consumption, supply, technology, and institutions, while strengthening all-round international cooperation. This strategy has charted the course and laid out the fundamental principles for China’s energy development in the new era. Guided by this strategy, China is pursuing a path of energy transition that is suited to its actual conditions, follows the general trends of global development, and meets the changing needs of our times.

中国的能源转型，立足于高质量发展，加快构建清洁低碳、安全高效的新型能源体系，为经济社会发展提供坚强的能源保障，不断满足人民日益增长的美好生活需要。

Based on high-quality development, China’s energy transition aims to build a clean, low-carbon, safe and efficient energy system. This initiative will provide a strong guarantee for the country’s economic and social development and meet the people’s growing desire for a better life.

中国的能源转型，着眼于生态文明建设，加快形成节约高效、绿色普惠的能源消费新模式，协同推进降碳减污扩绿增长，推动实现人与自然和谐共生。

With a view to eco-environmental progress, China’s energy transition is gathering pace to develop a new model of energy consumption that is economical, efficient, green and inclusive. This will create synergies for cutting carbon emissions, reducing pollution, expanding green development, and stimulating economic growth, with the ultimate goal of building harmony between humanity and nature.

中国的能源转型，服务于构建人类命运共同体，持续深化绿色能源国际合作，积极做全球能源转型的推动者，携手各国共建可持续能源的未来。中国尊重发展中国家自主选择符合国情的转型路径，以公平、公正、有序方式推进能源转型。

Acting on the vision of a global community of shared future, China is committed to advancing its energy transition by strengthening international cooperation in green energy. As a strong advocate of global energy transition, China is prepared to collaborate with other countries to build a future of sustainable energy. China respects the energy transition path independently chosen by other developing countries based on their national conditions and advances its energy transition in an equitable, just and orderly fashion.

为全面介绍十年来中国能源转型取得的历史性成就，分享中国能源转型的实践做法，发布本白皮书。

The Chinese government is publishing this white paper to document China’s successful actions and historic achievements in energy transition over the past decade.

一、新时代中国能源转型之路

I. China’s Path of Energy Transition in the New Era

当今世界，新一轮科技革命和产业变革深入推进，绿色低碳、数智化、可持续发展成为时代主题。各国经济发展阶段、资源禀赋不同，如何统筹能源安全稳定供应和绿色低碳转型既是共同的目标，也是面临的难题。中国提出能源安全新战略，推动能源转型取得显著成效，回答了世界之问、时代之问，展现了中国之治、大国担当。

The world is currently witnessing a new revolution in science, technology and industry. Green and low-carbon development, digital and intelligent technology, and sustainability have become the overwhelming trends of our times. Despite differences in development stages and available resources, all countries share the goal and challenge of securing their energy supply and achieving a green and low-carbon transition. Guided by its new energy security strategy, China has made significant progress in its energy transition, contributing its solutions to a key global issue of our time, demonstrating its approach to governance, and fulfilling its responsibility as a major country.

（一）能源转型是必由之路

1. Energy Transition Is the Only Way Forward

能源的开发利用，是人与自然互动的重要方面。纵观人类社会发展史，人类文明的每一次重大进步，往往伴随着能源开发利用方式的变革、主体能源的更替。

The development and utilization of energy is an important aspect of the interaction between humanity and nature. When reviewing the history of human development, we see that every significant human progress is fundamentally tied to changes in energy extraction and utilization and shifts in primary energy sources.

经过长期发展，中国建立了煤、油、气、核、水、风、光等全面发展的能源供给体系，为经济社会持续快速发展提供澎湃动力。当前，中国开启全面建设社会主义现代化国家新征程，对能源高质量发展提出新要求。中国是世界上最大的发展中国家，但人均用能水平不高，工业化、城镇化尚未完成，未来一段时间能源需求仍将增长；产业结构偏重、能源结构偏煤，资源环境约束长期存在。应对这些困难挑战，根本要靠能源转型。

Over the years, China has established a comprehensive energy supply system encompassing coal, oil, gas, nuclear, hydro, wind, and photovoltaic (PV) energy, providing robust impetus for the fast and sustained development of the economy and society.

China’s drive towards all-round socialist modernization has brought about new requirements for high-quality energy development. Despite being the world’s largest developing country, China has comparatively low per-capita energy consumption. As the country has not yet completed its industrialization and urbanization, however, its energy demand is likely to continue growing. With an industrial structure dominated by heavy industry and an energy mix primarily based on coal, China will continue to face resource and environmental constraints in the long run. Energy transition is the fundamental solution to the above challenges.

中国的能源转型，注重加快转变能源发展方式、转换能源发展动力，推动主体能源从化石能源向非化石能源更替，这是破解资源环境约束、实现碳达峰碳中和目标的迫切需要；是抢抓新一轮科技和产业变革机遇，加快培育新质生产力的迫切需要；是推动形成绿色生产方式和生活方式，实现经济社会高质量发展的迫切需要；是主动担当大国责任、推动构建人类命运共同体的迫切需要。中国推进能源转型，不是别人让我们做，而是我们自己要做；也不是能不能做，而是必须做。

China’s energy transition focuses on transforming the model and drivers of energy development by achieving the substitution of primary energy sources from fossil fuels to non-fossil fuels. This transition is essential for the country to overcome resource and environmental constraints and achieve its peak carbon and carbon neutrality goals. It is vital for the country to seize the opportunities brought about by the latest round of revolutionary changes in science, technology and industry and foster new quality productive forces. It is crucial for the country to establish green ways of production and life and realize high-quality economic and social development. It is key for the country to fulfill its responsibility as a major country and contribute to a global community of shared future. For these reasons, China has taken proactive actions to advance its energy transition and will stay committed to this initiative as an imperative for a better future.

（二）坚定不移加快能源转型

2. Accelerating Energy Transition

中国顺应全球能源发展大势，坚定不移贯彻落实能源安全新战略，着眼于促进人与自然和谐共生、开创人类文明新形态，推动能源发展方式逐步从资源依赖型向创新驱动型转变，走出了一条符合中国国情、适应时代要求的能源转型之路。中国的能源转型，坚持以下理念原则：

China respects the global trend of energy development and firmly applies its new energy security strategy. To achieve harmony between humanity and nature, and advance human progress, China has been shifting from a resource-reliant model of energy development to one driven by innovation. The country has charted a path for energy transition that is tailored to its own realities and responsive to the needs of our times.

China’s energy transition abides by the following principles:

——坚持人民至上。能源与人民生活息息相关。中国坚持以人民为中心的发展思想，持续提升全社会能源普遍服务水平，为更好满足人民美好生活需要提供清洁可靠的用能保障，不断增强人民群众的获得感、幸福感、安全感。

– Putting the people first. Energy is inseparable from daily life. By upholding a people-centered development philosophy, China has improved its energy services throughout society to secure a reliable supply of clean energy and ensure that the people have a greater sense of gain, fulfillment and security.

——坚持绿色低碳。既要绿水青山，也要金山银山，能源转型是关键。坚持走生态优先、绿色低碳的发展道路，着力促进人与自然和谐共生，把能源转型作为经济社会发展重要目标。把节约能源资源放在首位，实施全面节约战略，充分用好一克煤、一滴油、一度电，不断提升能源利用效率。以绿色低碳为导向，大力实施可再生能源替代，加快构建以非化石能源为主体的能源供给体系。

– Pursuing green and low-carbon development. Energy transition is critical for balancing economic growth and eco-environmental protection. China adheres to green and low-carbon development that prioritizes eco-environmental protection and promotes harmony between humanity and nature. Energy transition is a vital objective for economic and social development in the country. China has made energy and resource conservation a top priority and employs a comprehensive conservation strategy while raising energy efficiency by making the best use of every bit of coal, oil and electricity. Guided by its green and low-carbon philosophy, China has taken vigorous measures to substitute renewables for fossil fuels and aims to create an energy supply system dominated by non-fossil fuels.

——坚持立足国情。能源的饭碗必须端在自己手里，立足国内增强能源自主保障能力。坚持先立后破、通盘谋划，传统能源逐步退出必须建立在新能源安全可靠替代的基础上，加强能源产供储销体系建设，补足能源储备调节短板，发挥化石能源兜底保障作用，有效应对能源安全风险挑战。

– Serving national development. To ensure that it always has control over its own energy supply, China has increased its capacity to meet its domestic needs. The country has applied the practice of establishing the new before discarding the old and implemented strong overall planning to ensure that safe and reliable new energy is secure before phasing out conventional energy. China has improved its energy production, supply, storage and sale systems while shoring up the weak points in its energy reserve regulation and using fossil fuels as safeguards of energy security, thus forming an effective response strategy to energy security risks and challenges.

