中国新型能源体系战略：十五五规划下的转型路径与重点任务

The 20th Central Committee of the Communist Party of China, in its fourth plenary session, adopted the "Recommendations of the Central Committee of the Communist Party of China on Formulating the 15th Five-Year Plan for National Economic and Social Development," which proposed accelerating the construction of a new energy system. This is a major decision by the Party Central Committee, based on a profound understanding of global energy trends and the in-depth implementation of the new energy security strategy. It represents a deployment requirement for promoting high-quality energy development and building a strong energy nation in the new era and on the new journey. The period of the "15th Five-Year Plan" is a critical phase for "laying the foundation and building the platform" for China's new energy system. It is essential to adhere to a systemic perspective, balance development and security, consider both immediate needs and long-term goals, rationally grasp the pace and intensity, and accelerate the construction of a clean, low-carbon, safe, and efficient new energy system. This will provide robust energy support for promoting high-quality development and advancing Chinese modernization.

党的二十届四中全会通过的《中共中央关于制定国民经济和社会发展第十五个五年规划的建议》提出，加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。。这是党中央深刻把握全球能源发展大势、深入实施能源安全新战略指习近平总书记提出的“四个革命、一个合作”战略，即推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作。的重大决策，是新时代新征程推动能源高质量发展、建设能源强国的部署要求。“十五五”时期是我国新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。建设“夯基垒台”的关键时期，必须坚持系统观念，统筹发展和安全，兼顾当前和长远，合理把握节奏力度，加快建设清洁低碳安全高效的新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。，为推动高质量发展、推进中国式现代化提供能源支撑。

一、加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的重大战略意义

1. 深入推进能源革命、建设能源强国的必然要求

In 2014, President Xi Jinping creatively proposed the new energy security strategy of "Four Revolutions and One Cooperation," promoting revolutions in energy consumption, supply, technology, and institutions, and strengthening international cooperation across the board. This has charted the course and provided fundamental guidance for energy development in the new era. In 2021, President Xi Jinping called for "accelerating the building of a strong energy nation." Both the 20th National Congress of the CPC and the Third Plenary Session of the 20th Central Committee explicitly stated the need to "accelerate the planning and construction of a new energy system." Accelerating the construction of a new energy system is consistent with the in-depth advancement of the new energy security strategy and the deployment of building a strong energy nation. The new energy security strategy provides scientific guidance for building the new energy system; completing the new energy system is the long-term goal of advancing the new energy security strategy and an inevitable requirement for accelerating the building of a strong energy nation and promoting Chinese modernization.

2014年，习近平总书记创造性提出“四个革命、一个合作”能源安全新战略指习近平总书记提出的“四个革命、一个合作”战略，即推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作。，推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作，为新时代能源发展指明了前进方向、提供了根本遵循。2021年，习近平总书记提出“加快建设能源强国”。党的二十大和二十届三中全会都明确提出要“加快规划建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。”。加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。与深入推进能源安全新战略指习近平总书记提出的“四个革命、一个合作”战略，即推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作。、建设能源强国部署一脉相承。能源安全新战略指习近平总书记提出的“四个革命、一个合作”战略，即推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作。是建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的科学指引；建成新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。是推进能源安全新战略指习近平总书记提出的“四个革命、一个合作”战略，即推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作。的长远目标，也是加快建设能源强国、推进中国式现代化建设的必然要求。

2. 保障能源安全、赢得大国博弈主动的战略选择

The world is undergoing profound changes unseen in a century, with a new round of technological revolution and industrial transformation accelerating breakthroughs. The global energy supply and demand landscape is undergoing deep adjustments, and new and old factors affecting China's energy security are intertwined. Geopolitics, climate change, and energy transition are overlapping and reinforcing each other. In the era of traditional fossil fuels, constrained by resource endowment, China has a high dependence on imported oil and natural gas, becoming the world's largest energy importer. To fundamentally ensure national energy security, the key is to vigorously develop new energy, promote the safe, reliable, and orderly replacement of fossil fuels, shift the energy sector from reliance on traditional resource endowments to greater dependence on technology and demand support, and continuously expand China's advantage of having an ultra-large-scale economy. Therefore, accelerating the construction of a new energy system is conducive to safeguarding the intrinsic security of energy, solidifying the foundation, and increasing confidence in major power competition.

