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中国的能源政策（2012）
（２０１２年１０月）
中华人民共和国国务院新闻办公室
目 录
前 言
一、能源发展现状
二、能源发展政策和目标
三、全面推进能源节约
四、大力发展新能源和可再生能源
五、推动化石能源清洁发展
六、提高能源普遍服务水平
七、加快推进能源科技进步
八、深化能源体制改革
九、加强能源国际合作
结束语

前 言
能源是支撑人类文明进步的物质基础，是现代社会发展不可或 缺的基本
条件。在中国实现现代化和全体人民共同富裕的进程中，能源始终是一个重大战
略问题 。
20世纪70年代末实行改革开放以来，中国的能源事业取得了长足发展。
目前， 中国已成为世界上最大的能源生产国，形成了煤炭、电力、石油天然气以
及新能源和可再生能源全面发展 的能源供应体系，能源普遍服务水平大幅提升，
居民生活用能条件极大改善。能源的发展，为消除贫困、 改善民生、保持经济长
期平稳较快发展提供了有力保障。
中国能源发展面临着诸多挑 战。能源资源禀赋不高，煤炭、石油、天然
气人均拥有量较低。能源消费总量近年来增长过快，保障能源 供应压力增大。化
石能源大规模开发利用，对生态环境造成一定程度的影响。
为减少 对能源资源的过度消耗，实现经济、社会、生态全面协调可持续
发展，中国不断加大节能减排力度，努力 提高能源利用效率，单位国内生产总值
能源消耗逐年下降。中国将以科学发展观为指导，切实转变发展方 式，着力建设
资源节约型、环境友好型社会，依靠能源科技创新和体制创新，全面提升能源效
率 ，大力发展新能源和可再生能源，推动化石能源的清洁高效开发利用，努力构
建安全、稳定、经济、清洁 的现代能源产业体系，为中国全面建设小康社会提供
更加坚实的能源保障，为世界经济发展作出更大贡献 。
一、能源发展现状

改革开放以来，中国能源工业快速增长，实现 了煤炭、电力、石油天然
气、可再生能源和新能源的全面发展，为保障国民经济长期平稳较快发展和人民
生活水平持续提高作出重要贡献。
——供应保障能力显著增强。2011年，中国一 次能源生产总量达到31.8
亿吨标准煤，居世界第一。其中，原煤产量35.2亿吨，原油产量稳定在 2亿吨，
成品油产量2.7亿吨。天然气产量快速增长，达到1031亿立方米。电力装机容
量 10.6亿千瓦，年发电量4.7万亿千瓦时。能源综合运输体系发展较快。石油
管线长度超过7万公里 ，天然气主干管线长度达到4万公里。电网基本实现全国
互联，330千伏及以上输电线路长度17.9 万公里。国家石油储备一期项目建成，
能源应急保障能力不断增强。
——能源节约效 果明显。中国大力推进能源节约。1981—2011年，中
国能源消费以年均5.82％的增长，支撑 了国民经济年均10％的增长。2006—2011
年，万元国内生产总值能耗累计下降20.7％，实 现节能7.1亿吨标准煤。实施
锅炉改造、电机节能、建筑节能、绿色照明等一系列节能改造工程，主要 高耗能
产品的综合能耗与国际先进水平差距不断缩小，新建的有色、建材、石化等重化
工业项目 能源利用效率基本达到世界先进水平。淘汰落后小火电机组8000万千
瓦，每年可由此节约原煤600 0多万吨。2011年，全国火电供电煤耗较2006年
降低37克标准煤／千瓦时，降幅达10％。
——非化石能源快速发展。中国积极发展新能源和可再生能源。2011
年，全国水电 装机容量达到2.3亿千瓦，居世界第一。已投运核电机组15台、
装机容量1254万千瓦，在建机组 26台、装机容量2924万千瓦，在建规模居世
界首位。风电并网装机容量达到4700万千瓦，居世 界第一。光伏发电增长强劲，
装机容量达到300万千瓦。太阳能热水器集热面积超过2亿平方米。积极 开展沼

气、地热能、潮汐能等其他可再生能源推广应用。非化石能源占一次能源消费的< br>比重达到8％，每年减排二氧化碳6亿吨以上。
——科技水平迅速提高。建成了比较完 善的石油天然气勘探开发技术体
系，复杂区块勘探开发、提高油气田采收率等技术在国际上处于领先地位 。3000
米深水钻井平台建造成功。千万吨炼油和百万吨乙烯装置实现自主设计和制造。
具有 世界先进水平和自主知识产权的煤炭直接液化和煤制烯烃技术取得突破。全
国采煤机械化程度达到60％ 以上，井下600万吨综采成套装备全面推广。百万
千瓦超超临界、大型空冷等大容量高参数机组得到广 泛应用，70万千瓦水轮机
组设计制造技术达到世界先进水平。基本具备百万千瓦级压水堆核电站自主设
计、建造和运营能力，高温气冷堆、快堆技术研发取得重大突破。3兆瓦风电机
组批量应用，6 兆瓦风电机组成功下线。形成了比较完备的太阳能光伏发电制造
产业链，光伏电池年产量占全球产量的4 0％以上。特高压交直流输电技术和装
备制造水平处于世界领先地位。
——用能条件 大为改善。积极推进民生能源工程建设，提高能源普遍服
务水平。与2006年相比，2011年中国人 均一次能源消费量达到2.6吨标准煤，
提高了31％；人均天然气消费量89.6立方米，提高了11 0％；人均用电量3493
千瓦时，提高了60％。建成西气东输一线、二线工程，全国使用天然气人口 超
过1.8亿。实施农村电网改造升级工程，累计投入5500多亿元人民币，使农村
用电状况 发生了根本性变化。青藏联网工程建设成功，结束了西藏电网孤网运行
的历史。推进无电地区电力建设， 解决了3000多万无电人口的用电问题。在北
方高寒地区建设了7000万千瓦热电联产项目，解决了 4000多万城市人口的供暖
问题。

——环境保护成效突出。中国加 快采煤沉陷区治理，建立并完善煤炭开
发和生态环境恢复补偿机制。2011年，原煤入选率达到52％ ，土地复垦率40％。
加快建设燃煤电厂脱硫、脱硝设施，烟气脱硫机组占全国燃煤机组的比重达到90％左右。燃煤机组除尘设施安装率和废水排放达标率达到100％。加大煤层气
(煤矿瓦斯)开 发利用力度，抽采量达到114亿立方米，在全球率先实施了煤层气
国家排放标准。五年来，单位国内生 产总值能耗下降减排二氧化碳14.6亿吨。
——体制机制不断完善。市场机制在资源配置中 发挥出越来越大的作
用。能源领域投资主体实现多元化，民间投资不断发展壮大。煤炭生产和流通基本实现市场化。电力工业实现政企分开、厂网分离，监管体系初步建立。能源价
格改革不断深化，价 格形成机制逐步完善。开展了煤炭工业可持续发展政策措施
试点。制定了风电与光伏发电标杆上网电价制 度，建立了可再生能源发展基金等
制度。加强能源法制建设，近年来新修订出台了《节约能源法》、《可 再生能源
法》、《循环经济促进法》、《石油天然气管道保护法》以及《民用建筑节能条
例》、 《公共机构节能条例》等法律法规。
作为世界第一大能源生产国，中国主要依靠自身力量发展 能源，能源自
给率始终保持在90％左右。中国能源的发展，不仅保障了国内经济社会发展，
也 对维护世界能源安全作出了重大贡献。今后一段时期，中国仍将处于工业化、
城镇化加快发展阶段，能源 需求会继续增长，能源供应保障任务更加艰巨。
——资源约束矛盾突出。中国人均能源资源拥 有量在世界上处于较低水
平，煤炭、石油和天然气的人均占有量仅为世界平均水平的67％、5.4％和 7.5％。
虽然近年来中国能源消费增长较快，但目前人均能源消费水平还比较低，仅为发
达国 家平均水平的三分之一。随着经济社会发展和人民生活水平的提高，未来能
源消费还将大幅增长，资源约 束不断加剧。