——坚持创新引领。创新是打开能源转型之门的“金钥匙”。加快实施创新驱动发展战略，加强关键核心技术攻关，加快能源技术、产业、商业模式创新，推动新能源技术及其关联产业成为带动产业升级的新增长点，培育壮大新质生产力。深化能源市场化改革，充分发挥市场在资源配置中的决定性作用，更好发挥政府作用，激发各类经营主体活力。

– Boosting innovation as an impetus for growth. Innovation is the key to energy transition. By applying an innovation-driven development strategy within its energy sector, China has achieved breakthroughs in core technologies and created new technologies, industries, and business models. It aims to make new energy technology and its related industries the key drivers of industrial upgrading and foster new quality productive forces. China has also advanced market-oriented reform in its energy sector by ensuring that the market plays the decisive role in resource allocation and the government better plays its role, in order to boost the vitality of all business entities.

——坚持开放合作。推动可持续发展、应对气候变化，是人类面临的共同挑战。秉持人类命运共同体理念，扩大能源领域高水平对外开放，全方位加强能源国际合作，构建能源绿色低碳转型共赢新模式。深度参与全球能源治理变革，推动建立公平公正、均衡普惠的全球能源治理体系。

– Expanding opening up and cooperation. Sustainable development and climate change are common challenges for all of humanity. Holding the vision of a global community of shared future, China has been expanding high-standard opening up in the energy sector, strengthening all-round international cooperation, and advancing an energy transition towards green and low-carbon development through mutually beneficial cooperation. China has played an active role in the reform of global energy governance to help build a governance system based on equity, justice, balance and inclusiveness.

（三）中国能源转型发展取得显著成就

3. Making Notable Progress in Energy Transition

十年来，在能源安全新战略指引下，中国深入推进能源生产和消费方式变革，能源供给保障能力全面提升，能源绿色低碳发展实现历史性突破，有力保障了经济社会高质量发展，更好满足了人民日益增长的美好生活需要，有效支撑了美丽中国建设。

Over the past decade, China has furthered reform of its energy production and consumption methods, upgraded its energy supply capacity under the guidance of its new energy security strategy, and achieved historic breakthroughs in green and low-carbon energy development. These achievements have provided strong support for realizing high-quality economic and social development and better meeting the people’s growing desire for a better life, and served to underpin the Beautiful China initiative.

中国能源转型推动清洁能源发展驶入快车道。2023年，清洁能源消费比重达到26.4%，较2013年提高10.9个百分点，煤炭消费比重累计下降12.1个百分点。发电总装机容量达到29.2亿千瓦，其中，清洁能源发电装机容量达到17亿千瓦，占发电装机总量的58.2%。清洁能源发电量约3.8万亿千瓦时，占总发电量比重为39.7%，比2013年提高了15个百分点左右。十年来，新增清洁能源发电量占全社会用电增量一半以上，中国能源含“绿”量不断提升。

Fast-tracking clean energy development. In 2023, the share of clean energy consumption reached 26.4 percent of China’s total energy use, up 10.9 percentage points from 2013. In the same period, the share of coal consumption dropped by 12.1 percentage points. In 2023, the total installed capacity of power generation reached 2,920 GW, of which clean energy accounted for 1,700 GW, or 58.2 percent. In the same year, electricity generated from clean energy was about 3,800 TWh, accounting for 39.7 percent of the country’s total electricity generation, up by around 15 percentage points from 2013. Over the past decade, electricity generated from clean energy has accounted for more than 50 percent of the increase in total electricity consumption, marking a growing share of green energy in China’s energy mix.

中国能源转型支撑经济社会高质量发展。能源饭碗越端越牢，一次能源生产能力十年增长了35%，有力支撑了我国经济平稳健康发展。十年来，能源领域固定资产投资累计约39万亿元，显著拉动了上下游产业链及相关产业的投资增长。一系列能源领域重大工程建成投产，建立起完备的能源装备制造产业链，新能源、水电、核电、输变电、新型储能等领域技术创新加快，推动清洁能源产业成长为现代化产业体系的新支柱。

Underpinning high-quality economic and social development. China has realized greater control over its own energy supply. Over the past decade, its capacity for primary energy production has grown by 35 percent, providing a strong basis for steady and sound economic growth. In the same period, investment in fixed assets in the energy sector totaled about RMB39 trillion, which has stimulated the growth of investment in upstream and downstream industrial chains and related industries. A series of key energy projects have been completed and put into operation, and a complete industrial chain for energy equipment manufacturing has been built. Technological innovation in new energy, hydropower, nuclear power, power transmission and transformation, and novel energy storage has accelerated, and the clean energy industry has become a new pillar of China’s modern industrial system.

中国能源转型保障人民美好生活需要。十年来，能源供需保持平衡，能源价格总体平稳，14亿多人的能源安全得到有效保障。全国人均生活用电量从约500千瓦时增长到接近1000千瓦时，翻了一番，天然气用户达5.6亿人，在世界银行全球营商环境评价中“获得电力”指标排名上升到第12位。能源产业全面助推脱贫攻坚和乡村振兴。农村电网改造升级中央预算内总投资超千亿元，带动地方和企业加大资金投入，2015年历史性解决全国无电人口用电问题。农村地区户用光伏规模达到1.2亿千瓦，涉及农户超过550万户，每年可为农户增收110亿元，增加就业岗位约200万个。不断满足群众绿色用能需求，2023年底，北方地区清洁取暖率近80%，全国充电基础设施从不到10万台增加到近860万台。

Meeting the people’s need for a better life. Over the past decade, China’s energy demand and supply have remained balanced. Energy prices have also remained generally stable, ensuring energy security for more than 1.4 billion people. Per-capita electricity consumption has doubled from about 500 kWh to nearly 1,000 kWh over this period, and the total number of natural gas users has reached 560 million. China rose to a rank of 12th in Getting Electricity, an indicator of the global business environment by the World Bank.

The energy sector has helped to facilitate poverty alleviation and rural revitalization. Over RMB100 billion from the central budget has been invested into upgrading rural power grids, stimulating local governments and enterprises to increase investment and enabling all areas of the country to have access to electricity by 2015. The scale of household PV power installations in rural areas has reached 120 GW, across more than 5.5 million households. This has led to an income increase of RMB11 billion for farmers and the creation of around 2 million jobs per year.

Measures have been taken to meet the growing demand for green energy. By the end of 2023, the proportion of clean energy heating in northern China approached 80 percent; the total number of charging facilities for new energy vehicles nationwide increased from less than 100,000 in 2013 to almost 8.6 million.

中国能源转型与生态环境高水平保护协同推进。十年来，煤电平均供电煤耗降至303克标准煤/千瓦时，先进机组的二氧化硫、氮氧化物排放水平与天然气发电机组限值相当。2013－2023年，单位国内生产总值能耗累计下降超过26%。持续推进成品油质量升级，成品油质量达到世界先进水平。全国燃煤锅炉减少80%以上，京津冀及周边地区、汾渭平原基本完成平原地区冬季取暖散煤替代。能源资源实现绿色集约化开发，绿色开发技术广泛应用，矿山生态环境得到明显改善。在沙漠、戈壁、荒漠及采煤沉陷区推广“光伏+”生态修复新模式。PM2.5平均浓度累计下降54%，重污染天数下降了83%，有效支撑了美丽中国建设。

Synergizing with high-standard eco-environmental protection. Over the past decade, average coal consumption of coal-fired power generation has reduced to 303 grams of standard coal per kilowatt-hour, with SO2 and NOX emissions of advanced coal-fired power generation units now comparable to the upper limits for natural gas power units. From 2013 to 2023, energy consumption per unit of GDP decreased by more than 26 percent, and the quality of China’s refined oil products consistently improved to reach advanced international levels. The number of coal-fired boilers and power plants has decreased by more than 80 percent nationwide, and almost all bulk coal has been replaced with clean energy for winter heating in and around the Beijing-Tianjin-Hebei Region and in the Fenhe-Weihe River Plain.

Green and intensive development of energy and resources has been realized, green technology for energy and resource development has been widely applied, and the eco-environment of mines has seen significant improvement. The PV-based environmental restoration model has been successfully introduced in desert and coal mining subsidence areas. The average concentration of PM2.5 has fallen by 54 percent over the past decade, and the number of days with heavy pollution has decreased by 83 percent, serving to underpin the Beautiful China initiative.

中国能源转型为全球能源转型、共建清洁美丽世界作出重要贡献。2023年中国能源转型投资达6760亿美元，是全球能源转型投资最多的国家。十年来，中国向全球提供优质的清洁能源产品和服务，持续加大科技创新力度，不断推动新能源技术快速迭代，有力促进全球风电、光伏成本大幅下降。中国持续扩大开放合作，与100多个国家和地区开展绿色能源项目合作，核电、水电、新能源等一大批标志性项目接连建成投产，2023年出口风电光伏产品助力其他国家减排二氧化碳约8.1亿吨。中国新能源产业不仅丰富了全球供给，缓解了全球通胀压力，也为全球应对气候变化和绿色转型作出了突出贡献。

Contributing to global energy transition and a clean and beautiful world. In 2023, China’s investment in energy transition reached US$676 billion, making it the world’s largest investor in this field. Over the past decade, China has provided premium clean energy products and services to the international market. The country has also doubled its efforts in technological innovation to upgrade new energy technology at a faster pace, contributing enormously to a sharp reduction in the costs of wind power and PV power worldwide.

