To the People's Governments of All Provinces, Autonomous Regions, and Municipalities, Relevant Ministries and Commissions of the State Council, Directly Affiliated Institutions, and Relevant Central Enterprises: The 15th Five-Year Plan for the Construction of a New Energy System has been approved by the State Council. It is hereby printed and distributed to you for earnest implementation. National Development and Reform Commission National Energy Administration June 13, 2026
Partial Original Text:
Ⅱ. Build an Advanced and Adaptive New Energy Infrastructure System
(1) Continuously Expand the Supply Scale of Non-Fossil Energy
Promote integrated and diversified development of new energy. Adhere to the simultaneous development of centralized and distributed energy, as well as power generation and non-power applications. Strengthen complementary development of multiple new energy varieties, intensive spatial utilization, and integrated operation. Advance the large-scale and steady development of onshore wind power and photovoltaic power generation, expand offshore wind power to deep and open seas, and scale up concentrated solar power and marine energy. Promote the construction of integrated "wind-solar-biomass" projects. Improve the grid-connected performance of new energy and build a batch of system-friendly new energy power stations. Actively advance the development of geothermal energy, hydrogen energy, and green fuels, and double the scale of non-power utilization of new energy. Establish and improve a comprehensive evaluation index system for new energy consumption, with the proportion of new energy power generation reaching 30% by 2030.
Advance hydropower development with a focus on hydro-wind-solar integration. High-quality construction of hydropower projects in the lower reaches of the Yarlung Zangbo River; orderly advance major projects such as Cihaxia, Longpan, and Gangtuo; and conduct research and demonstration on hydropower planning in the Nu River Basin. Accelerate the planning and construction of hydro-wind-solar integration bases in major river basins. Coordinate the adjustment of hydropower planning in major river basins, and promote capacity expansion and upgrading of hydropower units. Implement the high-quality development plan for hydropower in the Yangtze River Basin. Carry out green transformation and upgrading of small hydropower stations. The installed capacity of conventional hydropower will reach about 410 million kilowatts by 2030.
Develop nuclear power actively, safely, and orderly. Focus on third-generation pressurized water reactor technology and maintain a steady pace of nuclear power construction. Actively and steadily advance the R&D and demonstration projects of advanced reactor types. Promote comprehensive utilization of nuclear energy based on local conditions. The installed capacity of in-operation nuclear power will reach about 110 million kilowatts by 2030.
(2) Build a New Power System Adapted to High Proportion of New Energy
Accelerate the construction of new power grids. Promote the construction of transmission channels for delivering power from clean energy bases, optimize the power source structure at the sending end, and improve transmission capacity, utilization efficiency, and the proportion of clean power. Strengthen grid interconnection between regions such as Central China-Southern China, Central China-Eastern China, Northern China-Eastern China, and Central China-Northwest China, increasing complementary capacity by about 40 million kilowatts. Consolidate and improve the national main grid structure based on regional synchronous grids with asynchronous interconnection between regions. Transform distribution grids into efficient resource allocation platforms for sources, grids, loads, and storage, aiming to have the capacity to connect 900 million kilowatts of distributed new energy by 2030. Accelerate the construction of smart grids and intelligent dispatching systems to improve new energy consumption levels. Develop smart microgrids and direct green power connections based on local conditions.
Transform thermal power into supporting and regulating power sources. Optimize the layout of thermal power, and reasonably control the scale of coal-fired power installed capacity and power generation. Implement upgrading of a new generation of coal-fired power to enhance efficient regulating capabilities such as deep peak shaving and rapid ramping. Encourage clean and low-carbon technologies such as blending zero-carbon/low-carbon fuels and carbon capture, utilization, and storage (CCUS). Continue to promote the decommissioning and life extension of coal-fired power units. Reasonably plan and construct natural gas power stations, and increase the demonstration and application of localized gas turbines.