——能源效率有待提高。中国产业结构不合理，经济发展方式有 待改进。
中国单位国内生产总值能耗不仅远高于发达国家，也高于一些新兴工业化国家。
能源密 集型产业技术落后，第二产业特别是高耗能工业能源消耗比重过高，钢铁、
有色、化工、建材四大高耗能 行业用能占到全社会用能的40％左右。能源效率
相对较低，单位增加值能耗较高。
——环境压力不断增大。化石能源特别是煤炭的大规模开发利用，对生
态环境造成严重影响。大量耕地被 占用和破坏，水资源污染严重，二氧化碳、二
氧化硫、氮氧化物和有害重金属排放量大，臭氧及细颗粒物 (PM2.5)等污染加剧。
未来相当长时期内，化石能源在中国能源结构中仍占主体地位，保护生态环 境、
应对气候变化的压力日益增大，迫切需要能源绿色转型。
——能源安全形势严峻 。近年来能源对外依存度上升较快，特别是石油
对外依存度从本世纪初的32％上升至目前的57％。石 油海上运输安全风险加大，
跨境油气管道安全运行问题不容忽视。国际能源市场价格波动增加了保障国内 能
源供应难度。能源储备规模较小，应急能力相对较弱，能源安全形势严峻。
——体 制机制亟待改革。能源体制机制深层次矛盾不断积累，价格机制
尚不完善，行业管理仍较薄弱，能源普遍 服务水平亟待提高，体制机制约束已成
为促进能源科学发展的严重障碍。
中国能源发 展面临的这些问题，是由国际能源竞争格局、中国生产力水
平以及所处发展阶段决定的，也与产业结构和 能源结构不合理、能源开发利用方
式粗放、相关体制机制改革滞后密切相关。中国将大力推动能源生产和 利用方式
变革，不断完善政策体系，努力实现能源与经济、社会、生态全面协调可持续发
展。

二、能源发展政策和目标
中国是世界上最大的发展中国家，面临着发 展经济、改善民生、全面建
设小康社会的艰巨任务。维护能源资源长期稳定可持续利用，是中国政府的一 项
重要战略任务。中国能源必须走科技含量高、资源消耗低、环境污染少、经济效
益好、安全有 保障的发展道路，全面实现节约发展、清洁发展和安全发展。
中国能源政策的基本内容是：坚 持“节约优先、立足国内、多元发展、
保护环境、科技创新、深化改革、国际合作、改善民生”的能源发 展方针，推进
能源生产和利用方式变革，构建安全、稳定、经济、清洁的现代能源产业体系，
努 力以能源的可持续发展支撑经济社会的可持续发展。
——节约优先。实施能源消费总量和强度 双控制，努力构建节能型生产
消费体系，促进经济发展方式和生活消费模式转变，加快构建节能型国家和 节约
型社会。
——立足国内。立足国内资源优势和发展基础，着力增强能源供给保障
能力，完善能源储备应急体系，合理控制对外依存度，提高能源安全保障水平。
—— 多元发展。着力提高清洁低碳化石能源和非化石能源比重，大力推
进煤炭高效清洁利用，积极实施能源科 学替代，加快优化能源生产和消费结构。
——保护环境。树立绿色、低碳发展理念，统筹能源 资源开发利用与生
态环境保护，在保护中开发，在开发中保护，积极培育符合生态文明要求的能源
发展模式。

——科技创新。加强基础科学研究和前沿技术研究，增强能源科 技创新
能力。依托重点能源工程，推动重大核心技术和关键装备自主创新，加快创新型
人才队伍 建设。
——深化改革。充分发挥市场机制作用，统筹兼顾，标本兼治，加快推
进重点 领域和关键环节改革，构建有利于促进能源可持续发展的体制机制。
——国际合作。统筹国内 国际两个大局，大力拓展能源国际合作范围、
渠道和方式，提升能源“走出去”和“引进来”水平，推动 建立国际能源新秩序，
努力实现合作共赢。
——改善民生。统筹城乡和区域能源发展 ，加强能源基础设施和基本公
共服务能力建设，尽快消除能源贫困，努力提高人民群众用能水平。
《中华人民共和国国民经济和社会发展第十二个五年规划纲要》提出：
到2015年， 中国非化石能源占一次能源消费比重达到11.4％，单位国内生产总
值能源消耗比2010年降低16 ％，单位国内生产总值二氧化碳排放比2010年降
低17％。
中国政府承诺，到2 020年非化石能源占一次能源消费比重将达到15％
左右，单位国内生产总值二氧化碳排放比2005 年下降40％—45％。作为负责任
的大国，中国将为实现此目标不懈努力。
三、全面推进能源节约
中国人口众多、资源相对不足，要实现能源资源永续利用和经 济社会可
持续发展，必须走节约能源的道路。

中国始终把节约能源放 在优先位置。早在20世纪80年代初，国家就提
出了“开发与节约并举，把节约放在首位”的发展方针 。2006年，中国政府发
布《关于加强节能工作的决定》。2007年，发布《节能减排综合性工作方 案》，
全面部署了工业、建筑、交通等重点领域节能工作。实施“十大节能工程”，推
动燃煤工 业锅炉(窑炉)改造、余热余压利用、电机系统节能、建筑节能、绿色照
明、政府机构节能，形成3.4 亿吨标准煤的节能能力。开展“千家企业节能行动”，
重点企业生产综合能耗等指标大幅下降，节约能源 1.5亿吨标准煤。“十一五”
期间，单位国内生产总值能耗下降19.1％。
20 11年，中国发布了《“十二五”节能减排综合性工作方案》，提出
“十二五”期间节能减排的主要目标 和重点工作，把降低能源强度、减少主要污
染物排放总量、合理控制能源消费总量工作有机结合起来，形 成“倒逼机制”，
推动经济结构战略性调整，优化产业结构和布局，强化工业、建筑、交通运输、
公共机构以及城乡建设和消费领域用能管理，全面建设资源节约型和环境友好型
社会。
——优化产业结构。中国坚持把调整产业结构作为节约能源的战略重
点。严格控制低水平重复建设，加速 淘汰高耗能、高排放落后产能。加快运用先
进适用技术改造提升传统产业。提高加工贸易准入门槛，促进 加工贸易转型升级。
改善外贸结构，推动外贸发展从能源和劳动力密集型向资金和技术密集型转变。推动服务业大发展。培育发展战略性新兴产业，加快形成先导性、支柱性产业。
——加强 工业节能。工业用能占到中国能源消费的70％以上，工业是
节约能源的重点领域。国家制定钢铁、石化 、有色、建材等重点行业节能减排先
进适用技术目录，淘汰落后的工艺、装备和产品，发展节能型、高附 加值的产品
和装备。建立完善重点行业单位产品能耗限额强制性标准体系，强化节能评估审

查制度。组织实施热电联产、工业副产煤气回收利用、企业能源管控中心建设、
节能产业培育 等重点节能工程，提升企业能源利用效率。
——实施建筑节能。国家大力发展绿色建筑，全面 推进建筑节能。建立
健全绿色建筑标准，推行绿色建筑评级与标识。推进既有建筑节能改造，实行公共建筑能耗限额和能效公示制度，建立建筑使用全寿命周期管理制度，严格建筑
拆除管理。制定和实 施公共机构节能规划，加强公共建筑节能监管体系建设。推
进北方采暖地区既有建筑供热计量和节能改造 ，实施“节能暖房”工程，改造供
热老旧管网，实行供热计量收费和能耗定额管理。
——推进交通节能。全面推行公交优先发展战略，积极推进城际轨道交
通建设，合理引导绿色出行。实施 世界先进水平的汽车燃料油耗量标准，推广应
用节能环保型交通工具。加速淘汰老旧汽车、机车、船舶。 优化交通运输结构，
大力发展绿色物流。提高铁路电气化比重，开展机场、码头、车站节能改造。积极推进新能源汽车研发与应用，科学规划和建设加气、充电等配套设施。
——倡导全民节 能。加大节能教育与宣传，鼓励引导城乡居民形成绿色
消费模式和生活方式，增强全民节约意识。严格执 行公共机构节能标准和规范，
发挥政府机关示范带头作用。动员社会各界广泛参与，积极开展小区、学校 、政
府机关、军营和企业的节能行动，努力建立全社会节能的长效机制。推广农业和
农村节能减 排，推进节能型住宅建设。
四、大力发展新能源和可再生能源
大力发展新能源和可 再生能源，是推进能源多元清洁发展、培育战略性
新兴产业的重要战略举措，也是保护生态环境、应对气 候变化、实现可持续发展
的迫切需要。中国坚定不移地大力发展新能源和可再生能源，到“十二五”末，