Through expanding opening up and cooperation, China has worked with more than 100 countries and regions on green energy projects. A large number of signature projects involving nuclear power, hydropower, and new energy have been completed. In 2023, China’s exports of wind power and PV products helped other countries reduce carbon dioxide emissions by about 810 million tonnes. China’s new energy industry has added to the global energy supply, eased global inflation pressures, and contributed to the global effort to combat climate change and transition to green development.

二、厚植能源绿色消费的底色

II. Promoting Green Energy Consumption

绿色是生态文明的底色。中国牢固树立和践行绿水青山就是金山银山的理念，从人与自然和谐共生的高度谋划发展方式转型，着力转变对能源资源的路径依赖，推动经济社会发展全面绿色转型。

Green development is a defining feature of an eco-civilization. China firmly believes that clear waters and lush mountains are invaluable assets, and acts accordingly. It therefore plans to transition its development model to one that achieves harmony between humanity and nature as a major focus. China is moving away from the traditional path of heavy dependence on energy and resources, as the country looks to promote a green transformation in every aspect of its economic and social development.

（一）强化节能降碳制度约束

1. Strengthening Institutional Constraints for Energy Conservation and Carbon Reduction

始终坚持节能优先方针，抑制不合理能源消费，在转变资源利用方式、提高资源利用效率上下功夫。

Staying committed to prioritizing energy conservation and reining in irrational energy use, China focuses its efforts on changing the way resources are used and improving its resource efficiency.

用好能耗双控指挥棒。实施能耗双控是中国加快生态文明建设、推动高质量发展的重要制度性安排。中国适应经济社会发展新形势，将能耗强度下降作为约束性指标，并推动向碳排放双控转变。十年来，中国通过产业结构调整和优化升级，大力发展节能降碳技术和产业，全面提高能源效率，能耗强度持续下降，累计节约能源消费约14亿吨标准煤，减少二氧化碳排放约30亿吨。

Maximizing the policy of dual control over energy use. Controlling both the volume and intensity of energy use is a crucial institutional measure in accelerating eco-environmental progress and pursuing high-quality development. To keep up with the dynamics in its economic and social development, China has set a binding target of lowering energy intensity and has shifted its focus from controlling the volume and intensity of energy use to controlling the volume and intensity of carbon emissions. Over the past decade, through industrial restructuring and upgrading, China has introduced energy-saving and carbon reduction technologies and industries, and raised its energy efficiency across the board. As a result of these efforts, the country’s energy intensity has decreased steadily, leading to energy savings equivalent to about 1.4 billion tonnes of standard coal and reducing carbon dioxide emissions by about 3 billion tonnes.

构建立体化节能管理体系。深入实施《中华人民共和国节约能源法》《中华人民共和国循环经济促进法》等法律法规，建立完善固定资产投资项目节能审查、节能监察等制度体系，明确重点行业、重点企业节能管理要求，加强重点用能单位节能管理，实施能效“领跑者”制度，提升各主体节能提效内生动力。发挥税收、金融等政策杠杆作用，引导全社会加大节能提效投入力度。

Building a multidimensional energy conservation management system. China fully enforces relevant laws and regulations such as the Energy Conservation Law and the Circular Economy Promotion Law. It works to establish and improve related institutional systems, including energy-saving reviews and supervision over fixed assets investment projects. Clear requirements for energy conservation management of key industries and enterprises have been set, and the energy-saving management of major energy consumers has been strengthened. China has also adopted an energy efficiency pacesetter system to incentivize various entities to conserve energy and raise efficiency. It has leveraged the role of taxation, financial and other policies to steer the entire society towards higher investment into energy conservation and efficiency improvements.

创新市场化节能方式。强化能效标准标识管理制度，不断推动节能领域标准制修订，以标准引领各环节各领域节能提效。截至2023年底，共计发布能耗限额、产品能效等国家标准335项，能效标识覆盖5大用能领域44类用能产品。积极推进合同能源管理等市场化机制，推广节能咨询、诊断、设计、融资、改造、托管等“一站式”综合服务模式，2023年节能服务产业总产值超过5000亿元，比2013年翻了一番。

Promoting market-based approaches to energy conservation. China has improved its management of energy efficiency standards and labels, and made consistent efforts to formulate and revise standards on energy conservation, using such standards to guide players in various sectors to conserve energy and raise energy efficiency. By the end of 2023, it had released 335 national standards on energy consumption limits and the energy efficiency of products. The energy efficiency labeling system covers 44 categories of energy-using products across five major energy-consuming sectors. Additionally, China has actively applied market-oriented mechanisms such as energy performance contracting, and promoted “one-stop” comprehensive services, including energy conservation consultancy, diagnosis, engineering, financing, transformation and outsourcing. In 2023, the total output value of the energy conservation service industry exceeded RMB500 billion, doubling that of 2013.

（二）推动重点领域节能提效

2. Improving Energy Conservation and Efficiency in Key Sectors

节能提效要啃“硬骨头”。工业、建筑、交通运输、公共机构等作为全社会能源消耗的主体，是节能提效工作的“基本盘”。通过全面实施节能标准、推广先进能效产品、淘汰落后产能，重点领域能效水平持续提升。

To conserve energy and increase energy efficiency, China must focus on key sectors such as industry, construction, transport, and public institutions. These sectors are major energy consumers and will therefore be fundamental in improving energy conservation and efficiency. By fully applying energy conservation standards, promoting advanced energy-efficient products, and phasing out outdated production capacity, energy efficiency is continuing to rise in these key sectors.

深挖工业领域节能潜力。工业企业是节能提效的重中之重，持续推动工业领域淘汰落后产能和节能技术改造，积极推动生产工艺革新、流程再造和数字化智能化升级，组织重点企业提升用能精细化管理水平。十年来，规模以上工业单位增加值能耗累计下降超过36%，钢铁、电解铝、水泥、玻璃等单位产品综合能耗平均降幅达9%以上。

Tapping into the potential of industry in conserving energy. Since the industrial sector plays a pivotal role in conserving energy and raising energy efficiency, China has made lasting efforts to replace outdated production capacity and drive energy-saving technological transformation. It has promoted innovation in production techniques, process reengineering, and digital and intelligent upgrading, and provided guidance for key enterprises to refine their energy management practices. Over the past decade, the energy consumption per unit of added value of industrial enterprises of designated size – with an annual revenue of RMB20 million and above – has dropped by more than 36 percent. Comprehensive energy consumption per unit of product in the steel, electrolytic aluminum, cement, glass, and other industries has lowered by more than 9 percent on average.

推广绿色节能建筑。中国正处于全球规模最大的城镇化进程中，为避免形成高碳锁定效应，中国强化新建建筑节能标准要求，稳步推进既有建筑节能改造，加快发展超低能耗、近零能耗建筑。截至2023年底，累计建成节能建筑面积达326.8亿平方米，节能建筑占城镇既有建筑面积比例超过64%，较2013年提升了近30个百分点，累计建成超低能耗、近零能耗建筑超过4370万平方米。

Promoting green, energy-efficient buildings. China is currently undergoing the world’s largest urbanization process. To avoid carbon lock-in, the country has implemented higher energy-efficiency standards for new buildings and is steadily advancing the energy-saving retrofit of existing buildings. China is also accelerating the development of buildings with ultralow or near-zero energy consumption. By the end of 2023, the floorage of energy-efficient buildings had surpassed 32.68 billion square meters, accounting for more than 64 percent of the total floor space of urban buildings, up nearly 30 percentage points from 2013. The floorage of buildings with ultralow or near-zero energy consumption has now surpassed 43.7 million square meters.

全方位构建清洁高效的交通运输体系。随着经济社会发展，物流、出行需求不断增加，交通用能还将持续增长。中国加快发展多式联运，提高铁路、水路在综合运输中的承运比重。深入推进城市公共交通优先发展，构建完善绿色出行服务体系，在城市客运领域推广应用新能源车辆。机动车排放标准与世界先进水平接轨，基本淘汰国三及以下排放标准汽车。运输能耗强度不断下降，2023年铁路单位运输工作量综合能耗较2013年下降约19%。大力发展充电基础设施网络，完善加氢、加气站点布局及服务设施。截至2023年底，累计建成充电基础设施近860万台，加氢站超过450座。

Developing a clean and efficient transport system in an all-round way. As logistic and travel needs continue to grow with economic and social development, energy consumption in the transport sector will also increase. China is accelerating the development of multimodal transport, and increasing the share of railways and waterways within its integrated transport system. The country has continued to prioritize the development of urban public transport, optimize its green transport service systems, and promote new energy vehicles in urban passenger transport. It has adopted motor vehicle emission standards that align with advanced international levels, phasing out vehicles that do not meet the National IV or higher level emission standards. As a result, energy intensity in transport has fallen. The comprehensive energy consumption per unit load for railway transport in 2023 dropped by some 19 percent compared with 2013. Efforts have also been made to develop an electric vehicle charging infrastructure network and improve the distribution of hydrogen and natural gas fueling stations and related service facilities. By the end of 2023, there were almost 8.6 million charging facilities and over 450 hydrogen fueling stations nationwide.

