Competent departments of industry and information technology, ecological and environmental protection, commerce, market supervision, financial regulation and energy of all provinces, autonomous regions, municipalities directly under the Central Government, cities specifically designated in the state plan and the Xinjiang Production and Construction Corps; relevant central enterprises; relevant industry associations:
To implement the Law of the People's Republic of China on the Prevention and Control of Solid Waste Pollution and the Action Plan for the Green and Low-Carbon Development of the Manufacturing Industry (2025-2027), and to raise the level of comprehensive utilization of photovoltaic modules, the following opinions are put forward.
I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will fully implement the guiding principles of the 20th National Congress of the Communist Party of China and all its plenary sessions, earnestly implement the arrangements of the National Congress on Promoting New-Type Industrialization, and aim to comprehensively improve the level of comprehensive utilization of photovoltaic modules. We will improve relevant laws, policies and standards, strengthen the research and development of processes and technologies, expand the application paths of products, enhance the support for essential factors, and promote the healthy and orderly development of the photovoltaic module comprehensive utilization industry.
By 2027, the green production level of photovoltaic modules will be further improved, the proportion of recycled materials used will be effectively raised, and the standards for evaluating module scrappage and the inspection and testing methods will be refined. Breakthroughs will be made in key technologies such as the disassembly of surface structures, efficient separation of laminated components and component extraction. The application scale of comprehensive utilization products of waste photovoltaic modules in key fields such as metal smelting, equipment manufacturing and building material production will be further expanded. A number of technical standards for the green design and comprehensive utilization of photovoltaic modules will be formulated, a number of backbone enterprises engaged in the comprehensive utilization of waste photovoltaic modules will be cultivated, and the cumulative comprehensive utilization volume of photovoltaic modules will reach 250,000 metric tons. By 2030, the technical and equipment level of photovoltaic module comprehensive utilization will be further upgraded, the industrial innovation and development capacity will be significantly enhanced, the application scenarios and modes of comprehensive utilization products will be continuously expanded, and a comprehensive utilization capacity of waste photovoltaic modules will be formed with close coordination of the upstream and downstream industrial chain, rational capacity layout and the ability to cope with large-scale decommissioning.
II. Promote the Green Design and Manufacturing of the Photovoltaic Industry
(1) Improve the disassembly and utilization efficiency of photovoltaic modules
We will conduct cleaner production audits in the photovoltaic industry in accordance with the law. Photovoltaic module manufacturers are encouraged to adopt adhesive materials that are easy to disassemble and separate, and explore non-crosslinked structural adhesive film materials to create conditions for efficient disassembly and utilization after scrappage. They are also encouraged to select green raw materials such as fluorine-free backsheets, lead-free solder ribbons and lead-free metal pastes to reduce the environmental disposal costs of photovoltaic module comprehensive utilization. (The Ministry of Industry and Information Technology and the Ministry of Ecology and Environment shall be responsible according to their respective functions and responsibilities)
(2) Increase the proportion of recycled materials used
We will support the strengthened cooperation between manufacturers of photovoltaic module parts and components such as photovoltaic glass, crystalline silicon materials, junction boxes and aluminum frames and renewable resource comprehensive utilization enterprises, so as to raise the proportion of recycled plastics, recycled silicon materials, recycled non-ferrous metals, recycled glass and other recycled materials in module parts and components. On the premise of meeting performance requirements, photovoltaic module manufacturers are encouraged to give priority to purchasing photovoltaic frames, metal pastes, photovoltaic glass and other products with a high content of recycled materials, so as to increase the proportion of recycled materials used in photovoltaic modules. (The Ministry of Industry and Information Technology shall be responsible)
III. Promote the Orderly Scrappage and Decommissioning of Photovoltaic Modules
(1) Clarify the scrappage judgment standards for photovoltaic modules
Combined with the characteristics and performance of installed modules, we will accelerate the research and formulation of technical standards for evaluating photovoltaic module scrappage, and clarify the evaluation procedures, technical requirements and methods for scrappage. We encourage the application of methods such as UAV electroluminescence (EL) imaging detection, thermal imaging detection and artificial intelligence online monitoring to effectively identify the functional and structural integrity, safety level and power attenuation of photovoltaic modules, providing a reference for module maintenance and scrappage judgment. (The Ministry of Industry and Information Technology, the State Administration for Market Regulation and the National Energy Administration shall be responsible according to their respective functions and responsibilities)