非化石能源消费占一次能源消费比重将达到11.4％，非化石能源发电装机比重
达到30％。
——积极发展水电。中国水能资源蕴藏丰富，技术可开发量5.42亿千瓦，居世界第一。按发电量计算，中国目前的水电开发程度不到30％，仍有较
大的开发潜力。实现 2020年非化石能源消费比重达到15％的目标，一半以上需
要依靠水电来完成。在做好生态环境保护 、移民安置的前提下，中国将积极发展
水电，把水电开发与促进当地就业和经济发展结合起来，切实做到 “开发一方资
源，发展一方经济，改善一方环境，造福一方百姓”。完善水电移民安置政策，
健 全利益共享机制。加强生态环境保护和环境影响评价，严格落实已建水电站的
生态保护措施，提高水资源 综合利用水平和生态环境效益。做好水电开发流域规
划，加快重点流域大型水电站建设，因地制宜开发中 小河流水能资源，科学规划
建设抽水蓄能电站。到2015年，中国水电装机容量将达到2.9亿千瓦。
——安全高效发展核电。核电是一种清洁、高效、优质的现代能源。发
展核电对优化能 源结构、保障国家能源安全具有重要意义。目前中国核电发电量
仅占总发电量的1.8％，远远低于14 ％的世界平均水平。核安全是核电发展的生
命线。日本福岛核事故发生后，中国对境内核电厂开展了全面 、严格的综合安全
检查。检查结果表明，中国核电安全是有保障的，在运核电机组20年来从未发
生过2级及以上核安全事件(事故)，主要运行参数好于世界平均值，部分指标进
入国际先进行列或达 到国际领先水平。继续坚持科学理性的核安全理念，把“安
全第一”的原则严格落实到核电规划、选址、 研发、设计、建造、运营、退役等
全过程。制定和完善核电法规体系。健全和优化核电安全管理机制，从 严设置准
入门槛，落实安全主体责任。完善核电监管体系，加强在建及运行核电厂的安全
监督检 查和辐射环境监督管理。建立健全国家核事故应急机制，提高应急能力。

加大核电科技创 新投入，推广应用先进核电技术，提高核电装备水平，重视核电
人才培养。到2015年，中国运行核电 装机容量将达到4000万千瓦。
——有效发展风电。风电是现阶段最具规模化开发和市场化 利用条件的
非水可再生能源。中国是世界上风电发展最快的国家，“十二五”时期，坚持集
中开 发与分散发展并举，优化风电开发布局。有序推进西北、华北、东北风能资
源丰富地区风电建设，加快分 散风能资源的开发利用。稳步发展海上风电。完善
风电设备标准和产业监测体系。鼓励风电设备企业加强 关键技术研发，加快风电
产业技术升级。通过加强电网建设、改进电网调度水平、提高风电设备性能、加
强风电预测预报等途径，提高电力系统消纳风电的能力。到2015年，中国风电
装机将突破1 亿千瓦，其中海上风电装机达到500万千瓦。
——积极利用太阳能。中国太阳能资源丰富， 开发潜力巨大，具有广阔
的应用前景。“十二五”时期，中国坚持集中开发与分布式利用相结合，推进太
阳能多元化利用。在青海、新疆、甘肃、内蒙古等太阳能资源丰富、具有荒漠和
闲散土地资源的 地区，以增加当地电力供应为目的，建设大型并网光伏电站和太
阳能热发电项目。鼓励在中东部地区建设 与建筑结合的分布式光伏发电系统。加
大太阳能热水器普及力度，鼓励太阳能集中供热水、太阳能采暖和 制冷、太阳能
中高温工业应用。在农村、边疆和小城镇推广使用太阳能热水器、太阳灶和太阳
房 。到2015年，中国将建成太阳能发电装机容量2100万千瓦以上，太阳能集热
面积达到4亿平方米 。
——开发利用生物质能等其他可再生能源。中国坚持“统筹兼顾、因地
制宜、综合 利用、有序发展”的原则，发展生物质能等其他可再生能源。在粮棉
主产区，有序发展以农作物秸秆、粮 食加工剩余物和蔗渣等为燃料的生物质发电。
在林木资源丰富地区，适度发展林木生物质发电。发展城市 垃圾焚烧和填埋气发

电。在具备条件的地区推进沼气等生物质供气工程。因地制宜建设生 物质成型燃
料生产基地。发展生物柴油，开展纤维素乙醇产业示范。在保护地下水资源的前
提下 ，推广地热能高效利用技术。加强对潮汐能、波浪能、干热岩发电等开发利
用技术的跟踪和研发。
——促进清洁能源分布式利用。中国坚持“自用为主、富余上网、因地
制宜、有序推进 ”的原则，积极发展分布式能源。在能源负荷中心，加快建设天
然气分布式能源系统。以城市、工业园区 等能源消费中心为重点，大力推进分布
式可再生能源技术应用。因地制宜在农村、林区、海岛推进分布式 可再生能源建
设。制定分布式能源标准，完善分布式能源上网电价形成机制和政策，努力实现
分 布式发电直供及无歧视、无障碍接入电网。“十二五”期间建设1000个左右
天然气分布式能源项目， 以及10个左右各类典型特征的分布式能源示范区域。
五、推动化石能源清洁发展
从世界范围看，今后相当长时期内，煤炭、石油等化石能源仍将是能源
供应的主体，中国也不例外。中国 统筹化石能源开发利用与环境保护，加快建设
先进生产能力，淘汰落后产能，大力推动化石能源清洁发展 ，保护生态环境，应
对气候变化，实现节能减排。
——安全高效开发煤炭。中国煤炭 工业坚持科学布局、集约开发、安全
生产、高效利用、保护环境的发展方针。按照控制东部、稳定中部、 发展西部的
原则，推进陕北、黄陇、神东等14个大型煤炭基地建设。实施煤炭资源整合和
煤矿 企业兼并重组，发展大型煤炭企业集团。优先建设大型现代化露天煤矿和特
大型矿井。实施煤矿升级改造 和淘汰落后产能，提高采煤机械化程度和安全生产
水平。大力发展矿区循环经济，加大煤炭洗选比重，合 理开发煤炭共伴生资源。
按照能源密集、技术密集、资金密集、长产业链、高附加值的发展导向，有序建

设煤炭深加工升级示范工程。鼓励建设低热值煤炭清洁利用和加工转化项目。加
强煤炭矿区环境保护和生态建设，做好采煤沉陷区和影响区的生态综合治理、土
地复垦等工作。
——清洁高效发展火电。中国坚持低碳、清洁、高效的原则，大力发展
绿色火电。鼓励 煤电一体化开发，稳步推进大型煤电基地建设。积极应用超临界、
超超临界等先进发电技术，建设清洁高 效燃煤机组和节能环保电厂。继续淘汰能
耗高、污染重的小火电机组。严格控制燃煤电厂污染物排放，新 建煤电机组同步
安装除尘、脱硫、脱硝设施，加快既有电厂烟气除尘、脱硫、脱硝改造。鼓励在
大中型城市和工业园区等热负荷集中的地区建设热电联产机组。在条件适宜的地
区，合理建设燃气蒸汽联 合循环调峰机组，积极推广天然气热电冷联供。严格控
制在环渤海、长三角、珠三角地区新增除“上大压 小”和热电联产之外的燃煤机
组。加强火电厂节水技术的推广应用。开展整体煤气化联合循环发电，以及 碳捕
捉与利用封存等技术应用示范项目。
——加大常规油气资源勘探开发力度。中国 将继续实行油气并举的方
针，稳定东部、加快西部、发展南方、开拓海域。推进原油增储稳产，稳步推进
塔里木盆地、鄂尔多斯盆地等重点石油规模生产区勘探开发。加强老油田稳产改
造，提高采收率 。加快天然气发展，加大中西部地区主力气田产能建设，抓好主
力气田增产，推进海上油气田勘探开发， 逐步提高天然气在一次能源结构中的比
重。优化炼油工业布局，建设若干大型炼化基地，形成环渤海、长 三角、珠三角
三大炼油集聚区，实现上下游一体化、炼油化工一体化、炼油储备一体化集约发
展 。
——积极推进非常规油气资源开发利用。加快非常规油气资源勘探开发
是增强中国 能源供应保障能力的重要手段。中国将加快煤层气勘探开发，增加探

明地质储量，推进沁 水盆地、鄂尔多斯盆地东缘等煤层气产业化基地建设。加快
页岩气勘探开发，优选一批页岩气远景区和有 利目标区。加快攻克页岩气勘探开
发核心技术，建立页岩气勘探开发新机制，落实产业鼓励政策，完善配 套基础设
施，实现到2015年全国产量达到65亿立方米的总体目标，为页岩气未来的快速
发 展奠定坚实的基础。加大页岩油、油砂等非常规油气资源勘探开发力度。
——加强能源储运设 施建设。综合考虑目标市场，产业布局调整，煤电、
风电、核电、天然气发电、抽水蓄能等电源点建设和 进口能源，以及资源地的水
和生态环境承载力等因素，统筹谋划能源输送通道建设。加快既有铁路干线扩 能
改造和新建铁路煤运通道建设，提高煤炭跨区运输能力，建设配套港口码头。进
一步扩大西电 东送、北电南送规模，完善区域主干电网，发展特高压等先进输电
技术，提高电网资源优化配置能力。加 强原油、成品油和天然气主干管网建设，
提高油气管输比例，完善区域运输网络，建设沿海大型油气接卸 站。严格落实石
油天然气管道保护法律法规，确保油气管道安全运行。统筹资源储备和国家储备、
商业储备，加强应急保障能力建设，完善原油、成品油、天然气和煤炭储备体系。
提高天然气调峰能力 。建立健全煤炭调峰储备。
六、提高能源普遍服务水平
保障和改善民生是中国能源 发展的根本出发点和落脚点。中国统筹城乡
能源协调发展，加强能源基础设施建设，改善广大农村和边疆 少数民族地区用能
条件，提高能源基本服务均等化水平，让能源发展成果更多地惠及全体人民。
——解决无电人口用电问题。增加财政投入，通过扩大电网覆盖面和发
展分散式可再生 能源，着力解决西藏、新疆、青海、云南、四川、内蒙古等省区
无电人口用电问题。在无电人口集中地区 ，建立并完善承担社会公共服务功能的
电力普遍服务体系。2015年前基本解决无电人口的用电问题。