建设节约型公共机构。制定《公共机构节能条例》，积极开展节约型机关、节约型公共机构创建活动，推广采用合同能源管理方式实施节能技术改造，推动公共机构终端用能电气化，倡导绿色办公、绿色出行，优先采购绿色节能产品。截至2023年底，90%县级及以上机关单位建成节约型机关，创建节约型公共机构示范单位5114家。2023年全国公共机构人均综合能耗较2013年下降20.4%。

Promoting energy conservation in public institutions. China has formulated the Regulations on Energy Conservation in Public Institutions and has initiated efforts to promote energy conservation in government departments and other public institutions. It has introduced energy efficiency retrofits through energy performance contracting and promoted the electrification of final energy consumption in public institutions. It encourages green office work and green travel, and gives priority to green, energy-efficient products in procurement. By the end of 2023, 90 percent of government departments at or above the county level had met the energy-saving standards, and 5,114 public institutions had been cited as exemplars in energy conservation. By 2023, the per capita comprehensive energy consumption in public institutions across the country had dropped by 20.4 percent compared with 2013.

（三）培育绿色能源消费新模式

3. Fostering Green Models of Energy Consumption

中国积极引导全社会优先使用绿色能源，大力弘扬勤俭节约的中华民族优秀传统，推动生活方式和消费模式向简约适度、绿色低碳、文明健康的方式转变。

The Chinese government actively guides the public to prioritize green energy and carry forward the nation’s traditions of diligence and thrift. It promotes the shift towards green and low-carbon ways of life and consumption that are simple, moderate and healthy.

促进可再生能源消费。实施可再生能源电力消纳责任权重制度，对各省（自治区、直辖市）行政区域设定年度可再生能源电力消纳责任目标，并监测评价其完成情况。建立可再生能源绿色电力证书制度，将绿色电力证书作为用能单位消费绿色电力的唯一凭证和环境属性的唯一证明。将绿电消费作为评价、认证和标识绿色产品的重要依据和内容，鼓励全社会优先使用绿色能源和采购绿色产品服务，鼓励具备条件的企业形成低碳零碳的能源消费模式。2022年北京冬奥会、2023年杭州亚运会均实现100%使用绿色电力。

Encouraging the consumption of renewable energy. China has adopted a system of setting annual renewable electricity consumption targets for provincial-level administrative units, and monitoring and evaluating their performance. In addition, it has established a green electricity certification system for the consumption of renewable electricity, and uses the green electricity certificates as sole proof of an entity’s green electricity consumption and environmental-friendliness. It uses the consumption of green electricity as an important basis for assessing, certifying, and labeling green products. In this way, the government encourages the entire society to prioritize the use of green energy and purchase of green products and services. It also encourages competent enterprises to form low-carbon or even zero-carbon models of energy consumption. Both the Beijing 2022 Winter Olympic Games and the Hangzhou Asian Games in 2023 utilized 100 percent green electricity.

促进终端用能电气化低碳化。工业领域以生产加热、烘干、蒸汽供应等环节为重点，实施高温热泵、电加热等电能替代，推动化工、冶金领域可再生能源制氢示范应用。建筑领域广泛使用太阳能热水器、电炊事等，积极推进北方地区清洁取暖，推动以电力、天然气、生物质、地热、工业余热等清洁低碳能源替代燃煤供暖，2023年北方地区清洁取暖率近80%。交通运输领域大力推广新能源汽车，提升铁路电气化水平，推行船舶、飞机靠港使用岸电。截至2023年底，中国新能源汽车保有量超过2040万辆，全国铁路电气化比例达73.8%。全社会终端用能电气化率达28%，十年来电气化水平提升约7个百分点。

Advancing the electrification and low-carbon transition of final energy consumption. In the industrial sector, there has been a shift from traditional fuels to electricity for processes such as heating, drying, and steam supply. This has been achieved through the use of high-temperature heat pumps, electric heating, and other technologies. Additionally, efforts have been made to promote the demonstration and application of renewable hydrogen production in the chemical and metallurgical industries.

In the construction sector, there has been widespread adoption of solar water heaters and electric cooking appliances. In northern China, clean heating has been actively advanced, replacing coal with clean and low-carbon energy such as electricity, natural gas, biomass, geothermal energy, and industrial exhaust heat. In 2023, the share of clean heating reached nearly 80 percent in northern China.

In the transport sector, there has been a strong push for new energy vehicles, increased electrification of railways, and the use of shore power for anchored ships and parked aircraft. By the end of 2023, China had over 20.4 million new energy vehicles; the electrification rate of its railway system reached 73.8 percent; and the electrification rate of society-wide final energy consumption stood at 28 percent, an increase of about 7 percentage points from 2013.

践行绿色低碳生活方式。节能降碳是一场贯穿整个社会的全民行动。中国积极倡导绿色低碳生活理念，深入开展绿色生活创建行动，推动全民持续提升节约意识。加大绿色低碳产品推广力度，组织开展全国生态日、全国节能宣传周、全国低碳日、世界环境日等主题宣传活动，全面普及节能理念和节能知识。鼓励公众绿色出行，优先选择公共交通、自行车和步行等绿色出行方式。组织109个城市开展绿色出行创建行动，其中考核达标城市97个，绿色出行比例达到70%以上。

Adopting green and low-carbon ways of life. Energy conservation and carbon reduction have been promoted throughout society. China has been actively encouraging green and low-carbon lifestyles, and has intensified its efforts to promote green living and raise the public’s consciousness of the need to conserve resources. It has made greater efforts to promote green and low-carbon products and has carried out public awareness events such as the National Ecology Day, the National Energy Conservation Week, the National Low Carbon Day, and the World Environment Day, to comprehensively promote awareness and understanding of energy conservation. Green travel is promoted as the public are encouraged to make public transport, cycling, and walking their first choices for getting around. Additionally, the government has organized a green travel campaign, in which 97 of the 109 participating cities have met the standards, with their green travel rates exceeding 70 percent.

三、加快构建能源供给新体系

III. Moving Faster to Build a New Energy Supply System

中国立足基本国情和发展阶段，把握好新能源和传统能源协调平衡，在保障能源可靠供应的同时推动能源转型。大力提升非化石能源的可靠替代能力，发挥化石能源支撑调节作用，加快构建多元清洁、安全韧性的能源供给新体系。

China is committed to striking a balance between traditional and new energy sources in order to facilitate its energy transition while ensuring a stable energy supply tailored to the country’s national conditions and development stage. The country has been working to improve the reliability of non-fossil fuels as alternative energy sources and leverage the supporting and balancing role of fossil fuels, as it moves towards building a clean, diversified, secure and resilient energy supply system.

（一）推动非化石能源高质量发展

1. Promoting High-quality Development of Non-fossil Energy

加快发展非化石能源是加强生态文明建设、推动经济社会绿色低碳发展、积极稳妥推进碳达峰碳中和的必然要求，是发展绿色生产力的必由之路。

Accelerating the development of non-fossil energy is a necessary step in pursuing eco-environmental progress, promoting green and low-carbon economic and social development, and achieving the peak carbon and carbon neutrality goals. It is essential to increasing green productivity.

推动风电、光伏发电跃升发展。中国风能、太阳能资源丰富，风电、光伏发电成为清洁能源的主力军。有序推进大型风电光伏基地建设，以库布其、乌兰布和、腾格里、巴丹吉林沙漠为重点，规划建设4.5亿千瓦大型风电光伏基地项目。推进海上风电规模化集群化发展，累计装机规模达3728万千瓦。积极推进分布式新能源发展，开展“千乡万村驭风行动”“千家万户沐光行动”，推广农光互补、渔光互补、牧光互补等“光伏+农业”新模式，打开了农村新能源发展的广阔空间。截至2023年底，中国风电、光伏发电累计装机容量分别达4.41亿千瓦、6.09亿千瓦，合计较10年前增长了10倍。其中，分布式光伏发电累计装机容量超过2.5亿千瓦，占光伏发电总装机容量40%以上。

Realizing a boom in wind and solar PV power. China has abundant wind and solar resources, making them the predominant sources of clean energy generation in the country. Construction has been advanced in steps on large-scale wind and PV power bases centered around the Kubuqi, Ulan Buh, Tengger, and Badain Jaran deserts, expected to reach a total installed capacity of 450 GW. China has seen large-scale and cluster development of offshore wind farms, with a cumulative installed capacity of 37,280 MW. Distributed new energy production has also made rapid progress. Wind and PV energy projects have been piloted in rural areas featuring the “PV plus agriculture” models, including agrivoltaic farming, fishery-solar hybrid systems, and animal husbandry-solar solutions, which has opened up broad spaces for new energy production. By the end of 2023, China’s cumulative installed capacities of wind and PV power stood at 441 GW and 609 GW, an elevenfold increase over the past decade. The installed capacity of distributed PV power exceeded 250 GW, accounting for more than 40 percent of the total installed capacity of PV power.