(2) Guide relevant parties to standardize the delivery and sale of waste photovoltaic modules
We will guide the owners of photovoltaic modules, including photovoltaic module manufacturers, photovoltaic power stations and power station constructors, to deliver and sell waste products generated in the production process, defective products with quality problems during use, damaged products caused by transportation and construction, and decommissioned modules with low photoelectric conversion efficiency or expired service life to comprehensive utilization enterprises respectively. Where manufacturers, photovoltaic power stations, power station constructors and other parties entrust others to transport, utilize or dispose of scrapped photovoltaic modules, they shall verify the subject qualification and technical capacity of the entrusted parties and agree on the requirements for pollution prevention and control. (The Ministry of Industry and Information Technology, the National Energy Administration, the State Administration of Financial Regulation and the Ministry of Ecology and Environment shall be responsible according to their respective functions and responsibilities) We will improve the policies for the decommissioning management of photovoltaic power stations and guide them to carry out upgrading, transformation and decommissioning in an orderly manner. (The National Energy Administration shall be responsible) We support all regions, relevant industry associations and leading enterprises in building trading platforms for waste photovoltaic modules, strengthen the information sharing of waste module transactions, and improve transaction efficiency and transparency. (The Ministry of Industry and Information Technology and the Ministry of Commerce shall be responsible according to their respective functions and responsibilities)
IV. Promote Green and Efficient Disassembly and Utilization
(1) Improve the refinement level of disassembly
We will accelerate the research and development of efficient disassembly technologies for photovoltaic modules, encourage the application of automatic cleaning, punching, cutting and separating equipment, and improve the efficiency and precision of module disassembly. We will research and develop adaptive disassembly systems for intelligently identifying multi-size and multi-type photovoltaic modules, accelerate the development and application of mobile and modular quick disassembly technical equipment, and promote the "disassemble upon arrival" model to meet the application scenarios of efficient recycling and flexible processing in various terrains and reduce non-technical costs such as handling and transportation. We support the integration of distributed quick disassembly technology with the Internet of Things and intelligent logistics data analysis technology to improve the efficiency of resource allocation for module disassembly. (The Ministry of Industry and Information Technology shall be responsible)
(2) Break through efficient separation processes
We will conduct research on the bonding mechanism of photovoltaic module adhesive films and enrich and improve the theoretical system of low-cost adhesive film dissociation technologies. We will accelerate the research and development of physical, chemical, combined and new separation processes for crystalline silicon single-glass and double-glass modules, tackle key problems in the green and efficient separation technologies of photovoltaic module components and adhesive films, encourage the development of non-destructive disassembly technologies, and explore the ways to obtain intact glass and other materials. See the Annex Key R&D Directions for Efficient Separation Processes for details. (The Ministry of Industry and Information Technology and the Ministry of Ecology and Environment shall be responsible according to their respective functions and responsibilities)
(3) Promote the efficient purification of valuable components of photovoltaic modules
We encourage the extraction of silver from the metal grid lines of crystalline silicon cells, explore the use of non-acidic or weakly acidic solvents for silver leaching, and improve the environmental protection level of the process. We will accelerate the research on reagent recycling technology in the acid leaching silver process and raise the acid solution reuse rate. We will research and reserve the fine purification process for low-silver modules. We encourage the extraction of copper, lead, tin and other metal elements from solder ribbons and bus bars, and the graded and classified utilization of silicon in photovoltaic modules. According to the requirements of polysilicon, aluminum-silicon alloy and organic silicon manufacturers for recycled materials, we will adopt hydrometallurgical, pyrometallurgical and other processes to improve the purity of silicon materials. We will research low-cost extraction technologies for low-value components such as glass, adhesive films and backsheets to improve the comprehensive utilization level of all components of photovoltaic modules. We support comprehensive utilization enterprises in adopting advanced production processes to reduce the environmental impact of the disassembly and utilization process. (The Ministry of Industry and Information Technology and the Ministry of Ecology and Environment shall be responsible according to their respective functions and responsibilities)