——大力推进农村能源建设。加强农村能源建设，对改善农村民生，发
展现代农业意义重大。坚持“因地制宜、多能互补、综合利用、注重实效”的原
则，加强农村能源基础设 施建设，完善农村能源管理和服务体系。推进农村电网
建设和改造，改善农村生产生活用电条件，建设安 全可靠、节能环保、技术先进、
管理规范的新型农村电网。大力发展农村可再生能源，因地制宜开展绿色 能源示
范工程，到2015年建成200个绿色能源示范县、1000个太阳能示范村。实施农
村水电增效扩容改造，加强水电新农村电气化县和小水电代燃料工程建设。推广
应用太阳能热水器。
——加强边疆地区能源建设。改革开放以来，边疆地区经济社会发展取
得历史性进步， 用能状况得到较大改善，但与中东部地区相比还有较大差距。国
家对边疆地区将加大资金支持力度，加强 这些地区能源基础设施和民生能源工程
建设，积极支持西藏、新疆跨越式发展。加快推进西藏、新疆和青 海、四川、云
南、甘肃四省藏区电网建设，扩大电网覆盖面，提高供电可靠性。制定和实施西
藏 能源发展规划，加大电力援藏资金支持，“十二五”期间直接援助资金将超过
9亿元人民币。加快“气化 南疆”、“气化北疆”等民生能源工程，继续加强新
疆与西北电网联网工程建设，推进“疆电外送”能源 大通道建设，尽快将新疆资
源优势转化为经济优势。在偏远农牧区建设一批太阳能发电、风光互补电站等 新
能源设施，提高农牧民生活质量。
——改善城镇居民生活用能条件。加强城镇电网 改造和升级，提高供电
质量和可靠性。做好电力供应保障，优先确保居民生活用电。加快发展天然气，< br>建设和完善城市供气管网，让更多的居民用上天然气。在北方采暖城市，因地制
宜发展热电联产机 组，进一步改善居民供暖条件。
七、加快推进能源科技进步

改革开 放以来，中国能源科技水平有了显著提高，能源科技进步在促进
节能减排、优化能源结构、保证能源安全 方面发挥了重要作用。但与发达国家相
比，中国能源科技水平仍存在较大差距，自主创新的基础比较薄弱 ，核心和关键
技术落后于世界先进水平，一些关键技术和装备依赖于国外引进。中国将更加重
视 科技创新，加快建设和完善适合中国特点的、产学研一体化的能源科技创新体
系。2011年，中国发布 《国家能源科技“十二五”规划》。这一首部能源科技
专项规划，确定了勘探与开采、加工与转化、发电 与输配电、新能源等四大重点
技术领域，全面部署建设“重大技术研究、重大技术装备、重大示范工程及 技术
创新平台”四位一体的国家能源科技创新体系。
——加强能源科学技术研发。在 地质、材料、环境、能源动力和信息与
控制等基础科学领域，超前部署一批对能源发展具有战略先导性作 用的前沿技术
攻关项目，争取在能源基础科学研究领域取得突破。依托行业骨干企业和科研院
所 ，以应用为导向，鼓励开展煤矿高效集约开采、非常规油气资源勘探开发、高
效清洁发电、海上风电、太 阳能热发电、先进油气储运、大容量高效率远距离输
电等先进适用技术研发应用。继续实施“大型油气田 及煤层气开发”、“大型先
进压水堆及高温气冷堆核电站”两个国家科技重大专项，推进关键技术创新， 增
强能源领域原始创新、集成创新和引进消化吸收再创新能力。
——推进能源装备技 术进步。依托重大技术装备工程，加强技术攻关，
完善综合配套，建立健全能源装备标准、检测和认证体 系，提高重大能源装备设
计、制造和系统集成能力。进一步完善政策支持体系，重点推进大功率高参数超
超临界机组、燃气轮机、三代核电、可再生能源发电机组、非常规油气资源勘探
开发等关键设备 技术进步，积极推广应用先进技术装备。加强对能源装备产业的
规划引导，防止低水平重复建设。

——实施重大科技示范工程。围绕能源发展方式转变和产业转型升级，
在大型先进压水堆、高温气冷堆、煤层气开发利用、页岩气勘探开发、煤炭深加
工、储能、智能电网等领 域，加大资金、技术、政策支持力度，建设重大示范工
程，推动科技成果向现实生产力转化。
——完善能源技术创新体系。依托大型企业、科研机构和高校，在煤炭
资源勘探、煤层气开发利用、页岩 气勘探开发、海洋工程装备、大型清洁高效发
电设备、智能电网技术、先进核反应堆技术等领域，继续建 设一批国家能源技术
创新平台，加强自主研发和核心技术攻关。完善国家对技术创新平台的支持政策体系。充分发挥企业的创新主体作用，做好创新成果的推广应用。引导科研机构、
高等院校的科研力 量为企业技术创新服务，更好地实现产学研有机结合。完善科
技评价和奖励制度，建立和完善能源创新人 才的培养体系和激励机制。
八、深化能源体制改革
改革是加快转变发展方式的强大 动力。中国将坚定地推进能源领域改
革，加强顶层设计和总体规划，加快构建有利于能源科学发展的体制 机制，改善
能源发展环境，推进能源生产和利用方式变革，保障国家能源安全。
—— 加快能源法制建设。完善能源法律制度，为规范能源市场、保护生
态环境、维护能源安全提供法律保障。 中国高度重视并继续积极推进能源法律制
度建设，目前正在研究论证制定能源法以及石油储备、海洋石油 天然气管道保护、
核电管理等方面的行政法规，修改完善《煤炭法》、《电力法》等现行法律法规，推进石油天然气、原子能等领域的立法工作。
——完善市场体制机制。中国积极推进能源 市场化改革，充分发挥市场
配置资源的基础性作用。凡是列入国家能源规划的项目，除法律法规明确禁止 的

以外，均向民间资本开放。鼓励民间资本参与能源资源勘探开发、石油和天然气
管网建设、电力建设，鼓励民间资本发展煤炭加工转化和炼油产业，继续支持民
间资本全面进入新能源 和可再生能源产业。加强和规范煤炭勘探开发权管理，逐
步取消重点合同煤和市场煤价格双轨制，完善煤 炭与煤层气协调发展机制。深化
电力体制改革，稳步开展输配分开试点。积极推进电价改革，逐步形成发 电和售
电价格由市场决定、输配电价由政府制定的价格机制。理顺煤电价格关系。探索
建立可再 生能源配额交易等制度。成功实施成品油价税费联动改革，运用税收手
段合理引导能源消费。不断完善理 顺成品油价格形成机制，开展天然气价格形成
机制改革试点。完善能源市场体系，发展现货、长期合约、 期货等交易形式。
——加强能源行业管理。提高能源资源开发利用效率，促进能源行业科学发展，维护国家能源安全，必须加强能源行业管理。重视能源发展的战略谋划
和宏观调控，综合运 用规划、政策、标准等手段实施行业管理。减少政府对微观
事务的干预，简化行政审批事项。加强对垄断 行为和不正当竞争行为的监管，建
立公开、公平、科学、有效的监管体系。加强能源统计预测管理，健全 能源统计、
监测和预测预警体系。
九、加强能源国际合作
中国的发展离不 开世界，世界的繁荣需要中国。随着全球化的不断深入，
中国在能源发展方面与世界联系日益紧密。中国 的能源发展，不仅保障了本国经
济社会发展，也为维护世界能源安全和保持全球市场稳定作出了贡献。
中国是国际能源合作中负责任的积极参与者。在双边合作方面，中国与
美国、欧盟、日 本、俄罗斯、哈萨克斯坦、土库曼斯坦、乌兹别克斯坦、巴西、
阿根廷、委内瑞拉等国家和地区建立了能 源对话与合作机制，在油气、煤炭、电
力、可再生能源、科技装备和能源政策等领域加强对话、交流与合 作。在多边合

