Signature Article︱National Energy Administration Development Planning Department: Accelerating the Construction of a New Energy System
Source: National Energy Administration
Energy is the lifeline of the national economy, relating to the national economy, people's livelihood, and national security. Since the new era, under the guidance of the new energy security strategy of "four revolutions and one cooperation" proposed by General Secretary Xi Jinping, China has embarked on a path of high-quality energy development with Chinese characteristics, strongly supporting the solid steps of Chinese-style modernization. The 15th Five-Year Plan period is a critical time for laying a solid foundation and making comprehensive efforts to basically achieve socialist modernization. The Fourth Plenary Session of the 20th CPC Central Committee made top-level arrangements for the new energy system and the construction of an energy power, putting forward a series of new tasks, new requirements, and new ideas, providing fundamental guidance and an action program for energy development during the 15th Five-Year Plan period.
1. Accurately Grasp the Principles and Requirements of the New Energy System Construction
Accelerating the development of a new energy system and building China into an energy powerhouse will be the central task for high-quality energy development in the coming years. We must thoroughly understand President Xi Jinping's important remarks and the strategic directives from the Fourth Plenary Session of the 20th CPC Central Committee, systematically summarize practical experiences in recent energy development, and adhere to the following principles in our work.
We must uphold the Party's comprehensive leadership over energy work. The Fourth Plenary Session of the 20th CPC Central Committee emphasized that "the Party's leadership should permeate all aspects and processes of economic and social development." As a vital material foundation and driving force for socioeconomic progress, energy development in the new era has consistently advanced under the Party's guidance. Amid accelerating global transformations and complex power rivalries, energy has become a strategic focal point. On this new journey, we must maintain the Party's comprehensive leadership in energy affairs, fully leveraging its political, organizational, and institutional strengths to ensure the energy sector stays on the right track. This guarantees that the energy sector advances in unison under the Party's banner, providing fundamental support for building a new energy system and a strong energy nation.
Uphold the principle of putting people first. Energy supply is integral to all aspects of people's lives, including clothing, food, housing, and transportation, with energy access serving as a key indicator of modernization. President Xi Jinping has repeatedly emphasized ensuring stable supply and pricing for essential energy commodities like coal, electricity, oil, and gas. The Fourth Plenary Session of the 20th CPC Central Committee proposed "prioritizing livelihood protection and improvement through development" and "ensuring modernization benefits reach all people more equitably." Currently, China's energy development remains uneven across urban and rural regions, with public energy needs shifting from basic availability to quality and efficiency. On this new journey, we must fully implement the people-first energy philosophy, enhance diversified and high-quality energy supply capabilities, comprehensively improve energy service standards, and continuously meet the public's growing demands for cleaner, low-carbon, efficient, and intelligent energy solutions.
We must firmly hold our energy security in our own hands. President Xi Jinping emphasized that "energy security and supply are vital to the nation's economy and people's livelihood, representing a critical national priority that cannot be overlooked." The Fourth Plenary Session of the 20th CPC Central Committee explicitly required "focusing economic development on the real economy." As the backbone of national security, energy must remain firmly under our control. Currently, the global energy landscape is undergoing profound changes, with intensifying competition over resource rights, transit corridors, and market access. China's energy security faces multiple challenges, including rigid demand growth and supply constraints. On this new journey, we must strategically assess the situation from the perspective of national development and security, leverage favorable conditions, and enhance the resilience of our energy production, supply, storage, and distribution systems. By ensuring stable domestic energy supply, we can effectively address uncertainties arising from evolving circumstances.
Adhere to the orientation of green and low-carbon development. General Secretary Xi Jinping emphasized, "Accelerate the comprehensive green transformation of economic and social development" and "Take carbon peaking and carbon neutrality as the driving force to promote coordinated efforts in reducing carbon emissions, pollution, expanding green spaces, and achieving growth." Energy activities account for over 80% of total carbon emissions, making them the main battlefield for advancing the construction of a beautiful China and achieving the carbon peaking target. The Fourth Plenary Session of the 20th Central Committee of the Communist Party of China explicitly required "promoting the peaking of coal and oil consumption." The incremental energy consumption during the 15th Five-Year Plan period will mainly rely on non-fossil energy sources, leading to profound changes in the energy structure and system. On this new journey, it is essential to properly handle relationships between supply and consumption, new energy and traditional energy, the present and the long-term, as well as the overall and the local. We must first establish and then replace fossil energy in a safe, reliable, and orderly manner, continuously increase the proportion of new energy supply, and support and lead the comprehensive green transformation of economic and social development.