因地制宜开发水电。科学统筹水电开发和生态保护，有序推进大型水电基地建设和大型水电站升级改造。截至2023年底，常规水电装机容量达3.7亿千瓦。稳步推进小水电绿色改造和现代化提升，截至2023年底，近4000座小水电完成改造升级，生态综合效益显著提升。

Developing hydropower as conditions permit. Sound measures have been taken to coordinate hydropower development and eco-environmental conservation. Construction of large hydropower bases is underway, while existing large hydropower stations have been upgraded. By the end of 2023, the regular installed hydropower capacity in China stood at 370 GW. The green transformation and modernization of small hydropower stations have been steadily advanced, with nearly 4,000 such stations upgraded by the end of 2023 to improve their green capabilities.

积极安全有序发展核电。核电是优质高效的清洁能源。中国始终将核安全作为核电发展的生命线，坚持采用最先进的技术、最严格的标准发展核电，在运核电机组长期保持安全稳定运行。沿海核电项目建设有序推进，代表“中国名片”的自主三代核电技术“华龙一号”首批机组陆续投运，“国和一号”示范工程正在建设，全球首座第四代核电技术商业电站高温气冷堆示范工程建成投运。核能清洁供暖、供热等综合利用取得突破，核能应用领域进一步拓展。截至2023年底，在运核电装机容量5691万千瓦，是2013年底的3.9倍；在运在建总装机容量10033万千瓦。

Pursuing robust, safe and orderly development of nuclear power. Nuclear power is an efficient and high-quality clean energy source. China maintains that nuclear safety is essential for the development of nuclear power. The country has adopted the most advanced technologies and strictest standards to ensure that the nuclear power units in operation remain safe and stable over a long period of time. A number of coastal nuclear power projects are now in progress: The first units of the domestically developed third-generation nuclear reactor, Hualong One, have already entered operation; the Guohe One demonstration project, another independently designed third-generation nuclear reactor, is currently under construction; and the world’s first fourth-generation nuclear power plant with a high-temperature gas-cooled reactor has also officially entered commercial operation. Breakthroughs have been made in the comprehensive use of nuclear energy for clean heating and heat supply, which has expanded the scope of nuclear energy utilization. By the end of 2023, the total installed capacity of nuclear power plants in operation across China stood at 56,910 MW, 3.9 times the figure at the end of 2013. The total installed capacity of nuclear power plants under construction and in operation in China had totaled 100.33 GW by the end of 2023.

推动生物质能、地热能和海洋能发展。因地制宜推进生物质能多元化开发利用，稳步发展农林生物质发电、沼气发电和城镇生活垃圾焚烧发电，截至2023年底，生物质发电累计装机容量4414万千瓦。因地制宜推广生物质能清洁取暖，利用畜禽养殖废弃物等发展生物天然气。有序推广应用生物燃料乙醇、生物柴油等清洁液体燃料。中深层地热开发取得新突破，建成一批以地热能为主的集中供暖项目。海洋能规模化利用取得积极进展。

Boosting the development of biomass, geothermal and ocean energy. China has diversified the use and development of biomass energy in accordance with local conditions. It has been steadily advancing electricity generation from agricultural and forestry biomass, biogas, and urban domestic waste incineration. By the end of 2023, the installed capacity of biomass energy plants had reached 44,140 MW. In line with local conditions, China has also been promoting the use of biomass energy for clean heating and increasing the use of livestock and poultry waste to produce biogas. Additionally, it is promoting the application of clean liquid fuels such as bioethanol and biodiesel. New breakthroughs have been made in exploring mid-to-deep geothermal energy, and centralized heating projects mainly powered by geothermal energy have been built. Progress has also been made in the large-scale utilization of ocean energy.

（二）促进传统能源和新能源协同发展

2. Coordinating the Development of Traditional Energy and New Energy

传统能源和新能源是互补、替代关系，大力发展新能源的同时，也要发挥好传统能源支撑和兜底保障作用，推动新能源和传统能源协同发展。

Traditional energy and new energy constitute a relationship of complementarity and substitution. While making great efforts to boost the development of new energy, China also fully utilizes the supporting and safeguarding role of traditional energy so that new energy and traditional energy can work in synergy.

推动煤炭清洁高效开发利用。建立煤矿绿色发展长效机制，建设安全智能绿色现代化煤矿，实施矿区综合治理和生态环境修复，生态环境质量持续提升。十年来，全国原煤入洗率、矿井水综合利用率、土地复垦率均提高10个百分点以上。加强煤矿瓦斯综合治理和安全利用，瓦斯抽采利用对安全生产、资源利用、生态环保的综合效益不断显现。十年来，累计淘汰煤电落后产能超过1亿千瓦。积极推进煤电机组节能降碳改造、灵活性改造、供热改造“三改联动”，截至2023年底，95%以上煤电机组实现了超低排放，50%以上煤电机组具备深度调峰能力，电力行业污染物排放量减少超过90%。

Promoting clean and efficient exploration and utilization of coal. China has established a long-term mechanism for green coal mining and built modern coal mines that are safe, intelligent and eco-friendly. It has implemented comprehensive management and ecological restoration of mining areas, resulting in continuous improvement to the eco-environment in these areas. Over the past decade, the national raw coal washing rate, the comprehensive utilization rate of mine water, and the land reclamation rate have all increased by more than 10 percentage points. The country has strengthened comprehensive management and safe utilization of coal mine gas, and the benefits of gas extraction on safe production, resource utilization, and environmental protection are increasingly visible. Over the past decade, outdated coal-fired power facilities, with a combined capacity of more than 100 GW, have been decommissioned across the country. Coordinated measures have been taken to realize energy-saving and carbon-reducing transformation of remaining coal-fired power units, increase their flexible load regulation capabilities, and upgrade their heat supply capacity. By the end of 2023, more than 95 percent of coal-fired power units had achieved ultra-low emissions, and more than 50 percent had deep peak-shaving capabilities, reducing the discharge of pollutants in the power industry by more than 90 percent.

推动油气绿色转型发展。原油年产量稳定在2亿吨左右，天然气年产量连续七年增长超百亿立方米。推动绿色油气田建设，大力推进碳捕集、利用与封存（CCUS）技术，建设“近零”排放油气田示范区。推进石油炼化产业转型升级，加强可再生能源制氢、二氧化碳加氢制备化工产品等研发应用。科学规划、整体有序推进成品油质量升级工作，分阶段实现从国Ⅲ到国Ⅵ的“三连升”，成品油质量达到世界先进水平，用不到10年的时间走完了发达国家近30年的成品油质量升级之路。

Promoting the transition towards green oil and gas production. The annual output of crude oil has stabilized at about 200 million tonnes, and the output of natural gas has experienced an annual increase of more than 10 billion cubic meters for seven consecutive years. China has actively promoted the construction of green oil and gas fields, made significant progress in carbon capture, utilization, and storage (CCUS) technology, and built near-zero emission oil and gas demonstration areas. Additionally, the country has promoted the transformation and upgrade of its crude oil refining and petrochemicals industry, and strengthened R&D and application of technologies to produce hydrogen from renewable energy and produce chemical products through carbon dioxide hydrogenation. It has implemented sound plans to steadily upgrade the quality of refined oil and raise its light-duty vehicle emission standard from National III to National VI. It has taken China less than 10 years to upgrade the quality of its refined oil to advanced international levels, two decades quicker than in developed countries.

推动传统能源和新能源协同发展。推动传统能源产业向综合能源系统转型，在资源富集地稳步实施风光水（储）一体化、风光火（储）一体化建设。在煤矿工业场地、采煤沉陷区、电厂闲置空地、油气矿区等区域建设新能源发电项目，通过开发海上风电为油气平台提供绿色电力，为传统能源生产开发、加工转换提供清洁用能。探索氢能管道输送，在传统加油站、加气站建设油气电氢一体化综合交通能源服务站。

Coordinating the development of traditional and new energy. China has been transforming traditional energy industries into integrated energy systems. It has taken steps to implement wind-solar-hydro (plus storage) and wind-solar-coal (plus storage) hybrid systems in resource-rich areas. New energy power generation projects have been built in places such as coal mine industrial sites, coal mining subsidence areas, idle spaces at power plants, and oil and gas mining areas. By developing offshore wind farms to provide green power for oil and gas platforms, clean energy is supplied for the production, development, processing and conversion of traditional energy. The country is also working on hydrogen transportation by pipeline, and building integrated energy service stations supplying oil, gas, electricity and hydrogen on the basis of traditional oil and gas fueling stations.

（三）提升能源系统韧性

3. Improving the Resilience of the Energy System

随着新能源大规模发展和电力负荷特性变化，能源电力系统运行面临更多不确定性，亟须增强系统灵活调节能力，不断提升能源系统安全运行和抵御风险能力。

With the large-scale development of new energy and changes in power load characteristics, China’s energy and power system is facing more operational uncertainties. Therefore, it is important that the country should increase the regulation ability of the system, keep improving its capacity for safe operation and strengthening its resistance to risk.