作方面，中国是亚太经济合作组织能源工作组、二十国集团、上海合作组织 、世
界能源理事会、国际能源论坛等组织和机制的正式成员或重要参与方，是能源宪
章的观察员 国，与国际能源署、石油输出国组织等机构保持着密切联系。在国际
能源合作中，中国既承担着广泛的国 际义务，也发挥着积极的建设性作用。
中国在能源领域坚持对外开放，不断优化外商投资环境 ，保障投资者合
法权益。中国先后出台了《中外合资经营企业法》、《中外合作经营企业法》、
《外资企业法》等法律法规，以及《外商投资产业指导目录》、《中西部地区外
商投资优势产业目录》等 政策文件。中国鼓励外商以合作的方式，进行石油天然
气勘探开发，开展页岩气、煤层气等非常规油气资 源勘探开发。鼓励投资建设新
能源电站、以发电为主的水电站和采用洁净燃烧技术的电站，以及中方控股 的核
电站。鼓励跨国能源公司在华设立研发中心。
中国能源企业遵循平等互惠、互利 双赢的原则，积极参与国际能源合作，
参与境外能源基础设施建设，发展能源工程技术服务合作。中国企 业对外投资合
作开发的能源资源，90％以上都在当地销售，增加了全球能源市场供应，促进了
供应渠道的多元化。中国能源企业在对外投资合作时，遵守当地法律法规，尊重
当地宗教信仰和风俗习惯 ，在实现自我发展的同时，积极为当地经济社会发展作
出贡献。
在今后相当长一段时 间内，国际能源贸易仍将是中国利用国外能源的主
要方式。中国将按照世界贸易组织规则，完善公平贸易 政策，开展能源进出口贸
易，优化贸易结构。综合运用期货贸易、长协贸易、转口贸易、易货贸易等方式 ，
推进贸易方式多元化。积极参与全球能源治理，加强与世界各国的沟通与合作，
共同应对国际 货币体系、过度投机、垄断经营等因素对能源市场的影响，维护国
际能源市场及价格的稳定。

能源问题关系国计民生，关系人类福祉。为了减少能源资源问题带来的
纷争和不平等，实现世界经济平稳有序发展，推动经济全球化向着均衡、普惠、
共赢的方向发展，需要国 际社会树立互利合作、多元发展、协同保障的新能源安
全观。为了共同维护全球能源安全，中国主张，国 际社会应着重在以下三个方面
作出努力：
——加强对话与交流。加强能源出口国、消 费国和中转国之间的对话和
交流，是开展能源国际合作的基础。国际社会应进一步密切双多边关系，加强 在
提高能效、节能环保、能源管理、能源政策等方面的对话交流，完善国际能源市
场监测和应急 机制，深化在信息交流、人员培训、协调行动等方面的合作。
——开展能源务实合作。各国应 秉持互利共赢、共同发展的原则，开展
国际能源资源勘探开发互利合作，丰富和完善合作机制与手段，增 加全球能源供
应，促进供应渠道的多元化。共同稳定大宗能源产品价格，保障各国用能需求，
维 护能源市场正常秩序。发达国家应从人类可持续发展的高度，在保护知识产权
的前提下，积极向发展中国 家和不发达国家提供、转移清洁高效能源技术，共同
推动全球绿色发展。国际社会应携手努力，帮助最不 发达国家消除能源贫困，扩
大能源服务，促进可持续发展。
——共同维护世界能源安 全。公平合理的国际能源治理机制是维护世界
能源市场稳定的重要条件。各国应加强合作，共同维护能源 生产国和输送国，特
别是中东等产油国地区的局势稳定，确保国际能源通道安全和畅通，减少地缘政治纷争对全球能源供应的干扰。通过对话与协商的方式，解决重大国际能源问题，
不应把能源问题政 治化，避免动辄诉诸武力，甚至引发对抗。
结 束 语

能源是中国 全面建设小康社会、实现现代化和富民强国的重要物质基
础。中国将努力解决好能源问题，坚定不移地走 能源可持续发展道路。
今后一段时期，中国仍将处于工业化、城镇化加快发展的阶段，发展经
济、改善民生的任务十分艰巨，能源需求还会增加。作为一个拥有13亿多人口
的发展中大国， 中国必须立足国内增加能源供给，稳步提高供给能力，满足经济
平稳较快发展和人民生活改善对能源的需 求。
能源安全是全球性问题，绝大多数国家都不可能离开国际合作而获得能
源安全保 障。中国能源发展取得的成就，与世界各国友好合作密不可分。中国未
来的能源发展更需要国际社会的理 解和支持。有十几亿人口的中国走能源可持续
发展道路，这是人类能源发展史上新的探索和实践。中国过 去不曾、现在没有、
将来也不会对世界能源安全构成威胁。中国将在平等互惠、互利共赢的原则下，进一步加强与各能源生产国、消费国和国际能源组织的合作，共同推动世界能源
的可持续发展，维护 国际能源市场及价格的稳定，确保国际能源通道的安全和畅
通，为保障全球能源安全和应对气候变化作出 应有贡献。

China's Energy Policy 2012
The Information Office of the State Council, or China's cabinet, on Wednesday
published the 2012 edition of white paper on the country's energy policy.
Following is the full text:
China's Energy Policy 2012
Information Office of the State Council
The People's Republic of China
October 2012, Beijing

Contents
Preface
I. Current Energy Development
II. Policies and Goals of Energy Development
III. All-round Promotion of Energy Conservation
IV. Vigorously Developing New and Renewable Energy
V. Promoting Clean Development of Fossil Energy
VI. Improving Universal Energy Service
VII. Accelerating Progress of Energy Technology

VIII. Deepening Institutional Reform in the Energy Sector
IX. Strengthening International Cooperation in Energy
Conclusion


Preface
Energy is the material basis for the progress of human civilization and an
indispensable basic condition for the development of modern society. It remains a
major strategic issue for China as the country moves towards its goals of
modernization and common prosperity for its people.
Since China adopted the policy of reform and opening up in the late 1970s, its energy
industry has made great advances. China is now the world's largest energy producer.
It has built up a comprehensive energy supply system comprising coal, electricity,
petroleum, natural gas, and new and renewable energy resources. Its universal energy
service and civil energy use conditions have markedly improved. Its thriving energy
industry provides a guarantee for the country to reduce poverty, improve the people's
livelihood and maintain long-term, steady and rapid economic development.
However, China's energy development still faces many challenges. The country's
energy resource endowment is not high and its per-capita share of coal, petroleum and
natural gas is low. Its energy consumption has grown too quickly in recent years,
increasing the strain on energy supply. Fossil energy resources have been exploited on
a large scale, causing a certain amount of damage to the eco-environment.
To curb excessive consumption of energy resources and achieve the comprehensive,
balanced and sustainable development of the economy, society and ecology, China
keeps strengthening its efforts in energy conservation and emission reduction, and
strives to raise the efficiency of energy utilization. As a result, energy consumption
per unit of GDP has been decreasing year by year. China will continue to take the
Scientific Outlook on Development as its guiding principle, and work hard to
transform its development pattern, giving prominence to building a
resource-conserving and environment-friendly society. It relies on scientific,
technological and system innovation to raise efficiency in all aspects of energy
utilization, further develops new and renewable energy resources, and promotes the
clean and efficient development and utilization of fossil energy resources. The
country endeavors to build a modern energy industry which is secure, stable,

economical and clean, in order to provide a solid guarantee for bulding a moderately
prosperous society in all respects and make greater contributions to the world's
economic development.
I. Current Energy Development
Since the reform and opening-up policy was introduced, China's energy industry has
witnessed rapid growth, achieving comprehensive development of coal, electricity,
petroleum, natural gas, and new and renewable energy resources, making important
contributions to the long-term, steady and rapid growth of the national economy and
the sustained improvement of living standards.
-- Remarkable enhancement of energy supply capability and security. In 2011, the
output of primary energy equaled 3.18 billion tons of standard coal, ranking first in
the world. Of this, raw coal reached 3.52 billion tons; crude oil, 200 million tons; and
refined oil products, 270 million tons. The output of natural gas ballooned to 103.1
billion cu m. The installed electricity generating capacity reached 1.06 billion kw, and
the annual output of electricity was 4.7 trillion kwh. A comprehensive energy
transportation system has developed rapidly. The length of oil pipelines totaled more
than 70,000 km, and the natural gas trunk lines exceeded 40,000 km. Electric power
grids were linked up throughout the country, and electricity transmission lines of 330
kv or more totaled 179,000 km. The first phase of the national petroleum reserve
project was completed, and the country's emergency energy-supply capability keeps
improving.
-- Conspicuous achievements in energy conservation. China vigorously promotes
energy conservation. During the 1981-2011 period, China's energy consumption
increased by 5.82 percent annually, underpinning the 10 percent annual growth of the
national economy. From 2006 to 2011, the energy consumption for every 10,000 yuan
of GDP dropped by 20.7 percent, saving energy equivalent to 710 million tons of
standard coal. The state implemented a series of energy- saving renovations, such as of
boilers, electrical machinery, buildings and installation of green lighting products.
The gap between the overall energy consumption of China's high energy-consuming
products and the advanced international level is narrowing. The energy utilization
efficiency of new projects in the heavy and chemical industries, such as non-ferrous
metals, building materials and petrochemicals, is up to the world's advanced level.
The country has eliminated small thermal power units with a total generating capacity
of 80 million kw, saving more than 60 million tons of raw coal annually. In 2011, coal
consumption of thermal power supply per kwh was 37 grams of standard coal lower
than in 2006, a decrease of 10 percent.
-- Rapid development in non-fossil energy. China has made energetic efforts in
developing new and renewable energy resources. In 2011, the installed generating