Optimize energy storage construction and dispatching. Reasonably layout and actively develop pumped storage power stations in an orderly manner. Vigorously develop new energy storage, accelerate the development of long-duration energy storage, encourage the development of multiple technical routes, and expand the application of new energy storage in power source coordinated operation, grid stability support, microgrids, and virtual power plants. Innovate dispatching methods for new energy storage and reasonably improve utilization levels. The installed capacity of pumped storage will reach about 160 million kilowatts, and new energy storage will reach 300 million kilowatts by 2030.
Build a flexible and elastic power load ecosystem. Fully tap the regulating potential on the user side, and increase the proportion of demand response relying on the new power load management system. Make full use of electric vehicle storage resources, explore the integrated interaction of vehicles, piles, stations, and grids, comprehensively promote intelligent and orderly charging, and expand the large-scale application of vehicle-grid interaction, with the aggregated adjustable charging scale reaching about 50 million kilowatts by 2030. Accelerate the large-scale development of virtual power plants, with their regulating capacity reaching over 50 million kilowatts by 2030.
(3) Promote the Transformation and Upgrading of Fossil Energy Production and Supply
Build a modern coal supply chain and industrial chain. Promote green coal mining based on local conditions, and carry out intelligent coal mine construction in a classified and graded manner. Strengthen coal washing and processing, and improve the quality standard system of commercial coal. Deepen co-mining of coal and coalbed methane, promote resourceful and ecological utilization of gangue and mine water, and steadily advance methane emission control in the coal industry. Accelerate the integrated development of coal and new energy, and utilize sites such as coal mining subsidence areas to develop wind power and photovoltaic power generation. Strengthen the upgrading of coal production and storage and transportation facilities. Enhance clean and efficient utilization of coal, promote fractional utilization of oil-rich coal, and encourage the development of innovative products such as coal-based special fuels and coal-based new materials.
Promote the transformation of oil and gas fields and refining and chemical industries. Carry out large-scale integrated development of onshore oil and gas fields with new energy, explore coordinated development of offshore oil and gas fields and offshore wind power, promote the construction of regional CCUS industrial clusters, increase the electrification rate of oil and gas field production, and build low-carbon and zero-carbon oil and gas fields. Adhere to the principle of "reduction replacement," strictly control the scale of refining capacity, and guide the optimized restructuring of refining capacity of large enterprises and in key regions. Accelerate energy-saving and low-carbon transformation of the refining industry, steadily increase the proportion of green power and green hydrogen used in the petrochemical industry, and promote pilot projects of coupled development of nuclear power and petrochemical industry. Improve the yield of chemical oil, special oil products, and high-end new materials.
Column 3 Key Projects for New Energy Infrastructure
Wind and Photovoltaic Bases
Focus on the Kubuqi, Ulan Buh, Tengger, and Badain Jaran Deserts, supplemented by other deserts, gobi, and barren areas, to build large-scale wind and photovoltaic bases mainly for external power transmission. Promote the integrated project of desertification control and wind-photovoltaic development in the "Three Norths" regions (Northeast, North, and Northwest China). Continue to advance the construction of new energy bases in Xinjiang, the upper reaches of the Yellow River, the Hexi Corridor, the "J-bend" of the Yellow River, northern Hebei, and Songliao. Develop offshore wind power bases in the Bohai Sea, Yellow Sea, East China Sea, and South China Sea.Hydro-Wind-Solar Integration Bases
Accelerate the construction of pilot hydro-wind-solar integration bases in basins such as the Yalong River, upper reaches of the Jinsha River, upper reaches of the Lancang River, and southeastern Tibet (Yucha). Plan and advance other major basin bases such as the Dadu River, upper reaches of the Yellow River, middle and lower reaches of the Jinsha River, and Yarlung Zangbo River. Explore the development of new hydro-wind-solar integration bases with pumped storage as the main regulating power source in qualified regions such as the Northwest and Southwest China.Hydrogen Energy and Green Fuels
