To the development and reform commissions and energy bureaus of all provinces, autonomous regions, municipalities directly under the Central Government, and the Xinjiang Production and Construction Corps; the Beijing Municipal Commission of Urban Management; the Tianjin Municipal Bureau of Industry and Information Technology; the Liaoning Provincial Department of Industry and Information Technology; the Shanghai Municipal Commission of Economy and Informatization; the Chongqing Municipal Commission of Economy and Informatization; the Gansu Provincial Department of Industry and Information Technology; all dispatched offices of the National Energy Administration; and relevant central enterprises:

To fully implement the spirit of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, implement the Energy Law of the People's Republic of China, improve the policies and measures for the absorption and regulation of new energy, and strongly support the construction of a new energy system and a new power system, the following guidelines are hereby put forward.
I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will thoroughly implement the new energy security strategy of "Four Revolutions and One Cooperation". Adhering to the principles of systematic thinking, classified policies, diversified absorption, market orientation, safety as the foundation, and innovation-driven development, we will improve measures for new energy absorption, optimize system regulation, and promote the high-quality absorption of new energy while advancing its large-scale development.
By 2030, a coordinated, efficient and multi-level regulatory system for new energy absorption will be basically established, which will continuously ensure the smooth grid connection, diversified utilization and efficient operation of new energy. The new electricity demand will be mainly met by the newly added 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 of the power market to promote new energy absorption will be more improved, and cross-provincial and inter-regional new energy transactions will be smoother. This will meet the reasonable absorption demand of over 200 million kilowatts of newly added new energy across the country every year and help achieve the carbon peaking goal.
By 2035, a new power system adapted to a high proportion of new energy will be basically built, and the regulatory system for new energy absorption will be further improved. The national unified power market will play a fundamental role in the allocation of new energy resources, enabling the optimal allocation and efficient absorption of new energy nationwide and supporting the achievement of the country's nationally determined contributions goals.
II. Classified Guidance on the Development and Absorption of New Energy
(1) Coordinate the External Transmission and Local Absorption of New Energy Bases in Desert, Gobi and Barren Areas
We will fully implement the decisions and arrangements of the Party Central Committee on desertification prevention and control, as well as the development and layout plans for new energy bases in desert, gobi and barren areas, and promote both external transmission and local absorption of electricity from these bases. We will focus on rationally arranging external power transmission bases in deserts, gobi, barren lands, desertified areas and salinized areas to improve the economic efficiency of the bases. A responsibility system for both power-sending and power-receiving regions to implement national strategies will be established, and the responsibility of power-receiving regions for new energy absorption will be strengthened. Through measures such as the integrated development of new energy, the gradient transfer of industries from eastern regions, and the tapping of absorption potential in western regions, we will promote the large-scale local absorption of electricity from new energy bases in desert, gobi and barren areas.
(2) Optimize the Integrated Development and Absorption of Hydropower, Photovoltaic and Wind Power Bases
Relying on large hydropower bases in southwest China, we will optimize the allocation of new energy with full consideration of the regulatory characteristics of hydropower. For existing hydropower external transmission channels with suitable conditions, we will rationally add new energy allocation to improve the utilization efficiency of the channels. In conjunction with the development of the lower Yalong River hydropower base, we will optimize and assess the plans for new energy allocation, transmission and absorption.
(3) Promote the Regulated and Orderly Development and Absorption of Offshore Wind Power
In response to the requirements for the high-quality development of the marine economy, we will scientifically arrange the layout of offshore wind power, continue to promote the development of near-shore wind power, and steadily advance the construction of deep-sea and distant-sea wind power bases. We will comprehensively optimize the offshore power transmission network, intensively arrange submarine cable corridors and landing points, realize the centralized transmission of electricity from offshore wind power bases, and mainly achieve local absorption in coastal areas.
(4) Promote the Scientific and Efficient Development and Absorption of Centralized New Energy within Provinces
Considering resource conditions and electricity demand growth, and in line with the requirements for fulfilling the responsibility weight of renewable energy power absorption, we will scientifically arrange the layout of centralized new energy within provinces, optimize the development structure, reasonably control the construction pace, strengthen the building of regulatory capacity, improve the grid bearing capacity, and ensure the efficient absorption of new energy. Pilot surveys of new energy resources will be well conducted.