capacity of hydropower reached 230 million kw, ranking first in the world. Fifteen
nuclear power generating units were put into operation, with a total installed capacity
of 12.54 million kw. Another 26 units, still under construction, were designed with a
total installed capacity of 29.24 million kw, leading the world. The installed
generating capacity of wind power connected with the country's power grids reached
47 million kw, ranking top in the world. Photovoltaic power generation also reported
speedy growth, with a total installed capacity of 3 million kw. Solar water heating
covered a total area of 200 million sq m. The state also expedites the use of biogas,
geothermal energy, tidal energy and other renewable energy resources. Non-fossil
energy accounted for 8 percent of the total primary energy consumption, which means
an annual reduction of more than 600 million tons of carbon dioxide (CO2) emission.
-- Quick advance in science and technology. A fairly complete system of exploration
and development technologies has taken shape in the petroleum and natural gas
industry, with prospecting and development techniques in geologically complicated
regions and the recovery ratio of oilfields leading the world. Oil drilling rigs that are
capable of operating at a maximum water depth of 3,000 m have been built. China is
now able to independently design and build oil refinery equipment, each set of which
boasts an annual output of 10 million tons, and ethylene production plants, each of
which has an annual output of one million tons. The country's direct coal liquefaction
and coal-to-olefins technologies, for which it owns independent intellectual property
rights, have reached the world's advanced level and achieved new breakthroughs in
technology. In addition, 60 percent of the country's coal mines have been mechanized,
and mechanized underground mining equipment with an annual output of six million
tons is installed nationwide. Electric power generating units featuring a large capacity
and high parameters, including ultra-supercritical and air- cooled generators each with
an installed capacity of one million kw, have been installed widely. The designing and
manufacturing of 700,000-kw hydraulic turbine generators have reached the world's
advanced level. China is now able to independently design and build one- million-kw
pressurized water reactor nuclear power plants, and has made outstanding
breakthroughs in the R&D of high-temperature gas-cooled reactors and fast reactors.
Also, 3,000-kw wind power generators have been mass- produced and 6,000 kw wind
power generators have come off the production line. The solar photovoltaic industry
has formed a sound manufacturing chain, with an annual output of solar panels
accounting for more than 40 percent of the world's total. China leads the world in
extra-high-voltage DCAC power transmission technology and manufacturing.
-- Marked improvement in civil energy use conditions. The state actively promotes
civil energy projects and works to enhance the overall level of energy service.
Compared with 2006, the per- capita primary energy consumption in 2011 equaled 2.6
tons of standard coal, a 31 percent increase; the per-capita natural gas consumption
reached 89.6 cu m, an increase of 110 percent; and the per-capita electricity

consumption was 3,493 kw, a 60 percent increase. The first and second west-east gas
pipelines have been completed, and more than 180 million people across the country
have access to natural gas. The government has invested more than 550 billion yuan
in power grid upgrading projects for rural areas, fundamentally improving access to
electricity for rural residents. The Qinghai-Tibet electricity network project has been
completed, connecting the power grid of the Tibetan plateau with those of the other
parts of China. The state is accelerating the construction of electric power facilities in
areas that as yet do not have electricity, and has so far ensured that more than 30
million people have access to electricity. Combined heat and power projects with a
total installed capacity of 70 million kw have been built in high-altitude and frigid
areas in northern China that provide more than 40 million urban residents access to
heating.
-- Remarkable progress in environmental protection. The country is quickening the
pace of control of coal mining subsidence areas, and establishes and improves the
compensation mechanism for the exploitation of coal resources and restoration of the
eco-environment. In 2011, the coal washing rate reached 52 percent and the land
reclamation rate, 40 percent. Existing power plants have speeded up their
desulfurization and denitration upgrading, and coal-fueled generating units with flue
gas desulphurization facilities accounted for 90 percent of the national total.
Coal-fueled generating units reported a 100-percent installation of dust-cleaning
facilities and a 100-percent discharge of waste water up to the relevant standards. The
state is intensifying efforts for the development and utilization of coal bed methane
(CBM), extracting 11.4 billion sq m of CBM in 2011. China became the first country
to adopt a national standard for CBM emissions. Its energy consumption per unit of
GDP has dropped over the past five years, eliminating 1.46 billion tons of CO2
discharge.
-- Energy systems and mechanisms gradually improving. The market mechanism is
playing an increasingly important role in resource allocation. Investors in the energy
field are diversified, and private investment in it keeps growing. Market competition
has been introduced into the production and distribution of coal. In the electric power
industry, government administrative functions and enterprise management have been
separated, as has power production from power transmission, and a supervisory
system has taken shape. Energy pricing reform has been deepening, and the pricing
mechanism is gradually improving. Relevant policies and measures for the sustainable
development of the coal industry have been tried out. The state has also established a
feed-in tariff (FIT) system for wind and photovoltaic power generation, and a
renewable energy development fund. The legal system of energy-related laws has
been strengthened, and a number of laws and regulations have been amended and
published in the past few years, including the Energy Conservation Law, Renewable
Energy Law, Circular Economy Promotion Law, Law on the Protection of Oil and

Natural Gas Pipelines, Regulations on Energy Conservation in Civil Buildings, and
Regulations on Energy Conservation by Public Institutions.
As the world's largest energy producer, China mainly relies on its own strength to
develop energy, and its rate of self-sufficiency has reached around 90 percent. China's
energy development not only guarantees domestic economic and social development,
but also makes significant contributions to global energy security. For some time to
come, China's industrialization and urbanization will continue to accelerate, and the
demand for energy will go on increasing, and so its energy supply will confront
increasingly tougher challenges.
-- Prominent resources restraint. China's per-capita average of energy resources is low
by world standards. China's per-capita shares of coal, petroleum and natural gas
account for 67 percent, 5.4 percent, and 7.5 percent of the world's averages,
respectively. Although China has experienced rapid growth in energy consumption
over the past few years, its per-capita energy consumption is still low - only one third
of the average of developed countries. But as the economy and society progress and
living standards improve, China's energy consumption will continue to rise sharply,
and there will be a growing restraint on resources.
-- Low energy efficiency. China's industrial structure is yet to be rationalized and the
economic growth pattern to be improved. Energy consumption per unit of GDP is
much higher than those of developed countries and some newly industrialized
countries. Energy-intensive industries are backward in technology. The percentage of
energy consumption by the secondary industries, especially the energy-intensive
industrial sectors, is too high in the country's total. The energy consumption of four
major energy-intensive industries - steel, non-ferrous metals, chemicals, and building
materials - accounts for 40 percent of the national total. Low energy efficiency results
in high energy consumption for every unit of GDP.
-- Increasing environmental pressure. Extensive development of fossil energy,
particularly coal, has had a serious impact on the eco-environment. Large areas of
arable land are taken up for other uses or even spoiled, water resources are seriously
polluted, the discharge of carbon dioxide (CO2), sulfur dioxide (SO2), nitrogen
oxides (NOx) and toxic heavy metals remains high, and emissions of ozone and
particles smaller than 2.5 micrometers (PM2.5) are increasing. For a long time to
come, fossil energy will continue to dominate the energy consumption mix, posing a
growing challenge for protecting the environment and countering climate change. A
more environment-friendly energy mix is urgently needed.
-- Grave challenges to energy security. The country's dependence on foreign energy
sources has been increasing in recent years. In particular, the percentage of imported
petroleum in the total petroleum consumption has risen from 32 percent at the