Build a batch of green hydrogen-ammonia-alcohol production base projects in regions such as Northeast China (including eastern Inner Mongolia), the "J-bend" of the Yellow River, northern North China, and the northern foot of the Tianshan Mountains based on local conditions. Study and demonstrate the feasibility of transmitting power from wind and photovoltaic bases to consumption areas for hydrogen production. Support Shanghai in building an international shipping green fuel refueling and trading center. Start the construction of the Inner Mongolia Ulanqab-Beijing-Tianjin-Hebei hydrogen transmission pipeline project, plan and construct cross-provincial hydrogen transmission pipeline projects such as Ordos-Yulin and Bayannur-Ningdong, and study and demonstrate the cross-provincial green methanol special pipeline from Hinggan League-Songyuan-Dalian.Concentrated Solar Power
Build a batch of concentrated solar power projects in regions rich in solar energy resources such as Inner Mongolia, Gansu, Xinjiang, Qinghai, and Tibet. By 2030, the cumulative installed capacity of concentrated solar power will reach 15 million kilowatts.Transmission Channels
Start the construction of external transmission channels for bases such as the Gansu Badain Jaran Desert Base, Xinjiang Taklimakan Desert Base, Northeast Songliao Clean Energy Base, Inner Mongolia Desert Base, and Qinghai Clean Energy Base. Deploy a batch of follow-up external transmission channels in combination with hydro-wind-solar integration bases such as the upper reaches of the Lancang River in Southwest China and wind-photovoltaic bases in deserts, gobi, and barren areas.Grid Flexible Interconnection
Construct inter-regional grid interconnection projects such as Fujian-Jiangxi, Anhui-Hubei, Shandong-Jiangsu, Chongqing-Guizhou, Hunan-Guizhou, and Hunan-Guangdong, as well as inter-provincial interconnection projects within regional grids such as Heilongjiang Linhai-Jilin Ping'an, Xinjiang Hami-Gansu Dunhuang, Ningxia Tiandushan-Gansu Baiyin, Anhui Guangde-Zhejiang Pingyao, Sichuan-Chongqing UHV enhancement, and Hainan-Guangdong third AC interconnection. Plan and add a batch of power interconnection projects.Direct Green Power Connections
Promote the construction of direct green power connection projects for emerging industries such as computing power centers, key energy-consuming industries with green power consumption proportion requirements, and export enterprises with green power traceability needs. Encourage industrial parks, zero-carbon parks, and incremental distribution grids to expand multi-user direct green power connection scenarios.
Ⅳ. Build a Green and Low-Carbon Energy Consumption System
(7) Advance Energy Conservation and Carbon Reduction with Greater Efforts
Strengthen energy conservation and clean substitution in key fields. Promote the application of energy-efficient production processes and technologies in the industrial sector, optimize the path of clean energy substitution, and steadily reduce the scale of coal-fired self-provided power plants. Strengthen building energy efficiency management, promote large-scale development of ultra-low energy consumption buildings and low-carbon buildings, promote integrated application of renewable energy in buildings, and advance the development of building-integrated photovoltaics. Actively develop multi-modal transport, build low-carbon and zero-carbon transport corridors, and strengthen the development and utilization of clean energy in railways, highways, ports, waterways, and hub stations. Enhance energy conservation and efficiency improvement of new high-energy-consuming industries such as computing power. Deepen energy conservation and carbon reduction transformation in public institutions. Accelerate the coverage of new electricity consumption with new clean energy power. Improve the electrification level of terminal energy consumption.
Strengthen energy conservation and carbon reduction management. Fully implement the dual control system for carbon emissions, strictly conduct energy conservation and carbon reduction review and evaluation, and strengthen the planning layout and capacity regulation of key energy-consuming projects. Accelerate the construction of the national carbon market, and prioritize the implementation of total quota control for industries with relatively stable total carbon emissions. Steadily promote the development of voluntary emission reduction projects in the energy sector. Establish and improve the carbon accounting mechanism for the energy industry and policies for carbon footprint management of basic energy products, and promote the accounting and certification of non-fossil energy power consumption. Key regions for air pollution prevention and control will continue to implement total coal consumption control, and new, renovated, and expanded coal-using projects will implement equal or reduced coal substitution.