(4) Expand the application fields of comprehensive utilization products
Focusing on key application industries such as non-ferrous metals, building materials and chemical industry, we will actively expand the application of photovoltaic module comprehensive utilization products such as silicon, silver, copper, aluminum, glass, backsheets and adhesive films. (The Ministry of Industry and Information Technology shall be responsible)
V. Promote the Collaborative Development of the Whole Industrial Chain of Photovoltaic Module Comprehensive Utilization
(1) Strengthen the coordination of the upstream and downstream of the comprehensive utilization industrial chain
We will promote the establishment of long-term and stable cooperative relations between the generators of scrapped modules such as photovoltaic module manufacturers and photovoltaic power stations and comprehensive utilization enterprises, expand the raw material sources for comprehensive utilization enterprises and improve their raw material security capacity. We will promote the strengthened coordination between comprehensive utilization enterprises and enterprises in product application industries to facilitate the promotion and application of comprehensive utilization products. (The Ministry of Industry and Information Technology and the National Energy Administration shall be responsible according to their respective functions and responsibilities)
(2) Guide the rational layout of comprehensive utilization capacity
Combined with the geographical distribution, scale, completion years and component characteristics of photovoltaic manufacturers and photovoltaic power stations, we will make accurate predictions of the scale of scrappage and decommissioning, and rationally construct supporting comprehensive utilization capacity. Focusing on photovoltaic power station agglomeration areas in the Northwest, East China and North China, we will promote the large-scale development of the photovoltaic module comprehensive utilization industry, and encourage the comprehensive utilization nearby to reduce transportation costs. (The Ministry of Industry and Information Technology and the National Energy Administration shall be responsible according to their respective functions and responsibilities)
(3) Promote the integrated development of the whole industrial chain of disassembly and utilization
We encourage photovoltaic module manufacturers, photovoltaic power stations, comprehensive utilization enterprises and other entities to actively extend the industrial chain, and carry out the integrated layout of technological processes such as the disassembly of photovoltaic module surface structures, separation of laminated components and component extraction, so as to promote the intensification and integration of the production process and facilitate the large-scale development of the industry. (The Ministry of Industry and Information Technology and the National Energy Administration shall be responsible according to their respective functions and responsibilities)
VI. Optimize the Industrial Innovation and Development Environment
(1) Improve laws, regulations and standards
We will accelerate the formulation of the administrative measures for the comprehensive utilization of industrial resources and clarify the main responsibilities of all parties in the comprehensive utilization of waste photovoltaic modules. We will implement the Guidelines for the Construction of the Standard System for the Photovoltaic Industry and the Action Plan for Upgrading the Standards of the New Energy Vehicle, Lithium Battery and Photovoltaic Industries, and encourage enterprises to optimize the design of photovoltaic modules with the goals of light weight, easy disassembly, easy transportation and easy recycling. We will accelerate the research on technical standards for the green design, scrappage, transportation, inspection and testing, comprehensive utilization and product carbon footprint of photovoltaic modules, and improve the testing and certification capacity of technical standards in relevant fields. We will speed up the research on technical standards for the extraction of various components of photovoltaic modules and product standards for key fields of comprehensive utilization of waste photovoltaic modules, and strive to build a closely connected standard system for the comprehensive utilization of photovoltaic modules covering the upstream and downstream of the industrial chain. (The Ministry of Industry and Information Technology, the State Administration for Market Regulation and the National Energy Administration shall be responsible according to their respective functions and responsibilities)
(2) Increase policy support