Innovation remains the primary driving force. President Xi Jinping emphasized: "Chinese-style modernization must be underpinned by technological advancement, and high-quality development requires cultivating new momentum through scientific innovation." The Fourth Plenary Session of the 20th CPC Central Committee underscored the need to "seize the historic opportunities of the new round of technological revolution and industrial transformation." Currently, energy technology innovation is entering a phase of intensive activity. Major global powers are strengthening strategic technological layouts to ensure autonomy in the energy industry chain. Those who take the lead in innovation will gain the initiative to steer development. China's energy technology innovation is at a critical stage characterized by parallel progress with some nations taking the lead. On this new journey, we must continue to prioritize innovation, firmly grasp the laws of energy technology innovation, promote deep integration of technological and industrial innovation, develop new energy productivity suited to local conditions, and secure the commanding heights of energy technology development.
We must persist in deepening energy system reforms. President Xi Jinping emphasized, "Both the 'invisible hand' and the 'visible hand' should be effectively utilized." The Fourth Plenary Session of the 20th CPC Central Committee further stressed the need to "fully leverage the market's decisive role in resource allocation while enhancing government functions." After years of development, China's energy governance system has matured and taken shape, with the foundational framework of energy reforms now largely established. However, as the national unified market continues to expand, reforms in sectors like electricity and oil and gas have entered challenging waters. Governance models and market mechanisms adapted to the new energy system still require further development. On this new journey, we must combine goal-oriented and problem-oriented approaches, employ reform-minded strategies to address development challenges, and scientifically design policy mechanisms and reform pathways to continuously improve energy governance efficiency.
2. A Comprehensive Understanding of Energy Development Practices and Achievements during the 14th Five-Year Plan Period
During the 14th Five-Year Plan period, China has prioritized high-quality energy development by balancing energy security with green and low-carbon transition. The nation has achieved significant growth in energy production capacity, witnessed a quantum leap in non-fossil energy development, made groundbreaking strides in energy innovation and reform, opened new horizons in international cooperation, and steadily strengthened the foundation for building a new energy system.
China has strengthened its energy security capabilities, achieving more robust and resilient energy supply. During the 14th Five-Year Plan period (2021-2025), we implemented the holistic national security concept, establishing a diversified energy supply system powered by coal, oil, gas, nuclear, and renewable energy sources. This system significantly enhances the resilience and operational safety of China's energy infrastructure. Energy production reached approximately 5 billion tons of standard coal equivalent – a 40% increase from a decade ago – accounting for over one-fifth of global output, while maintaining a stable self-sufficiency rate above 80%. Annual electricity generation exceeded 10 trillion kWh, representing about one-third of global production. The nation's energy infrastructure network, spanning east-west and north-south routes with international connectivity, has been substantially upgraded. The West-East Power Transmission Project now delivers 340 million kilowatts of capacity, supported by over 190,000 kilometers of long-distance oil and gas pipelines. These advancements have accelerated the transformation of resource advantages into development opportunities in central and western regions, providing solid energy foundations for major economic provinces. Energy services for public welfare have been enhanced through the world's largest EV charging network, where every five vehicles are equipped with two charging stations. China's "Power Access" service has become a gold standard in power supply, effectively addressing extreme weather and natural disasters while enabling rapid energy restoration. This ensures energy security for over 1.4 billion people nationwide.
We accelerated energy structure optimization and achieved transformative progress in green and low-carbon transition. During the 14th Five-Year Plan period, we rigorously implemented green development principles, coordinated efforts to transition energy production and consumption toward sustainability, expanded clean energy supply, enhanced energy conservation and efficiency, and continuously optimized the energy mix. China established the world's largest and fastest-growing renewable energy system, with annual wind and solar power installations successively surpassing 100 million, 200 million, and 300 million kilowatts. New energy capacity historically surpassed thermal power generation, while non-fossil energy consumption doubled to account for approximately 20% of total energy use. The coal consumption share decreased by about 1 percentage point annually on average. This "one increase, one decrease" strategy significantly enhanced the green content of economic development. Energy consumption achieved substantial clean and low-carbon upgrades, with end-use electrification reaching around 30% – ranking among global leaders. Fuel quality standards progressed through three consecutive upgrades from National III to National VI, while energy efficiency in coal power, petrochemicals, and steel industries reached world-leading levels.