(5) Actively Expand the Development and Absorption Space for Distributed New Energy
We will fully tap the potential of distributed new energy resources and expand the application scenarios for its development. We will enhance the self-regulation capacity of distributed new energy and increase the proportion of electricity generated and consumed locally. We will revise the standards for assessing the grid-connection capacity of distributed new energy and release the available capacity of the public power grid for accepting distributed new energy.
III. Vigorously Promote the Innovative Development of New Models and Formats for New Energy Absorption
(6) Innovate the Integrated Development Model of New Energy
We will formulate policies and measures to promote the integrated development of new energy, and support regions rich in new energy resources such as desert, gobi and barren areas to strengthen the coordination of upstream and downstream industrial chains of new energy and establish an integrated industrial development system. We will raise the level of green power application in the manufacturing of new energy equipment to achieve "green production driven by green energy". We will make overall plans for the layout of integrated industries for the production, storage, transportation and application of green fuels such as green hydrogen, ammonia and alcohols, and develop "flexible loads". The construction of zero-carbon parks will be promoted.
(7) Promote the Integrated Development of New Energy and Industries
We will actively advance the coordinated alignment between the gradient transfer of industries in eastern regions and the local absorption of electricity from new energy bases, and steadily promote the transfer of energy-intensive industries to western regions with abundant clean energy advantages. Traditional industries will be encouraged to innovate their technological processes, enhance load flexibility, and increase the use of new energy in heating, cooling and power supply sectors. We will support regions rich in new energy resources to realize the integrated development of strategic emerging industries such as information technology, high-end equipment manufacturing and new materials with new energy. We will strengthen the coordinated planning, layout and optimized operation of new energy and computing facilities to promote the green development of computing infrastructure.
(8) Support the Development of New Formats for Local New Energy Absorption
We will promote the healthy and sustainable development of new formats for local new energy absorption, such as the integration of energy sources, grids, loads and energy storage, direct green power connection, smart microgrids, and the access of new energy to incremental distribution networks. We will support the local grid connection of new energy, and improve the green power consumption level of industrial parks, buildings, export-oriented enterprises and energy-intensive enterprises, as well as the power supply guarantee capacity in remote areas. We will formulate and improve supporting policies, management systems and technical standards by category, strengthen overall coordination with power grid planning, clarify the boundaries of safety, economic and social responsibilities with the public power grid, enhance self-balancing and self-regulation capabilities, and exclude the curtailment of new energy from statistical accounting.
IV. Enhance the Adaptability of the New Power System to New Energy
(9) Accelerate the Improvement of System Regulation Capacity
We will actively promote the construction of key reservoir power stations in river basins and the capacity expansion and upgrading of existing hydropower stations. The construction of pumped storage power stations will be accelerated to give full play to their multiple roles such as peak shaving and valley filling. We will vigorously promote the construction of advanced, safe and efficient new energy storage facilities, tap the regulatory potential of energy storage supporting new energy projects, and improve their utilization efficiency. We will appropriately arrange peak-shaving gas-fired power plants and construct solar thermal power stations based on local conditions. We will promote the transformation and upgrading of a new generation of coal-fired power and replace power generation from coal-fired self-provided power plants with new energy. We will give full play to the role of virtual power plants in aggregating regulatory resources on the load side and expand the large-scale application of vehicle-grid integration.
(10) Improve the Grid's Capacity to Accept New Energy
We will accelerate the construction of a new power grid platform featuring the coordination of main grids, distribution networks and microgrids to enhance the grid bearing capacity. We will optimize the national power flow direction, further expand the scope of new energy resource allocation, and steadily increase the scale of cross-provincial and inter-regional power transmission channels. We will make full use of the complementary characteristics of regulatory resources and new energy output among different regions and provinces, rationally arrange flexible interconnection power grid projects, and improve the mutual support capacity. We will strengthen the construction of the main power grid framework to enhance the grid-connection and acceptance capacity for new energy. We will vigorously promote the construction, transformation and intelligent upgrading of distribution networks, and accelerate the development of a new distribution system suitable for the access of large-scale distributed new energy. The coordinated development of smart microgrids and the main power grid will be promoted according to local conditions.