We support enterprises in the photovoltaic module comprehensive utilization industry to actively apply for the titles of manufacturing individual champion enterprises, specialized, sophisticated, distinctive and innovative small and medium-sized enterprises and high-tech enterprises. We will give play to the role of the national industry-finance cooperation platform and guide financial institutions to provide credit and financing support for green technological transformation of the photovoltaic industry and comprehensive utilization projects of waste photovoltaic modules. We will expand diversified financing channels such as equity and debt, and encourage social capital to actively participate in the comprehensive utilization of waste photovoltaic modules. We will use relevant special funds to increase support for the research and development of advanced comprehensive utilization technologies and equipment. We support the inclusion of advanced technologies such as the disassembly of waste photovoltaic modules and the recovery and purification of rare and precious metals in the Catalogue of Green and Low-Carbon Processes, Technologies and Equipment in the National Industrial and Information Technology Field, strengthen the connection between supply and demand, and accelerate their promotion and application. We will carry out research on topics such as the decommissioning trend, scale and utilization value of photovoltaic modules to lay a solid foundation for the scientific and rational layout of the development of the comprehensive utilization industry. (The Ministry of Industry and Information Technology, the Ministry of Ecology and Environment and the State Administration of Financial Regulation shall be responsible according to their respective functions and responsibilities)
(3) Cultivate leading backbone enterprises in the industry
We encourage qualified photovoltaic industrial parks to carry out the construction of "zero-waste parks", support the strengthened cooperation between photovoltaic module manufacturers, manufacturers of comprehensive utilization products and users of comprehensive utilization products, and cultivate a number of typical cases of industrial green and low-carbon development in the photovoltaic industry. We will accelerate the research and formulation of industry specification conditions for the comprehensive utilization of waste photovoltaic modules, implement standardized management in a timely manner in light of the actual development of the industry, release the list of standardized enterprises, and promote the standardized and high-quality development of the industry. We encourage relevant regions to support the development of the photovoltaic module comprehensive utilization industry by relying on the construction of national industrial resource comprehensive utilization bases. (The Ministry of Industry and Information Technology and the Ministry of Ecology and Environment shall be responsible according to their respective functions and responsibilities)
(4) Strengthen publicity and guidance and international cooperation
Relevant industry associations, research institutions and enterprises shall increase the publicity of the scientific recycling and utilization of photovoltaic modules, and encourage relevant enterprises to strengthen cooperation and exchange through resource coordination, technical cooperation, information sharing and other means to reduce the comprehensive costs of the industrial chain. We support the strengthened cooperation between enterprises in the photovoltaic module comprehensive utilization industrial chain and internationally advanced enterprises, conduct exchanges and mutual learning in technology, talents, management model innovation and other aspects, and enhance international competitiveness. (All departments shall be responsible according to their respective functions and responsibilities)
VII. Strengthen Organizational Guarantee
The competent departments of industry and information technology in regions with a large installed capacity of photovoltaic modules such as the Northwest, East China and North China shall, in conjunction with relevant departments, increase the research and development of comprehensive utilization processes, technologies and equipment and promote their industrial application. Local competent departments of the energy industry shall organize and carry out the upgrading, transformation and decommissioning of photovoltaic power generation projects. Competent departments of ecology and environment shall conduct the unified supervision and management of the prevention and control of environmental pollution caused by scrapped photovoltaic modules in their respective regions. Relevant industry associations shall guide the strengthened cooperation between photovoltaic module manufacturers, photovoltaic power stations, users of comprehensive utilization products and other entities to help foster a sound industrial ecology for comprehensive utilization. Leading backbone enterprises in the industry shall play a leading role, earnestly implement various tasks and work objectives, do a good job in connection with photovoltaic power stations and other entities, and contribute to promoting the comprehensive utilization of photovoltaic modules. (Competent departments of industry and information technology, ecology and environment, energy, market regulation and other departments of relevant regions shall be responsible according to their respective functions and responsibilities)
Annex: Key R&D Directions for Efficient Separation Processes
Ministry of Industry and Information Technology
Ministry of Ecology and Environment
Ministry of Commerce
State Administration for Market Regulation
State Administration of Financial Regulation
National Energy Administration
February 13, 2026