China has significantly enhanced the modernization of its industrial chain through strengthened innovation in energy technology. During the 14th Five-Year Plan period (2021-2025), we prioritized innovation as the primary driver of energy development, coordinating efforts to address technological gaps and strengthen core competencies in energy equipment. Breakthroughs in major energy technologies have been achieved, with continuous improvements in industrial chain autonomy and modernization. China developed third-generation nuclear technologies like Hualong One and Guohe One with full independent intellectual property rights, while the world's first high-temperature gas-cooled reactor demonstration project commenced commercial operation. Ultra-high voltage transmission technology set multiple world records, shale gas achieved large-scale commercial development, and shale oil extraction made significant progress. The new energy sector established a complete manufacturing system with globally leading technologies, accounting for over 40% of global new energy patents. World records were repeatedly broken in photovoltaic conversion efficiency and offshore wind power capacity, while China's new energy storage capacity ranked first globally. The cultivation and expansion of new energy productivity are accelerating.
China has enhanced its energy market framework and policy mechanisms, sustaining robust growth momentum in the sector. During the 14th Five-Year Plan period (2021-2025), the nation balanced market efficiency with proactive government oversight, driving reforms in key energy sectors and critical infrastructure to boost development vitality. The Energy Law was enacted, while revisions to the Coal Law, Electricity Law, and Renewable Energy Law progressed steadily. The national unified electricity market accelerated its development, and the Green Certificate system gained international recognition through full endorsement by RE100. The "X+1+X" oil and gas market system was refined, with nationwide, regional, and local coal trading platforms rapidly expanding. All coal-fired power plants and renewable energy sources entered the market, along with all industrial and commercial users. Market vitality surged, with registered electricity market entities quadrupling since 2020, and private enterprises emerging as a pivotal force in energy transition.
We have expanded high-level opening-up and comprehensively enhanced international energy cooperation. During the 14th Five-Year Plan period, guided by the vision of a community with a shared future for mankind, we strengthened the linkage effect between domestic and international markets and resources, and promoted the establishment of a fair, just, balanced, and inclusive global energy governance system. We consolidated and expanded our capacity to secure overseas energy resources, deepened oil and gas cooperation with Central Asia-Russia, the Middle East, Africa, the Americas, and the Asia-Pacific region, and put into operation oil and gas pipelines such as the China-Russia East Line. The four major energy import corridors in the northwest, northeast, southwest, and maritime regions have become more stable. We actively participated in the reform of international energy governance, engaged in green energy cooperation with over 100 countries and regions, and implemented a large number of landmark projects and "small but beautiful" projects that benefit people's livelihoods. Over the past five years, China's exports of wind and solar power products have cumulatively reduced carbon emissions by approximately 4.1 billion tons for other countries. We established two major diplomatic mechanisms—the Belt and Road Energy Partnership and the Global Clean Energy Partnership—continuously improving the international energy cooperation framework.
III. Scientifically Planning the Tasks and Measures for Building a New Energy System during the 15th Five-Year Plan Period
The Fourth Plenary Session of the 20th CPC Central Committee has outlined the goal of establishing a clean, low-carbon, safe, and efficient new energy system during the 15th Five-Year Plan period. Energy development under this plan will fully implement the new energy security strategy, prioritizing safety and sufficiency, grounded in economic viability, driven by technological innovation, and propelled by institutional reforms. These efforts will accelerate the construction of a new energy system and build China into an energy powerhouse, providing robust energy support to ensure decisive progress in achieving basic socialist modernization.
Optimize the spatial layout of energy resource bases. Aligned with China's distribution patterns of energy resources and consumption, we will streamline energy development and flow patterns while accelerating new energy infrastructure construction. Coordinate the development of non-fossil energy bases with distributed energy systems, establishing wind and solar power bases in the Three-North regions, integrated hydro-solar-wind bases in Southwest China, and coastal nuclear and offshore wind bases, while vigorously promoting distributed energy. Strengthen stable production and output capacity in fossil fuel bases, enhance production flexibility in five major coal bases, and ensure continuous oil and gas production in key basins and maritime areas. Promote coordinated development between energy production and consumption industries, balancing "West-to-West" and "West-to-East" power transmission, while fostering integrated development of renewable energy and energy-consuming industries. Guide industrial distribution toward regions abundant in clean energy resources. Optimize the layout of energy backbone corridors, coordinate inter-provincial power flow, strengthen coal transportation systems, and consolidate the four major strategic oil and gas import corridors.