当前世界百年变局加速演进，新一轮科技革命和产业变革加速突破，全球能源供需格局深度调整，影响我国能源安全的新旧因素交织，地缘政治、气候变化与能源转型叠加影响并相互强化。我国在传统化石能源时代，受制于资源禀赋条件，石油天然气对外依存度较高，成为全球最大能源进口国。要从根本上保障国家能源安全，关键是大力发展新能源，推进化石能源安全可靠有序替代，使能源行业由依赖传统资源禀赋转向更多依靠科技和需求支撑，不断扩大我国超大规模经济优势。因此，加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。有利于维护能源本质安全，为大国博弈夯实基础、增加底气。

3. 实现“双碳”目标、推动绿色低碳发展的必由之路

China is a major carbon emitter, with nearly 90% of its carbon dioxide emissions coming from fossil fuel combustion. The Intergovernmental Panel on Climate Change (IPCC) reports indicate that achieving the goals of the Paris Agreement requires substantial changes and a thorough transformation of the energy system within the next 30 years. Unlike conventional pollutant reduction, which can rely on end-of-pipe treatment technologies, controlling carbon emissions must rely more on the green and low-carbon transformation of energy. China has committed to the "dual carbon" goals and aims for non-fossil energy to account for over 80% of its energy consumption by 2060. It is imperative to change the traditional energy system dominated by high-carbon fossil fuels. Simultaneously, accelerating the construction of a new energy system will comprehensively enhance the sophistication of China's energy industrial base and the modernization of its industrial chain, promote the green and low-carbon transformation of the energy and industrial structures, and consolidate and enhance China's competitive advantage in the global green and low-carbon industry.

我国是碳排放大国，近90%的二氧化碳排放由化石能源燃烧所致。联合国政府间气候变化专门委员会（IPCC）报告指出，支撑《巴黎协定》目标实现，需要在未来30年内对能源系统进行实质性改变和彻底转型。相比于常规污染物减排可以依靠末端治理技术进步，控制碳排放必须更多依靠能源绿色低碳转型。我国已承诺“双碳”目标，并明确2060年非化石能源指太阳能、风能、生物质能、水能、核能等非化石类能源，在新型能源体系中将成为供应主体。消费比重达到80%以上。必须改变以高碳化石能源为主的传统能源体系。同时，加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。将全面提升我国能源产业基础高级化和产业链现代化水平，推动能源结构和产业结构绿色低碳转型，在全球巩固提升绿色低碳产业的竞争优势。

4. 我国已具备加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的坚实基础

After years of continuous development, especially since the 18th National Congress of the CPC, China's energy reform and development have achieved historic accomplishments, and solid steps have been taken in building a new energy system. The foundation for energy security has been continuously strengthened, the level of green, intensive development and clean, efficient utilization of energy has been comprehensively upgraded, universal energy service levels have significantly improved, and high-quality, affordable new energy products have benefited the world. From 2012 to 2024, China supported an average annual economic growth of 6.1% with an average annual energy consumption growth rate of 3.4%, and energy intensity cumulatively decreased by 27.1%. China has built the world's largest and most complete new energy industrial chain, supplying over 80% of the world's photovoltaic modules and 70% of wind power equipment. New energy vehicle production and sales have ranked first in the world for ten consecutive years. China has established the world's largest clean power supply system, with cumulative installed capacity of wind and solar power surpassing that of coal power for the first time in 2024. Multiple energy technologies and equipment are globally leading, with ultra-high voltage transmission and advanced nuclear power becoming "Chinese brands." A new situation of mutually beneficial energy international cooperation is rapidly taking shape, with China's green energy investments in Belt and Road Initiative countries exceeding those in traditional energy. It can be said that China already possesses the industrial foundation, technological conditions, and institutional mechanisms to accelerate the construction of a new energy system.