加强能源管网互联互通。为加强资源优化配置，中国加快建设横跨东西、纵贯南北、覆盖全国的能源网络基础设施，提升能源大范围远距离输送能力。形成“西电东送”北、中、南三大通道的跨省跨区输电格局，输电能力约3亿千瓦，建成20条特高压直流输电通道。不断完善区域电网主网架，形成以若干区域电网为主体、区域间有效互联的电网格局。基本形成油气“全国一张网”，油气资源优化配置和互济互保水平显著提升。截至2023年底，全国长输油气管网总里程约19万公里，其中原油管道3.3万公里、成品油管道3.3万公里、天然气管道12.4万公里。

Boosting energy network connectivity. In order to optimize the allocation of resources and increase its large-scale and long-distance energy transmission capacity, China has accelerated the construction of a cross-country energy network. It has built three west-to-east power transmission corridors across provinces and regions in northern, central, and southern China, with a capacity of about 300 GW, and has completed 20 ultra-high-voltage direct current (UHVDC) transmission channels. It has also improved the function of major regional power grids and formed a grid framework centered on a number of regional power grids, with effective interconnection between regions. A unified national pipeline network has taken shape to optimize and coordinate oil and gas allocation and supply across regions. By the end of 2023, the total length of the long-distance oil and gas pipeline network in China was about 190,000 kilometers. This includes 33,000 kilometers of crude oil pipelines, 33,000 kilometers of refined oil pipelines, and 124,000 kilometers of natural gas pipelines.

提升能源储备应急能力。进一步健全以企业储备为主体、政府储备为补充、产品储备与产能储备有机结合的煤炭储备体系。逐步形成政府储备与企业储备相结合、战略储备与商业储备并举的石油储备体系。加快构建地方政府、供气企业、管输企业、城镇燃气企业各负其责的多层次天然气储气调峰体系。十年来，中国天然气储气能力实现翻番式增长。加强能源应急能力建设，建立预测预警机制，制定应急预案，完善演练制度和应急调度机制，增强对各类突发事件的防范能力。

Improving energy reserves for emergency response. China has further improved its coal reserve system, with corporate reserves as the mainstay, government reserves as a supplement, and a proper combination of product reserves and capacity reserves. An oil reserve system that integrates government and corporate reserves, and develops both strategic and commercial reserves is in place. Faster progress has been made in building a multilevel natural gas storage and peak-shaving system, with local governments, gas suppliers, pipeline transportation enterprises, and urban gas services fulfilling their respective responsibilities. Over the past decade, China’s natural gas storage capacity has doubled. The country has expanded its capacity for energy emergency response by establishing a prediction and early warning mechanism, formulating emergency plans, and improving the drill system and energy dispatch mechanism to guard against emergencies.

提升能源系统调节能力。深入实施煤电机组灵活性改造，合理布局天然气调峰电站，加快抽水蓄能电站建设，推进新型储能多元化发展。截至2023年底，具备灵活调节能力的火电装机容量近7亿千瓦，抽水蓄能装机容量5094万千瓦，新型储能规模3139万千瓦/6687万千瓦时、平均储能时长2.1小时。强化网间互补互济能力，挖掘可调节负荷、车网互动等需求侧响应能力。

Improving energy reserves for emergency response. China has further improved its coal reserve system, with corporate reserves as the mainstay, government reserves as a supplement, and a proper combination of product reserves and capacity reserves. An oil reserve system that integrates government and corporate reserves, and develops both strategic and commercial reserves is in place. Faster progress has been made in building a multilevel natural gas storage and peak-shaving system, with local governments, gas suppliers, pipeline transportation enterprises, and urban gas services fulfilling their respective responsibilities. Over the past decade, China’s natural gas storage capacity has doubled. The country has expanded its capacity for energy emergency response by establishing a prediction and early warning mechanism, formulating emergency plans, and improving the drill system and energy dispatch mechanism to guard against emergencies.

四、大力发展能源新质生产力

IV. Developing New Quality Productive Forces in the Energy Sector

随着全球能源绿色低碳转型快速推进，“技术就是资源”的趋势愈加明显。科技创新是加快能源转型、发展能源新质生产力的核心要素。中国深入实施创新驱动发展战略，围绕巩固延伸优势产业、改造提升传统产业、加快培育未来产业，推进能源产业链创新链协同发展，不断提升能源含“新”量。

The rapid transition to green and low-carbon energy across the globe highlights the importance of technology. Technological innovation is the accelerator of energy transition leading the development of new quality productive forces in the energy sector. China has been intensifying its efforts to implement an innovation-driven development strategy in the sector. By leveraging its competitive industries, transforming and upgrading its traditional industries, and accelerating the cultivation of industries of the future, China has better coordinated the development of its industrial and innovation chains, and spurred innovation in its energy transition.

（一）健全能源科技创新体系

1. Improving the System for Innovation in Energy Technology

坚持创新是第一动力，加强能源科技创新顶层设计和统筹布局，加快构建以企业为主体、市场为导向、产学研用深度融合的协同创新体系。

China is improving top-level design and overall plans to establish innovation as a primary driver in energy technology. It has accelerated efforts to build a synergetic and market-oriented innovation system which boosts the role of enterprises as the main players and expands coordination between production, education, research and application.

加强能源科技协同创新。围绕核电、油气等国家重大专项，先进可再生能源技术、储能和智能电网、氢能、煤炭清洁高效利用等重点研发计划，制定实施能源科技创新规划，强化科技创新顶层设计。建立健全能源领域全国重点实验室、国家工程研究中心、国家能源局研发创新平台，依托重大能源工程推进科技创新和成果转化，健全央地、政企、校企、院所等协同联动的能源重大技术装备攻关示范新模式。

Strengthening synergetic technology innovation. China has improved top-level design and formulated plans for technological innovation, with the focus on key national nuclear power, oil and gas projects, and key research and development programs for advanced renewable energy technology, energy storage, smart power grids, hydrogen energy, and clean and efficient coal usage. Efforts have also been made to establish and improve key national energy laboratories, national engineering research centers, and R&D innovation platforms under the National Energy Administration. Through major energy projects, China has expedited technological innovation and the application of technological advances, and optimized collaboration models for breakthroughs in key energy technology and equipment, involving coordinated efforts between central and local governments, between government and enterprises, between universities and enterprises, and among research institutes.

激发创新主体活力。强化能源企业科技创新主体地位，推动龙头企业牵头组建创新联合体，打造原创技术策源地和现代产业链链长。实行能源领域重大科技项目“揭榜挂帅”“赛马”等制度，有效激发研发主体创新活力。完善能源技术装备首台（套）支持政策，推进重大技术装备示范应用。支持创新型企业成长为创新发源地，完善扶持政策和公共服务体系，促进企业创新创业潜能充分释放。

Energizing innovators. China has strengthened the primary role of energy enterprises in technological innovation. It has encouraged leading enterprises to build innovation consortia to act as both sources of innovation and leaders of modern industrial chains. The country adopts an open competition mechanism for selecting the best candidates to undertake key energy technology projects and a multi-team research mechanism for finding the best pathways and achieving optimal results, with the purpose of motivating key R&D players in innovation. Policies have been improved to incentivize whoever makes the first breakthroughs in key technology and equipment, and pilot application of major technologies and equipment has been expedited. Innovative enterprises are also supported with preferential policies and better public services to grow into hubs of innovation.

（二）加快能源转型科技创新

2. Accelerating Technological Innovation in Energy Transition

瞄准世界能源科技前沿，聚焦能源关键领域和重大需求，加强科技攻关，大力发展新能源技术及产业，推动传统能源产业绿色转型发展。

Focusing on the cutting-edge technologies, key fields and strategic needs in the energy sector, China has been increasing its efforts to achieve breakthroughs in technology, develop new energy technologies and industries, and facilitate the transition to green energy from traditional sources.

大力发展绿色能源技术。建成完备的风电、光伏全产业链研发设计和集成制造体系，高效晶体硅、钙钛矿等光伏电池技术转换效率多次刷新世界纪录，量产先进晶体硅光伏电池转换效率超过25%。陆上风电机组最大单机容量突破10兆瓦，单机18兆瓦的海上风电机组顺利下线。水电设计、施工、设备制造全产业链体系全球领先，世界最大单机容量100万千瓦水电机组已在白鹤滩水电站投运。全面掌握“华龙一号”“国和一号”等大型三代压水堆和高温气冷堆第四代核电技术，“玲龙一号”小型压水堆示范工程开工建设。智能电网技术处于世界前列，建成柔性直流输电等标志性工程。新型储能和氢能技术加快发展。

Developing green energy technologies. China has built complete industrial chains for the R&D, design, and integrated manufacturing of wind and solar PV equipment. The high conversion efficiency of crystalline silicon/perovskite PV cell technology has established multiple world bests, and the conversion efficiency of advanced crystalline silicon PV cells in mass production has exceeded 25 percent. The maximum single-unit capacity of onshore wind turbines now exceeds 10 MW, and offshore wind turbines with a single-unit capacity of 18 MW have rolled off the production line. China has also become a front-runner throughout the hydropower industrial chain, from design and construction to equipment manufacturing. The world’s largest hydropower generating units, each having an installed capacity of 1,000 MW, are in operation at the Baihetan Hydropower Station. The country has mastered the nuclear power technologies of third-generation pressurized water reactors (PWRs) as represented by Hualong One and Guohe One, as well as fourth-generation high-temperature gas-cooled reactors. Work has begun on Linglong One, a small modular PWR demonstration project. The country is also a world leader in smart grid technology, and has built a number of flexible DC transmission projects. Additionally, the development of novel energy storage and hydrogen energy technologies is accelerating.