beginning of the 21st century to the present 57 percent. Marine transportation of
petroleum and cross-border pipeline transmission of oil and gas face ever-greater
security risks. Price fluctuations in the international energy market make it more
difficult to guarantee domestic energy supply. It will not be easy for China to
maintain its energy security since its energy reserves are small and its emergency
response capability is weak.
-- Reforms called for current systems and mechanisms. Energy-related systems and
mechanisms still suffer from some long-term, deep-rooted problems. The energy
pricing mechanism is yet to be perfected, and industrial management is still weak.
The overall service level needs to be enhanced. Overall, restraints of the current
systems and mechanisms have seriously hindered the rational development of the
country's energy industry.
The above problems challenging China's energy development are a result of the
international energy competition, and China's levels of productivity and development,
as well as the country's irrational industrial structure and energy mix, extensive
development and utilization of energy resources, and sluggish reform of relevant
systems and mechanisms. Therefore, China will vigorously promote the
transformation of its energy production and utilization modes, continuously improve
its energy policy, and strive to achieve a comprehensive, balanced and sustainable
development of its energy, economy, society and eco-environment.
II. Policies and Goals of Energy Development
As the largest developing country in the world, China is faced with the daunting tasks
of developing its economy, improving its people's livelihood, and building a
moderately prosperous society. It is an important strategic task of the Chinese
government to maintain long-term, stable and sustainable use of energy resources.
China's energy development must follow a path featuring high-tech content, low
consumption of resources, less environmental pollution, satisfactory economic returns,
as well as security. It is moving towards the objective of economical, clean and secure
development.
The basic contents of China's energy policies are: priority to conservation,
relying on domestic resources, encouraging diverse development, protecting the
environment, promoting scientific and technological innovation, deepening reform,
expanding international cooperation, and improving the people's livelihood.
strives to advance the transformation of its energy production and utilization modes,
and build a modern energy industrial system which features secure, stable,
economical and clean development, so as to support sustainable economic and social
development with sustainable energy development.

-- Giving priority to conservation. The state exercises control over both total energy
consumption and intensity. It is working to build an energy-saving production and
consumption system, promote the transformation of the patterns of economic
development and household consumption, and accelerate the pace of building an
energy- efficient country and an energy-saving society.
-- Relying on domestic resources. The country relies on domestic resource advantages
and its own development basis, makes special efforts to enhance its energy supply
capability and security, improves its emergency energy reserve and emergency
response systems, and controls its dependence on foreign energy sources.
-- Encouraging diverse development. China endeavors to raise the proportion of clean,
low-carbon fossil energy and non-fossil energy in the energy mix, promotes the
efficient and clean utilization of coal, develops substitute energy resources in a
scientific way, and speeds up the optimization of energy production and the
consumption mix.
-- Protecting the environment. The state encourages fostering the concept of
environment-friendly and low-carbon development, coordinates the development and
use of energy resources with the protection of the eco-environment while paying
equal attention to both, and actively fosters an energy development pattern that meets
the requirements of ecological civilization.
-- Promoting scientific and technological innovation. The state strengthens basic
scientific research and frontier technological research in the energy field to enhance
its scientific and technological innovation capabilities. Through the implementation of
key energy projects, the state advances independent innovation in key technologies
and equipment, and speeds up the fostering of innovative personnel.
-- Deepening reform. The state gives full play to the role of the market mechanism,
makes unified planning with due consideration for all concerned, addresses both root
causes and symptoms of various problems, and expedites the reform in key fields and
links to establish a framework of systems and mechanisms conducive to sustainable
energy development.
-- Expanding international cooperation. China gives simultaneous consideration to
both domestic and international energy development, works to increase the scope,
channels and forms of international cooperation, enhances its capability to
and global,propels the establishment of a new international energy order and
promotes mutually beneficial cooperation.

-- Improving the people's livelihood. The state coordinates energy development in
both urban and rural areas, enhances energy infrastructure and basic public services,
and strives to eliminate energy poverty and improve civil energy- use conditions.
It is stipulated in the Outline of the 12th Five-Year Plan (2011-2015) for National
Economic and Social Development that by 2015 non-fossil energy will rise to 11.4
percent in the national total primary energy consumption, energy consumption per
unit of GDP will drop by 16 percent from 2010, and CO2 emission per unit of GDP
will decrease by 17 percent from 2010.
The Chinese government has made the commitment that by 2020 non-fossil energy
will account for 15 percent of its total primary energy consumption, and CO2
emission per unit of GDP will be 40-45 percent lower than in 2005. As a responsible
nation, China will make every effort to fulfill its commitment.
III. All-round Promotion of Energy Conservation
China is a country with a large population but relevant deficiency in resources. To
attain sustainable use of energy resources and sustainable economic and social
development, it must take the path of conserving energy.
China always puts energy conservation in the first place. In the early 1980s, it put
forward the development policy of both development and saving, with
priority given to ment issued the Decision of the State
Council on Strengthening Energy Conservation in 2006. It issued the Comprehensive
Work Plan on Energy Conservation and Emission Reduction in 2007, making an
all-round plan for the major sectors of energy consumption, such as industry,
construction and transportation. China carried out ten key energy-conservation
projects, including the innovation of coal-fueled industrial boilers (kilns), surplus heat
and pressure utilization, energy saving in electrical motors, construction of
energy-saving buildings, the green lighting project, and energy saving in government
bodies, thus increasing its energy- conservation capacity to 340 million tons of
standard coal. The Chinese government launched an energy conservation drive among
1,000 enterprises, resulting in a sharp decline in the comprehensive energy
consumption index of key industries, and saving energy equivalent to 150 million tons
of standard coal. China's energy consumption per unit of GDP dropped 19.1 percent
during its 11th Five-Year Plan period (2006-2010).
In 2011, the State Council released the Comprehensive Work Plan on Energy
Conservation and Emission Reduction During the 12th Five-Year Plan Period. This
plan proposed the major objectives and key actions in the fields of energy
conservation and emission reduction during this period. China aims to establish a
coercion mechanismthrough the dynamic integration of its efforts in

lowering the intensity of energy consumption, reducing the total emissions of major
pollutants, and rationally controlling total energy consumption. The
mechanism
the optimization of the industrial structure, and strengthen all aspects of energy
utilization management in industry, construction, transportation, and public
organizations, as well as in the fields of urban and rural construction and consumption,
thus contributing to the building of a resource-conserving and environment-friendly
society.
-- Optimization of the industrial structure. The country puts the adjustment of the
industrial structure in the key place of its energy conservation strategy. It exercises
strict control over low-level duplicated construction, and eliminates industries with
high consumption and high pollutant emission, and backward productivity. China
expedites the transformation of its traditional industries with advanced and applicable
technology. It raises the entry threshold for processing trade, and promotes its
transformation and upgrading. It improves the structure of foreign trade, and
transforms its energy- and labor-intensive development mode into a capital- and
technology-intensive one. It pushes forward the development of the service trades,
fosters and develops emerging industries of strategic importance, and speeds up the
formation of pioneer and pillar industries.
-- Strengthening energy conservation in industry. With its energy consumption taking
up about 70 percent of China's total, industry is the major energy consumer in China.
The state has drawn up catalog of advanced and applicable technologies in the fields
of energy conservation and emission reduction for key industries such as iron and
steel, petrochemicals, non-ferrous metals and building materials, for the purpose of
eliminating backward technology, equipment and products, and developing
energy-saving and high-value-added products and equipment. It has established and
improved a mandatory standards system of quotas for energy consumption per-unit
product in key industries, and strengthened the energy-saving evaluation and
supervision system. It has undertaken key energy-saving projects, including
simultaneous generation of heat and power, recycling of industrial by-product gas,
construction of enterprise energy-control centers, and fostering of energy-saving
industries, so as to increase its enterprises' e
ergy utilization efficiency.
-- Promoting building energy conservation. China makes vigorous efforts to construct
green buildings and comprehensively advance energy conservation in buildings. It
sets and improves the standards for green buildings, and implements rating and
identification of green buildings. It actively promotes energy-saving renovation of
existing buildings, and sets quotas for energy consumption by public buildings and
publicizes their energy efficiency rates. It has set up a management system for the life