经过多年接续发展特别是党的十八大以来，我国能源改革发展取得历史性成就，新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。建设迈出坚实步伐。能源保障基础不断夯实，能源绿色集约开发和清洁高效利用水平全面升级，能源普遍服务水平大幅提升，质优价廉的新能源产品惠及世界各地。2012年至2024年，我国以年均3.4%的能源消费增速支撑了年均6.1%的经济增长，能耗强度累计下降27.1%。我国已经建成全球最大最完整的新能源产业链，为全球提供80%以上的光伏组件和70%的风电装备，新能源汽车产销量连续10年居世界首位。我国建成了世界上最大的清洁电力供应体系，风电光伏2024年累计装机首次超过煤电。多项能源技术和装备全球领先，特高压输电、先进核电成为“中国名牌”。互利共赢的能源国际合作新局面加快形成，我国在共建“一带一路”国家的绿色能源投资超过传统能源。可以说，我国已经具备了加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的产业基础、技术条件和体制机制。

二、准确把握新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。建设的核心要求

Building a new energy system means gradually establishing, on the basis of the traditional energy system, an energy system that is clean, low-carbon, safe, and efficient, with non-fossil energy as the main supply source, fossil energy as the bottom-line guarantee, a new power system as the key support, and green, smart, and economical energy use as the guiding principle.

建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。，就是在传统能源体系基础上，逐步建立以非化石能源指太阳能、风能、生物质能、水能、核能等非化石类能源，在新型能源体系中将成为供应主体。为供应主体、化石能源为兜底保障、新型电力系统指以源、网、荷、储多向协同、灵活互动为有力支撑，以坚强、智能、柔性电网为枢纽平台的电力系统，是新型能源体系的关键载体。为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。

1. 推动非化石能源指太阳能、风能、生物质能、水能、核能等非化石类能源，在新型能源体系中将成为供应主体。成为供应主体

For a long time, fossil fuels have accounted for over 80% of China's energy mix, holding an absolute dominant position. In the future, with breakthroughs and widespread application of new energy technologies, non-fossil energy sources such as solar, wind, biomass, hydro, and nuclear power will become the mainstay of energy supply, achieving a leap from "supporting role" to "leading role." This will drive a qualitative change in the energy supply structure, which is the fundamental distinction between the new energy system and the traditional one. From a development trend perspective, clean and renewable non-fossil energy can basically meet all incremental energy and electricity demand during the "15th Five-Year Plan" period.

长期以来，化石能源在我国能源结构中占比超过80%，占据绝对主导地位。未来随着新能源技术的突破和广泛应用，太阳能、风能、生物质能、水能、核能等非化石能源指太阳能、风能、生物质能、水能、核能等非化石类能源，在新型能源体系中将成为供应主体。将成为能源供应主体，实现从“配角”到“主角”的跨越，推动能源供给结构质变，这是新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。区别于传统能源体系的根本标志。从发展态势看，“十五五”时期清洁可再生的非化石能源指太阳能、风能、生物质能、水能、核能等非化石类能源，在新型能源体系中将成为供应主体。可基本满足全部能源和电力需求增量。

2. 发挥化石能源兜底保障作用

The replacement of fossil fuels by non-fossil energy is not an overnight process. Fossil fuels, with their high energy density, reliability, and stability, will not completely exit the energy system. They can effectively complement new energy sources, which are characterized by randomness, intermittency, and volatility, serving as a "stabilizer" and "regulator" for secure energy system operation and playing a bottom-line guarantee role. Meanwhile, the development of Carbon Capture, Utilization, and Storage (CCUS) technology also brings technical possibilities for the long-term use of fossil fuels.