Accelerate the green and low-carbon transition of the energy sector. We will promote a diversified energy mix including wind, solar, hydro, and nuclear power, balancing local consumption with cross-regional transmission. This involves driving steady growth in wind and solar power generation, continuously increasing the share of renewable energy in the mix, advancing integrated development of hydropower, wind, and solar resources, and advancing nuclear power development in a safe and orderly manner. By 2030, non-fossil energy is expected to account for approximately 25% of total energy consumption. Efforts will focus on building a new-type power system through accelerated smart grid and microgrid development, creating a coordinated grid platform that integrates main, distribution, and micro networks. This will enhance flexible regulation capabilities across power generation, transmission, and consumption, while pioneering innovative models like direct grid integration of renewable energy to improve the system's capacity to absorb, allocate, and control renewable sources. We will also promote green and low-carbon energy consumption by increasing electrification of end-use energy, expanding renewable energy utilization, and driving energy efficiency improvements in key sectors including industry, construction, and transportation. Additionally, clean and low-carbon heating solutions will be promoted based on local conditions.
Establish a resilient energy supply chain. Strengthen the strategic security baseline for energy by continuously enhancing oil and gas exploration and development, ensuring long-term stability in domestic crude oil production while maintaining a steady increase in natural gas reserves and output. Develop an efficient and coordinated energy reserve system, scientifically determining the types, scale, and methods of energy reserves. Enhance production capacity and technological reserves for coal-to-liquid (CTL) energy. Solidify the foundation for energy transition security by improving coal supply flexibility and advancing clean, efficient coal utilization. Comprehensively upgrade the power system's complementary capabilities and safety resilience, transitioning coal-fired power from a basic supply source to a supportive and regulatory power source. Scientifically plan pumped storage facilities and vigorously develop new energy storage technologies. Ensure stable supply of critical mineral resources for renewable energy. Strengthen emergency safety management in the energy sector, improve the energy security risk monitoring and early warning system, refine tiered and sector-specific emergency plans, and guarantee energy supply security under extreme conditions.
Accelerate high-level technological self-reliance in the energy sector. To address the critical needs of building a new energy system, we will focus on two key priorities. First, we will significantly enhance the "hard power" of energy technology innovation. This involves advancing large-scale development of non-fossil energy sources and clean, efficient utilization of fossil fuels, while intensifying R&D efforts in cutting-edge technologies and equipment such as nuclear power, concentrated solar power, ocean energy, flexible DC transmission, and unconventional oil and gas. We will also strategically position ourselves in emerging energy technologies and industries like hydrogen energy and controlled nuclear fusion. Additionally, we will consolidate and expand our industrial advantages in new energy sectors, while fostering new industries and emerging sectors such as "AI + Energy." Second, we will accelerate the "soft infrastructure" of energy technology innovation. This includes improving collaborative innovation mechanisms across the energy supply chain, strengthening national strategic scientific capabilities in the energy field, empowering enterprises as primary drivers of innovation, stimulating private sector innovation vitality, supporting the development of new business models and formats, and promoting deep integration between technological and industrial innovation.
Strengthen institutional safeguards for high-quality energy development. Consolidate the legal foundation by improving the supporting regulatory framework for energy laws, and accelerate the formulation and revision of key legislation including the Electricity Law, Coal Law, and Renewable Energy Law. Stimulate reform vitality through establishing a unified national electricity market system, deepening the development of medium-to-long-term, spot, ancillary services, and capacity trading markets, and supporting diverse new market participants. Optimize the operation and dispatch mechanisms of oil and gas pipelines while advancing the modernization of coal market systems. Deepen market-oriented reforms in energy pricing by refining supply-demand-driven market mechanisms and optimizing government pricing in natural monopoly sectors. Form policy synergies to promote the development of new energy standards and establish a scientific, efficient energy regulatory system. Strengthen land and sea resource guarantees for energy development and major infrastructure projects, and establish policy mechanisms to promote green energy consumption.
Building a new pattern of international energy cooperation. Continuously deepening international energy cooperation, focusing on maintaining the security and stability of the global energy industry and supply chains. Establishing a new model of win-win cooperation for energy transition, promoting power interconnection with neighboring countries and regions. Actively engaging in international cooperation on the new energy industry chain, strengthening the international alignment of energy technologies and standards, and enhancing the international recognition of China's green certificates. High-quality development of major landmark energy projects, focusing on key areas such as wind power, photovoltaics, hydrogen energy, and energy storage, to build a number of "small but beautiful" projects. Deeply participating in global energy governance, using the high-quality co-construction of the Belt and Road as a practical platform, continuously promoting the implementation of regional energy cooperation platforms, actively engaging in multilateral energy mechanism cooperation, and conducting high-quality energy home diplomacy to promote the sustainable development of global energy and contribute to building a fair, just, open, inclusive, and win-win international economic order.
(Published in Xi Jinping's Economic Thought Research, Issue 11,2025)