(11) Optimize the New Energy Regulation Model
We will establish a new power dispatching system, further clarify the regulatory relations and responsibility scopes of dispatching agencies, power grids at all levels, centralized new energy projects and distributed new energy projects, strengthen the capacity of municipal and county-level dispatching agencies, and comprehensively improve the capabilities of monitoring, metering, regulation and control, as well as the level of intelligent regulation. We will explore a coordinated regulation model for clusters of new energy bases in desert, gobi and barren areas, hydropower-photovoltaic-wind power bases, and offshore wind power bases, and accelerate the integrated output curve regulation of new energy and supporting energy storage facilities within the bases. We will revise the power dispatching management systems and strengthen the supervision of power dispatching.
(12) Strengthen the Safety Governance of the New Power System
We will strengthen the analysis of power grid safety and stability during the planning phase of new energy bases and the management of power grid safety and stability during the operation phase. We will deepen the operational risk control of active distribution networks and establish and improve a sound risk identification, monitoring and control system. We will improve the safety management systems for new energy and new grid-connected entities related to grid operations, strengthen the whole-cycle control of grid-related safety performance and parameters, strictly implement the grid-related performance evaluation procedures, standardize grid-connection and operation management, and strengthen cyber security control.
V. Improve the National Unified Power Market System to Promote New Energy Absorption
(13) Expand the Multi-level Market-oriented System for New Energy Absorption
To adapt to the fluctuating characteristics of new energy output, we will shorten the medium and long-term transaction cycle, realize flexible and continuous transactions, promote the multi-year power purchase agreement mechanism, and stabilize the long-term new energy absorption space. We will give full play to the role of the spot market, strengthen its connection with demand-side response mechanisms, guide system regulatory resources to actively participate in regulation, improve the mechanism for user participation in spot market transactions, and stimulate the flexible regulation potential of users. We will rationally set up power auxiliary service trading varieties, improve the mechanism for transferring related costs to users, and ensure the stable operation of the system during the large-scale development of new energy. We will consolidate the basic foundation for cross-provincial new energy absorption through inter-provincial medium and long-term transactions, flexibly respond to the short-term new energy absorption demand through inter-provincial spot transactions and inter-provincial mutual-aid transactions within regions, and promote the regular trading of new energy power across power grid operation areas.
(14) Improve the Rule System for New Energy Participation in the Power Market
We will promote the establishment of trading rules for the integrated models of new energy bases in desert, gobi and barren areas as well as hydropower-photovoltaic-wind power bases to participate in the market. We will support new entities such as distributed new energy projects, energy storage facilities and virtual power plants to participate in the power market through aggregation and direct trading. We will study and promote the direct participation of new energy projects and users in cross-provincial and inter-regional power market transactions, and develop a market pricing method that conforms to the power generation characteristics and distribution pattern of new energy. We will improve mechanisms such as price limits in the power market and give full play to the role of price signals in guiding new energy absorption. We will actively promote the high-quality development of the green certificate market, advance the coordination among the power, green certificate and carbon markets, and scientifically reflect the environmental value of new energy.
(15) Innovate the Pricing Mechanism to Promote New Energy Absorption
We will establish and improve the formation and adjustment mechanism for the transmission prices of cross-provincial and inter-regional new energy, and encourage various power sources in new energy external transmission bases to formulate unified transmission prices. We will enhance the flexibility of the transmission pricing mechanism for cross-provincial and inter-regional channels and study the relevant pricing mechanisms for offshore wind power transmission projects. We will implement and improve the electricity pricing mechanism to promote the local absorption of new energy, and improve the capacity pricing mechanism for regulatory resources such as coal-fired power, pumped storage and new energy storage. We will accelerate the effective transmission of market price signals to end users, improve the retail market pricing mechanism that reflects the time-of-use value differences, and study the establishment and improvement of the time-of-use electricity pricing mechanism for residential users.
VI. Strengthen Technological Innovation Support for New Energy Absorption
(16) Breakthrough Key Technologies for Efficient New Energy Power Generation and Utilization
We will strengthen the R&D of high-efficiency and low-cost photovoltaic and wind power technologies, and carry out pilot projects for ultra-high-power deep-sea and distant-sea wind turbines. We will accelerate the improvement of the accuracy of new energy power prediction over different time scales, including ultra-short-term, short-term and medium-to-long-term periods.