提升传统能源清洁高效利用水平。煤电行业推广应用超（超）临界燃煤发电、深度调峰技术等，环保和能效指标达到世界先进水平。油气领域二氧化碳驱油、水平钻井和页岩气开发等先进油气勘探开采技术实现产业化应用，深海油气勘探开发技术取得显著进步，全球首座十万吨级深水半潜式生产储油平台“深海一号”投运，推动油气行业绿色转型升级。

Improving the clean and efficient utilization of traditional energy sources. China is applying supercritical and ultra-supercritical power generation and deep peak-shaving technologies in the coal-fired power industry to raise its environmental and energy efficiency indicators to world-leading standards. Advanced oil and gas exploration and production technologies have been industrialized, such as carbon dioxide flooding, horizontal drilling, and shale gas development, and significant progress has been made in deep-sea oil and gas exploration technologies. Shenhai-1, the world’s first 100,000-tonne deep-sea semi-submersible oil production and storage platform, is operational, to help advance the green transformation and upgrading of the oil and gas industry.

（三）打造能源产业升级新增长点

3. Creating New Growth Points to Upgrade the Energy Sector

大力推进数字技术与能源产业深度融合，催生新技术、新业态、新模式，为能源产业基础高级化和产业链现代化插上腾飞的“翅膀”。

China is actively integrating digital technology into the energy sector and fostering new technologies, business forms and models to upgrade the energy sector and modernize industrial chains.

以数字化智能化技术推动能源产业转型升级。加快推动能源基础设施数字化智能化升级，大力推进智慧电厂、智能油气田、智能化煤矿建设，提升企业决策智能化水平、经营效益和服务质量。加快建设新型电力系统，源网荷储全链条各类主体信息共享，实现全景可感知、全局可控制、主配电网有效协同、各类电源实时调控，提升电力资源配置效率和系统安全运行水平。终端用能环节加快构建数字能源生态，建设智慧能源城市、智能社区（园区），提高用能系统协同调控及智能化水平，催生智慧用能新模式，以数字经济助推绿色消费升级。

Transforming and upgrading the energy sector with digital and intelligent technologies. China has accelerated the application of digital and intelligent technologies to upgrade energy infrastructure for power plants, oil and gas fields, and coal mines, and to improve decision-making, operational efficiency, and service quality of enterprises. It has fast-tracked the construction of a new power system that allows information sharing among all entities across the generation-grid-load-storage chain. This enables panoramic perception, overall controllability, effective coordination between transmission and distribution grids, and real-time regulation of power supplies, which in turn improve the efficiency of power resource allocation and operational safety of the system. Plans are in place to create a digital end-use ecosystem, to build smart energy cities and communities, to improve the coordinated regulation and intelligence level of energy consumption systems, to unlock new models for smart energy use, and to upgrade green consumption with the digital economy.

培育能源新业态新模式。优化整合电源侧、电网侧、负荷侧资源，构建源网荷储高度融合、协同互动的供给新形态。结合工业、交通、建筑等典型应用场景，因地制宜建设智能微电网，促进新能源就地消纳。推进虚拟电厂建设，提升电力系统调节能力。推广天然气冷热电三联供、地热、分布式新能源、新型储能、余热利用等综合能源服务新模式，提高能源综合利用效率。

Fostering new business forms and models in the energy sector. China has optimized and integrated its resources for electricity generation, grid infrastructure, and load management to build a new model of power supply based on close connectivity, coordination and interaction across the generation-grid-load-storage chain. Smart microgrids have been built for a variety of scenarios in the industrial, transport, construction and other sectors, allowing the local consumption of new energy. Virtual power plants have been created to increase the regulation capacity of the power system, and new integrated energy service models have been introduced to improve comprehensive energy efficiency, such as combined cooling, heating and power systems for natural gas utilization, geothermal power, distributed new energy, novel energy storage, and waste heat utilization.

五、推进能源治理现代化

V. Modernizing Energy Governance

能源高质量发展需要大力推进能源治理现代化，加快形成与之相适应的新型生产关系。中国通过深化改革、完善政策、规划引领、法治保障等多种手段，充分发挥市场在资源配置中的决定性作用，更好发挥政府作用，为能源绿色低碳转型营造良好的发展环境。

High-quality development in China’s energy sector requires a significant effort to modernize energy governance and establish a new energy-producing dynamic in tandem with this effort. Through deeper reform, improved policies, strategic plans, and the rule of law as guarantee, China has been able to fully leverage the decisive role of the market in resource allocation while ensuring that the government better plays its role. This has created an enabling environment for the green and low-carbon energy transition.

（一）构建公平开放、有效竞争的能源市场

1. Building a Fair and Open Energy Market with Effective Competition

深入推进能源市场化改革，加快构建有效竞争的市场结构和市场体系，完善主要由市场决定能源价格的机制，强化统一大市场建设，打通能源市场“梗阻”，推动市场高效畅通运行，为各类经营主体营造稳定公平透明可预期的良好环境。

China has furthered market-oriented reform in the energy sector. It has accelerated the development of a market structure and system allowing effective competition, and has improved the mechanism for having energy prices determined primarily through market forces. The country has also focused on building a unified national market, removing barriers within the energy market, and facilitating smooth and efficient market operations. These efforts are designed to create a business enabling environment that is stable, fair, transparent and predictable.

持续深化能源市场化改革。电网统购统销局面基本打破，发电和售电环节全面引入市场竞争，配电环节引入社会资本投资，综合能源服务商、虚拟电厂、新型储能企业等新型主体蓬勃发展。民营企业成为新能源产业的主要力量，中国风电整机制造企业中民营企业约占60%，光伏设备制造企业绝大部分是民营企业。油气体制改革不断深化，组建国家管网公司，逐步形成上游油气资源多主体多渠道供应、中间统一管网高效集输、下游销售市场充分竞争的市场格局。

Advancing market-oriented reform in the energy sector. The monopoly held by power grid enterprises in the purchase and sale of electricity has been largely eliminated, and market competition has been introduced into power generation and sale. Private investment is now welcome in power distribution, and as a result, new market entities are thriving in the energy sector, including integrated energy service providers, virtual power plants, and new energy storage enterprises. Private enterprises have become the main force in China’s new energy sector, making up about 60 percent of all wind turbine manufacturers and almost all photovoltaic equipment manufacturers. The reform of oil and gas institutions is making further progress. A national oil and gas pipeline network corporation has been established, gradually creating a landscape wherein oil and gas are supplied by multiple entities through diverse channels, transported via a unified, highly efficient network of pipelines, and sold in a fully competitive market.

建设全国统一的能源市场。加快建设全国统一电力市场体系，省、区域、省间交易高效协同，中长期、现货、辅助服务交易有机衔接。组建电力交易中心、石油天然气交易中心和煤炭交易中心，搭建公开透明、功能完善的能源交易平台。全国市场化交易电量占全社会用电量比重由2016年的17%提高到2023年的61.4%，2023年风电光伏市场化交易电量占风电光伏总发电量的47%，有力促进了电力资源的优化配置和可再生能源的高效利用。

Developing a unified national energy market. China has accelerated progress on a unified national electricity market system that efficiently coordinates trade within and between provinces and regions and integrates medium- and long-term trade, spot trading, and trade in ancillary services. Trading centers for electricity, oil and gas, and coal have been established to create open and transparent energy trading platforms with complete functions. The share of market-traded electricity as part of the national total electricity consumption increased from 17 percent in 2016 to 61.4 percent in 2023. The share of market-traded wind and photovoltaic power accounted for 47 percent of total wind and photovoltaic power generation in 2023. These developments have contributed to a better allocation of electricity and a more efficient utilization of renewable energy.