(8) Improve the Level of Green Energy Consumption
Promote green and low-carbon transformation of heating systems. Actively develop non-fossil energy heating, increase waste heat recovery and utilization, and promote the application of heat pumps based on local conditions. Promote the construction of regional heating systems for cities and parks, strengthen the integration of non-fossil energy heat sources with existing heating systems, accelerate the upgrading of heating networks, and actively promote the application of "smart heating." Improve the flexible regulating capacity of heat loads. Reasonably layout and construct multi-scale heat and cold storage facilities. Promote the active development of distributed green and low-carbon heating in remote areas. Support the cogeneration transformation of thermal power plants, and promote the joint optimal dispatching of heating systems with power and gas systems. Further promote the replacement of scattered coal.
Strengthen the guarantee of clean energy services for people's livelihood. Coordinate the planning of urban energy infrastructure such as electricity, heating, and gas, and promote the renewal and transformation of urban gas pipelines, heating pipelines, and communities not directly supplied by the power grid. Improve the electrification level of energy consumption for people's livelihood, with per capita annual living electricity consumption reaching 1,500 kilowatt-hours by 2030. Improve the complementary and intelligent open charging infrastructure, with the number of charging infrastructure reaching 40 million by 2030, achieving doubled development. Promote diversified clean heating in northern regions. Strengthen the guarantee of urban gas supply. Further advance the rural energy revolution and innovate the development and utilization of rural clean energy.
Cultivate new scenarios and new formats of energy consumption. Promote the integrated and complementary development of multiple energy sources, guide traditional energy enterprises to transform into comprehensive energy production and service providers, and build a batch of comprehensive energy stations for electricity, gas, heat, hydrogen, etc. Develop energy-consuming industries adapted to the characteristics of new energy based on local conditions, cultivate new models of integrated energy production and consumption, and promote deep integration of sources, grids, loads, and storage. Encourage multi-scenario and diversified utilization of distributed photovoltaics, distributed wind power, biomass energy, and geothermal energy. Promote the construction of zero-carbon factories and parks. Utilize market mechanisms to aggregate user-side resources such as electric vehicles and air conditioning loads, and guide the innovative development of new business entities such as virtual power plants and smart microgrids.
Column 5 Key Tasks for Energy Consumption Transformation
Clean Energy Substitution
Accelerate the transformation of traditional industries such as steel, non-ferrous metals, petrochemicals, chemicals, and building materials, and promote electric boilers, electric heating, and electric auxiliary heating furnaces. Improve the green fuel storage, transportation, and refueling network in key regions, urban agglomerations, and transportation trunk lines, promote the construction of refueling facilities for heavy-duty trucks along major freight corridors, and accelerate the green power transformation of inland shipping such as the Yangtze River. Optimize and expand the utilization direction of natural gas, and promote the blending of hydrogen into natural gas.Charging Infrastructure
Build a charging infrastructure network with urban coverage, highway corridors, and rural points. Create an intercity charging network that effectively meets the long-distance travel needs of electric vehicles. Increase the proportion of fast charging facilities. Explore application scenarios for battery swap facilities based on local conditions.Rural Energy Revolution
Deeply implement the "Thousands of Towns and Ten Thousand Villages Wind Power Action" and "Thousands of Households Solar Power Action," build village-level photovoltaic poverty alleviation power stations based on local conditions, and standardize the development of models such as agriculture-photovoltaic integration and animal husbandry-photovoltaic integration. Guide the deep integration of new energy with agricultural production and surrounding industries. Strengthen energy security in rural areas prone to natural disasters, with insufficient power supply, and not covered by the main power grid.