(17) Tackle Key Problems in Flexible System Regulation Technologies
We will innovatively apply various technological routes such as flow batteries, compressed air energy storage and gravity energy storage, and accelerate the breakthrough of large-capacity and long-duration energy storage technologies. We will promote the development of new pumped storage power stations with variable-speed regulation capabilities. We will further apply the coordinated operation and control technologies of virtual power plants and multi-type transaction technologies, and expand the application of flexible regulation technologies for new types of loads. The pilot application and promotion of a new generation of coal-fired power will be accelerated.
(18) Strengthen Power Grid Operation Technologies
We will strengthen the research on efficient simulation and stable operation control technologies for power systems with a high proportion of renewable energy and power electronic equipment. Pilot tests will be conducted on technologies such as UHV flexible DC transmission for power systems with a high proportion of new energy, large-capacity and high-voltage offshore flexible DC submarine cable transmission, and multi-terminal DC isolated operation. We will improve the stable operation technology for power collection in new energy bases and weak power transmission systems. We will promote the application of grid-forming control technologies to enhance the grid-related performance and active support capabilities of new energy. The revision of new energy grid-connection technical standards will be accelerated.
(19) Upgrade Intelligent Regulation Technologies
We will accelerate the application of advanced technologies such as artificial intelligence, big data and cloud computing in the coordination of main grids, distribution networks and microgrids. We will promote the application of condition awareness technologies to improve the grid's dynamic perception capacity of distributed resources. We will speed up the application of integrated control technologies for massive energy sources, grids, loads and energy storage resources, and improve the coordinated regulation technologies for new energy bases.
VII. Guarantee Measures
(20) Optimize the Management Mechanism for New Energy Absorption
We will strengthen the guiding role of planning, set tiered targets for new energy utilization rates in different regions in the five-year power development plan, scientifically coordinate the development and absorption of new energy, and promote the coordinated construction of new energy layout, supporting power grids and regulatory capacity. We will improve the evaluation methods for new energy absorption, and promote the transformation of new energy absorption evaluation from a single utilization rate indicator to a comprehensive evaluation indicator system. Provincial energy authorities will scientifically formulate annual new energy utilization rate targets and three-year outlook plans for their regions, and clarify the annual new energy development and absorption plans. Based on the new energy utilization rate targets and the responsibility weight targets for renewable energy power absorption, the annual newly added development scale of grid-connected new energy (including distributed new energy) will be determined in a coordinated manner. We will meet the requirements for the minimum proportion of renewable energy consumption, accelerate the establishment of a green certificate consumption mechanism combining mandatory and voluntary consumption, and further consolidate the responsibility for renewable energy power absorption.
(21) Clarify the Division of Responsibilities
The National Development and Reform Commission and the National Energy Administration will coordinate the promotion of new energy absorption and regulation work, and guide all provinces to optimize their new energy utilization rate targets and development scales. Provincial energy authorities are the main responsible entities for ensuring local new energy absorption, and shall fully organize the implementation of various absorption measures to achieve the absorption targets. Power grid enterprises are the main responsible entities for ensuring the grid connection and regulated operation of new energy, and shall continuously strengthen power grid construction and optimize system operation. Power generation enterprises shall enhance their reliable replacement capacity for new energy and strengthen the construction of regulatory resources. Various market entities shall actively participate in the interaction with the power system.
(22) Strengthen Monitoring, Supervision and Target Implementation
We will improve the statistics and release of new energy utilization rates and revise the relevant monitoring and statistical management measures as needed. Provincial energy authorities shall establish a full-cycle monitoring and early warning mechanism covering the planning, construction, grid connection and absorption of new energy, and timely analyze the local new energy absorption situation. For regions where the new energy utilization rate drops significantly or fails to meet the target, a scientific assessment of the newly added grid-connected new energy scale shall be conducted to avoid a sharp decline in the utilization rate. The dispatched offices of the National Energy Administration will conduct regular supervision on the implementation of policies and measures for new energy absorption and regulation, and promptly report major issues.

National Development and Reform Commission