完善能源价格形成机制。深化能源价格市场化改革，有序推动各类电源参与市场，不断完善新能源上网电价政策体系，全面放开工商业销售电价。建立煤电容量电价机制，推动煤电由基础性电源向支撑性调节性电源转变。出台系列促进节能减排的高耗能行业阶梯电价政策，完善分时电价政策，引导用户削峰填谷、错峰用电。构建起以“准许成本+合理收益”为核心、激励约束并重的自然垄断环节价格监管体系。健全灵活反映国际市场原油价格和国内供需形势变化的成品油价格形成机制。有序推进天然气门站价格市场化改革。煤炭中长期合同制度和市场价格形成机制不断完善。

Improving energy price formation mechanisms. Market-based energy pricing reform is furthering in China. The country encourages the orderly market trading of electricity from various energy sources and works consistently to improve its feed-in tariff policies for new energy. It has completely removed price controls over electricity for industrial and commercial use. China has established a capacity tariff mechanism for coal-fired power to transition coal from being the primary power source into serving a supporting and balancing role. The country has issued policies on tiered electricity pricing for energy-intensive industries to help conserve energy and reduce emissions. It has improved its pricing policy based on time of use to guide power users to reduce peak demand and shift their energy use to off-peak hours. It has established a price regulation system for natural monopolies that is based on authorized costs plus reasonable profits, and places equal emphasis on both incentives and constraints. Additionally, the country has improved its refined oil pricing mechanism to better reflect changes in international crude oil prices and domestic supply and demand dynamics. Advances have also been made in the market-oriented reform of natural gas citygate prices, as well as in the medium- and long-term contract system and market-based price formation mechanism of coal.

（二）加强政府引导和服务

2. Strengthening Government Guidance and Services

加快推进政府职能转变，发挥国家发展规划的战略导向作用，加强财税、投融资等宏观政策协调配合，加强市场监管，优化公共服务，确保在能源转型中实现效率和公平有机统一。

China has been accelerating the transformation of government functions and bringing into full play the strategic guiding role of national development plans. It has strengthened the coordination of fiscal, taxation, investment, financing, and other macroeconomic policies, reinforced market regulation, and improved its public services, in order to ensure both efficiency and fairness in its energy transition.

强化规划引领。实施能源生产和消费革命战略，制定能源发展中长期规划、五年规划以及可再生能源发展等系列专项规划，对能源绿色低碳发展进行总体部署，发挥规划对能源转型、重大能源项目布局、公共资源配置、社会资本投向的导向作用。加强能源与生态环保、国土空间等领域规划衔接，强化绿色低碳转型的要素保障。

Boosting the guiding role of development plans. China has been promoting a strategy to optimize energy production and consumption. It has formulated medium- to long-term and five-year overall plans for the energy sector as well as special plans for the development of renewable energy. All of them are overarching plans for green and low-carbon development of the energy sector. They guide the directions for energy transition, the deployment of major energy projects, the allocation of public resources, and the use of private investment. China has strengthened coordination of its plans on energy with those on eco-environmental protection and territorial space utilization so as to provide essential safeguards for the green and low-carbon transition.

加强政策支持。适应绿色低碳转型需要，健全清洁能源相关标准体系。制定绿色低碳转型产业指导目录，根据目录制定完善产业支持政策。加大中央预算内投资、地方政府专项债券、国家绿色发展基金等对清洁低碳能源项目支持力度。构建绿色金融体系，引导金融机构在市场化法治化原则下加大绿色贷款投放，支持企业发行绿色债券。优化清洁低碳能源项目核准和备案流程，简化分布式能源投资项目管理程序。

Bolstering policy support. China has taken steps to accommodate the green and low-carbon transition of its energy sector by establishing a system of standards for clean energy. It has introduced a catalogue of industries that support the transition, and has formulated and improved industrial support policies accordingly. Additionally, increasing support from the central budget, local government special bonds, and the National Green Development Fund has been given to clean and low-carbon energy projects. The country is creating a green financial system to guide financial institutions in increasing green loans under market principles in accordance with the rule of law, while also supporting enterprises in issuing green bonds. Furthermore, the country has optimized the approval and registration process for clean and low-carbon energy projects, and streamlined the management procedures for distributed energy investment projects.

提升监管效能。健全能源领域自然垄断环节监管制度，推动电网、油气管网设施向第三方无歧视公平开放。持续对市场交易、价格机制、信息披露等加强监管，及时纠正扰乱市场秩序行为，确保市场规则有效执行。加强能源重大规划、政策、项目落实情况监管，加大可再生能源消纳保障、调节性电源建设运营、农村电网巩固提升等方面监管力度。创新能源监管方式，建立以信用为基础的新型监管机制，推广“互联网+”监管。建立健全大电网安全风险管控、电力应急、大坝安全、网络安全风险管控等电力安全监管体系，确保电力系统安全稳定运行和电力可靠供应。

Raising the efficacy of oversight and regulation. China has worked to improve its regulation of natural monopolies in the energy sector. The country promotes non-discriminatory and fair access to power grid and oil and gas pipeline facilities by third parties. It has been strengthening regulation of market transactions, pricing mechanisms, and information disclosure. Actions that disrupt market order are swiftly rectified to ensure that market rules are observed. Oversight on the implementation of major plans, policies, and projects has also been strengthened, and renewable energy integration and consumption, the construction and operation of electricity balancing facilities, and the consolidation and upgrading of power grids in rural areas are also subject to better regulation. New methods of oversight and regulation in the energy sector have been adopted, as a new credit-based regulation mechanism has been established and the internet-based model has been widely promoted. An electricity safety oversight and regulation framework covering risk control of large power grids, power emergency response, dam safety, and cybersecurity risk control have been established and improved to ensure the safe and stable operation of power systems and a reliable supply of electricity.

（三）加强能源转型法治保障

3. Reinforcing the Rule of Law in Energy Transition

坚持科学立法、严格执法、公正司法，发挥法治固根本、稳预期、利长远的保障作用，提升能源治理法治化水平。

China ensures sound lawmaking, strict law enforcement, and impartial administration of justice. It applies the rule of law in consolidating the foundations of the energy sector, stabilizing public expectations, and delivering long-term benefits. The goal is to reinforce the rule of law in energy governance.

健全法律制度体系。中国建立了以节约能源法、可再生能源法为基础，以清洁生产促进法、循环经济促进法、碳排放权交易管理暂行条例等为重要支撑的能源转型法律制度体系。推进生态环境法典编纂，加快制定能源法，修订可再生能源法、电力法，进一步健全促进绿色生产和消费的法规制度体系，强化节约用能、提升非化石能源发展目标、优先使用可再生能源、促进绿色能源消费等激励约束制度。

Developing a complete legal system. China has established a comprehensive legal framework to support its energy transition. This legal framework mainly comprises the Energy Conservation Law and the Renewable Energy Law, supplemented by the Cleaner Production Promotion Law, the Circular Economy Promotion Law, the Interim Regulations on the Administration of Carbon Emissions Trading, and others. China is also working to establish an eco-environmental code, and to accelerate the formulation of an energy law. There are also plans to revise the Renewable Energy Law and the Electric Power Law. These efforts aim to better promote green production and consumption, and to strengthen incentives and constraints that encourage energy conservation, non-fossil fuel development, renewable energy prioritization, and green energy use.

提升依法行政水平。深入推进法治政府建设，将法治贯穿于能源战略、规划、政策、标准的制定实施和监督管理全过程。在能源领域全面推行行政执法公示制度、全过程记录制度、重大执法决定法制审核制度，健全行政裁量权基准制度，严格规范公正文明执法。深化行政复议制度改革，优化行政复议受理程序、证据规则、审理模式，依法保障企业和人民群众在能源生产和消费活动中的合法权益。深入开展能源法治宣传教育，全面落实“谁执法谁普法”普法责任制，促进全社会自觉履行绿色消费义务。

Advancing law-based government administration. China has made further efforts to improve its law-based government administration. The country ensures that the rule of law is integrated throughout the formulation, implementation, supervision and management of its energy strategy and related plans, policies and standards. It has applied a system for disclosing information on administrative law enforcement, a recording system for the whole process of law enforcement, and a legal review system for major law enforcement decisions. It has established a system of benchmarks for administrative discretion to promote strict, procedure-based, impartial, and non-abusive law enforcement. Additionally, China is moving forward with the reform of its administrative review system to improve the procedures for accepting administrative review applications, rules on evidence, and review mechanisms, to protect the lawful rights and interests of enterprises and citizens in energy production and consumption. The country is also carrying out in-depth legal awareness activities in the energy sector and has implemented a responsibility program in which law enforcement departments are responsible for raising public awareness of the law to ensure that the entire society fulfills its obligations of green consumption.

加强能源司法服务。全方位完善能源高质量发展的司法服务举措，以公正司法推动实现碳达峰碳中和目标。最高人民法院设立环境资源审判庭，全国共有2800个环境资源专门审判机构、组织，专门审理与生态文明法治建设相关的案件。发布相关司法解释和指导意见，明确法院在审理能源转型相关案件中的法律适用和裁判规则指引。

Improving judicial services. China has made all-round efforts to improve judicial services to support high-quality development of the energy sector and to achieve its peak carbon and carbon neutrality goals through impartial administration of justice. The Supreme People’s Court has established an Environment and Resources Division to handle cases related to the rule of law in the eco-environmental field, and nationwide there are 2,800 special institutions and organizations where such lawsuit cases are heard. The authorities have published judicial interpretations and guidelines to provide clear guidance for courts in applying the law and adjudicating cases related to energy transition.