非化石能源指太阳能、风能、生物质能、水能、核能等非化石类能源，在新型能源体系中将成为供应主体。替代化石能源不是一蹴而就的，化石能源能量密度高、可靠性强、稳定性好，不会完全退出能源体系，可以与随机性、间歇性、波动性强的新能源有效互补，成为能源安全运行的“稳定器”和“调节器”，发挥兜底保障作用。同时，碳捕获、利用和封存（CCUS）指捕获二氧化碳并加以利用或封存的技术，为化石能源的长期使用提供了技术可能性。技术的发展也为化石能源的长期使用带来了技术可能性。

3. 以新型电力系统指以源、网、荷、储多向协同、灵活互动为有力支撑，以坚强、智能、柔性电网为枢纽平台的电力系统，是新型能源体系的关键载体。为关键支撑

Currently, "re-electrification" has become a trend in energy development. It is estimated that by the middle of this century, electricity will account for over 50% of China's final energy consumption. To effectively convert a high proportion and large scale of new energy into electricity and enable efficient utilization by end-users, it is imperative to accelerate the construction of a new power system. This system should be strongly supported by multi-directional coordination and flexible interaction among generation, grid, load, and storage, with a robust, smart, and flexible grid as its hub and platform. This is the key carrier of the new energy system.

目前“再电气化”已成为能源发展趋势，预计到本世纪中叶我国电能占终端用能比重将达到50%以上。为支撑高比例大规模新能源有效转化为电能，并为终端用户高效利用，必须加快构建以源、网、荷、储多向协同、灵活互动为有力支撑，以坚强、智能、柔性电网为枢纽平台的新型电力系统指以源、网、荷、储多向协同、灵活互动为有力支撑，以坚强、智能、柔性电网为枢纽平台的电力系统，是新型能源体系的关键载体。，这是新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的关键载体。

4. 倡导绿色智慧节约的用能导向

Green, smart, and economical energy use is an inherent requirement for energy consumption transformation. Particularly with the deep integration of digital and intelligent technologies like artificial intelligence into the energy industry, the energy system will shift from one-way supply-side regulation to intelligent, flexible regulation and real-time supply-demand interaction. The large-scale application of integrated energy services and smart energy consumption models not only helps achieve a high-level balance between energy supply and demand but also promotes the optimization of the energy supply system and enhances the efficiency of the entire energy system.

绿色智慧节约用能是能源消费转型的内在要求。特别是随着人工智能等数智化技术与能源产业深度融合，能源系统将由供应单向调节向智能灵活调节、供需实时互动转变。综合能源服务、智慧用能模式的大规模应用，既有助于能源供需高水平平衡，又可助推能源供给体系优化，促进提升能源全系统效率。

5. 体现清洁低碳安全高效的根本特征

Clean and low-carbon are the foundational colors of the new energy system, while safety and efficiency are its bottom-line requirements. It is essential to base efforts on China's energy endowment characteristics, promote the optimal combination of various energy sources, continuously advance technological progress in energy development and utilization, ensure that the "rice bowl" of energy is firmly held in our own hands, and strive to support Chinese modernization more efficiently with less energy consumption.

清洁低碳是新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的基础底色，安全高效是新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的底线要求。必须立足我国能源禀赋特点，推动建立各类能源优化组合，持续推进能源开发利用技术进步，确保能源的饭碗牢牢端在自己手里，力争以更少的能源消耗更高效地支撑中国式现代化。

6. 正确处理若干重大关系

Building a new energy system is the only way to achieve the green and low-carbon transformation of energy. Several major relationships must be correctly handled:

1. Energy Security and Transformation: Recognize deeply that the green and low-carbon transformation of energy is a long-term process. Safety must be prioritized, establishing the new before phasing out the old, with systematic planning and proper management of timing, intensity, and effectiveness to ensure efficient transformation based on energy security. (能源安全与转型的关系)
2. New Energy and Traditional Energy: Follow the inherent laws of energy system evolution. Gradually phase out traditional energy based on the safe, reliable, and orderly replacement by new energy, coordinate the "fast and good establishment" of new energy with the "orderly and measured phasing out" of traditional energy to achieve coordinated and integrated development. (新能源与传统能源的关系)
3. Energy Development and Conservation: Firmly establish the concept that energy conservation equals increasing resources and reducing pollution. Always prioritize energy conservation and efficiency improvement, continuously increase energy utilization efficiency, and advocate for a simple, moderate, green, and low-carbon lifestyle. (能源开发与节约利用的关系)
4. Government and Market: Clarify the boundaries between government and market. Deepen market-oriented reforms in competitive segments of the energy sector and energy management system reforms, continuously improve energy pricing mechanisms, and achieve synergistic and complementary efforts between an effective market and a proactive government. (政府与市场的关系)
5. Domestic and International: Utilize both domestic and international markets and resources. Build a diversified and secure energy supply guarantee system, and deepen international cooperation in energy resources, technology development and application, and industrial chains. (国内与国外的关系)

建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。是实现能源绿色低碳转型的必由之路，必须正确处理好几对重大关系。一是能源安全和转型的关系。深刻认识能源绿色低碳转型是一个长期过程，必须坚持安全为要、先立后破，系统谋划，把握好时度效，确保在能源安全基础上高效转型。二是新能源和传统能源的关系。遵循能源体系更替演化的内在规律，在新能源安全可靠有序替代的基础上逐步退出传统能源，统筹好新能源“又快又好立”和传统能源“有序有度退”，实现新能源和传统能源协调融合发展。三是能源开发和节约利用的关系。牢固树立节能就是增加资源、减少污染的理念，始终坚持把节能提效摆在首位，持续提高能源利用效率，倡导简约适度、绿色低碳生活方式。四是政府和市场的关系。厘清政府和市场边界，深入推进能源竞争性环节市场化改革和能源管理体制改革，不断完善能源价格机制，实现有效市场与有为政府协同发力、优势互补。五是国内和国外的关系。用好国内国际两个市场两种资源，构建多元安全的能源供给保障体系，深入推进能源资源、技术开发应用和产业链国际合作。

三、全面落实加快建设新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的重点任务

During the "15th Five-Year Plan" period, in accordance with the decisions and deployments of the Party Central Committee, it is essential to fully implement the new energy security strategy, anchor the goal of initially completing the new energy system by 2030, and focus on the following key tasks.

“十五五”时期要按照党中央决策部署，全面落实能源安全新战略指习近平总书记提出的“四个革命、一个合作”战略，即推动能源消费革命、供给革命、技术革命、体制革命，全方位加强国际合作。，锚定到2030年初步建成新型能源体系指以非化石能源为供应主体、化石能源为兜底保障、新型电力系统为关键支撑、绿色智慧节约为用能导向，清洁低碳安全高效的能源体系。的目标，着力做好以下重点任务。

1. 持续提高新能源供给比重

Adhere to the simultaneous development of wind, solar, hydro, nuclear, and other energy sources, giving equal importance to centralized and distributed, onshore and offshore projects. Coordinate local consumption and outward transmission to promote the high-quality development of new energy. Accelerate the construction of clean energy bases such as wind and solar power in the northwest, hydropower in the southwest, offshore wind power, and coastal nuclear power. Actively develop distributed photovoltaics and decentralized wind power. Develop new energy sources like biomass, geothermal, and ocean energy according to local conditions. Promote the full-chain development of hydrogen energy from production, storage, transportation to utilization. Promote integrated development of new energy, vigorously advance multi-energy development in "desert, Gobi, and barren land" new energy bases. Strengthen the synergy between computing power and electricity, and explore the construction of integrated new energy development bases combining wind, solar, hydrogen, ammonia, and alcohol.

坚持风光水核等多能并举，坚持