cycles of buildings, and exercises strict control over demolition of buildings. China
has also made and implemented an energy-saving plan for public institutions, and
strengthened the establishment of a supervisory system for energy conservation in
public buildings. It carries forward heat metering and energy efficiency renovations
on existing residential heating systems in the northern regions of China, builds
energy-saving greenhouses, improves the old heat-supply network, and practices
metered heat-supply charging
and energy consumption quota management.
-- Pushing forward energy conservation in transportation. China continues to give
priority to public transport, actively develops intercity rail transportation, and
rationally encourages green commuting. China implements the fuel economy standard
of the world's advanced level for automobiles, and popularizes energy-saving and
environment- friendly vehicles. It speeds up the elimination of old automobiles,
locomotives and ships. Vigorous efforts are made to optimize the transportation
structure and develop green logistics. China increases the electrification rate in rail
transportation, and launches energy-saving renovations at airports, piers and railway
stations. It actively develops and popularizes new energy vehicles, and makes
scientific plans for the construction of supporting facilities, including compressed
natural gas filling and electricity charging facilities.
-- Promoting energy conservation among all citizens. The Chinese government will
intensify efforts in energy-saving education and publicity. It works hard to bring into
being a green mode of consumption and green lifestyle among urban and rural
residents, and strengthens the public awareness of the importance of resource
conservation. It strictly enforces the energy-saving standards of public institutions,
and gives full play to the demonstration and leading role of government organs in
energy conservation. It mobilizes all sectors of society to participate in energy
conservation by conducting relevant activities in residential areas, schools,
government organs, the armed forces and enterprises. All these measures help build a
long-term mechanism of energy conservation with the participation of all sectors of
society. Attention is also paid to energy conservation and emission reduction in rural
areas, such as the construction of energy-saving houses.
IV. Vigorously Developing New and Renewable Energy
Vigorously developing new and renewable energy is a key strategic measure for
promoting the multiple and clean development of energy, and fostering emerging
industries of strategic importance. It is also an urgent need in the protection of the
environment, response to climate change and achievement of sustainable development.
Through unswerving efforts in developing new and renewable energy sources, China
endeavors to increase the shares of non-fossil fuels in primary energy consumption

and installed generating capacity to 11.4 percent and 30 percent, respectively, by the
end of the 12th Five-Year Plan.
-- Actively developing hydropower. China boasts abundant hydropower resources. Its
technically exploitable hydropower resources are equal to 542 million kw, putting the
country first in the world. Calculated according to power generation, less than 30
percent of China's hydropower resources are currently utilized, leaving plenty of room
for development in this regard. In order to attain the goal of increasing non-fossil
energy consumption to 15 percent of the total energy consumption by 2020, more than
half will come from hydropower development. On the condition that the ecological
environment is protected and resettlements of local people affected are properly
handled, China will energetically develop hydropower. By integrating hydropower
development with promotion of local employment and economic development, the
Chinese government aims to local resources, stimulate local economic
development, improve the local environment and benefit local people.
strives to improve its resettlement policies regarding local people affected by
hydropower projects, and perfect the benefit- sharing mechanism. China will
strengthen ecological-protection and environmental-impact assessment, strictly
implement measures to protect the environment of existing hydropower stations, and
improve the comprehensive utilization level and eco-environmental benefits of water
resources. In accordance with rational river basin planning for hydropower
development, China will speed up the construction of large hydropower stations on
key rivers, develop medium- and small-sized hydropower stations based on local
conditions, and construct pumped-storage power stations in appropriate circumstances.
The country's installed hydropower generating capacity is expected to reach 290
million kw by 2015.
-- Developing nuclear power in a safe and highly efficient way. As nuclear power is a
high-quality, clean and efficient modern energy source, its development is of great
significance for optimizing the nation's energy structure and ensuring national energy
security. At present, nuclear power only accounts for 1.8 percent of China's total
power output, far below the world average, which is 14 percent. Nuclear safety is
essential for nuclear power development. Since the Fukushima Daiichi nuclear
disaster in 2011, China has launched comprehensive safety inspections at all nuclear
power plants. The inspection results show that nuclear security is guaranteed in China.
Over the past 20 years, Chinese nuclear power units in operation have never had
accidents at and above Level 2, with major operating parameters being better than the
world's average and some indices even reaching the leading or advanced world level.
Upholding a scientific and rational concept of nuclear security, China implements the
principle of
selection, R&D, design, construction, operation and decommissioning. It has
established and improved a legal system on nuclear power, improved and optimized

the safety management mechanism of nuclear power, set a high entry threshold in this
regard, and clarified safety responsibility. It has improved the supervision system of
nuclear power by strengthening safety supervision and inspection, and radiation
environment supervision and management at nuclear power plants in operation and
under construction. An emergency mechanism for nuclear accidents has been
established and improved to enhance the country's emergency response capability.
China will invest more in nuclear power technological innovations, promote
application of advanced technology, improve the equipment level, and attach great
importance to personnel training. China's installed capacity of nuclear power is
expected to reach 40 million kw by 2015.
-- Effectively developing wind power. As a non-water renewable energy, wind power
is currently the most appropriate energy source for large-scale development and
market-driven utilization. China's wind power industry is the fastest-growing in the
world. During the 12th Five-Year Plan period, China will stress both intensive and
distributed exploitation, and optimize the development layout of wind power. It will
push forward wind power construction in an orderly way in the northwestern,
northern and northeastern regions, which boast abundant wind energy, and speed up
the development and utilization of distributed resources. It will steadily develop
offshore wind farms, and improve the standards for wind-power equipment and the
supervision system of this industry. China will encourage wind-power equipment
manufacturers to expedite R&D of key technologies, so as to accelerate the
technological upgrading of this industry. By means of speeding up grid construction,
increasing the grid's dispatch level, improving the performance of wind-power
equipment, and strengthening wind-power prediction and forecast, China aims to
improve its power grids' wind-power integration ability. The installed generating
capacity of wind power is expected to reach 100 million kw by the end of 2015, with
500 kw of generating capacity coming from offshore wind farms.
-- Actively making use of solar energy. China is rich in solar energy, which boasts
immense room for development and has a promising future. During the 12th
Five-Year Plan period, China will promote diverse patterns of solar-power
development by integrating intensive exploitation with distributed utilization. It will
construct large on-grid photovoltaic power stations and solar power generation
projects in Qinghai and Gansu provinces, and the Xinjiang Uygur and Inner Mongolia
autonomous regions, which boast abundant solar energy and scattered plots of
unutilized land, for the purpose of increasing local supplies of electricity. It will
encourage the central and eastern regions to construct distributed photovoltaic power
generation systems linked to local buildings. Intensified efforts will be made to
popularize solar water heaters, and promote the development of solar central
hot-water supply, solar heating and cooling, and medium- and high- temperature
industrial applications of solar energy. It will spread solar water heaters, solar cookers

and solar houses in the countryside, border areas, and small cities and towns. China's
installed generating capacity of solar energy is expected to exceed 21 million kw by
2015, with a total solar heat collection area of 400 million sq m.
-- Developing and utilizing biomass energy and other types of renewable energy.
China will develop biomass energy and other renewable energy resources under the
principle of development based on local conditions and comprehensive
utilization with all factors taken into consideration.
using crop stalks, grain-processing residues and bagasse as fuels in major producing
areas of grain and cotton; and carefully develop woody biomass power generation in
forest-covered areas. Attention will be given to the promotion of electricity generation
by means of waste incineration and landfill gas in urban areas. The country will also
speed up the construction of biomass gas, including methane, supply systems in
eligible regions, and build production bases of biomass molding fuel in accordance
with local conditions. Efforts will also be made to develop biodiesel and industrial
cellulosic ethanol. China will spread the technology of efficiently using geothermal
energy on the condition that underground water is protected. It will reinforce the
tracking and R&D of electricity generation technologies by using tidal energy, wave
energy and hot dry rocks.
-- Promoting distributed utilization of clean energy. China will energetically develop
distributed energy resources on the principle of priority to local supply,
feeding the surplus into the grid, development based on local conditions, and
advancing in an orderly way.
systems (DES) for natural gas at energy load centers. It will energetically spread the
technology of distributed renewable energy, especially in high energy-consumption
centers, including cities and industrial parks. It will carry out distributed renewable
energy construction in rural areas, forest regions and islands in accordance with local
conditions. Efforts will be made to set standards for distributed energy, and improve
the formation mechanism and polices for on-grid price. Hard work will be done to
realize direct supply, and non- discriminatory and barrier-free connection to the grid of
power generated in the distributed manner. During the 12th Five-Year Plan period,
China will construct about 1,000 projects of natural gas DES, and ten distributed
energy demonstration areas with various typical characteristics.
V. Promoting Clean Development of Fossil Energy
Worldwide, fossil energy, including coal and oil, will continue to play a dominant role
in energy supply for a long time to come. China is no exception. Therefore, China will
continue to plan fossil exploitation and utilization, with environmental protection
taken into account. It will speed up the construction of advanced production capacity,
eliminate outdated capacity, push forward the clean development of fossil energy,

protect the ecological environment and cope with climate change, so as to attain the
goal of energy conservation and emission reduction.
-- Developing the coal industry in a safe and highly efficient way. China sticks to the
guideline of
efficient utilization and environmental protectionin the development of the coal
industry. Following the principle of control in the eastern regions,
maintaining stability in the central regions, and promoting development in the western
regions,
the Shaanbei, Huanglong and Shendong coalfields. By means of integration of coal
resources, and merger and reorganization of coal mining enterprises, the country will
bring into being large coal mining conglomerates. Priority will be given to the
development of large open-pit and super-large coal mines. It aims to enhance overall
mechanization and safe production in coal mining through upgrading and
reconstruction, and elimination of outdated production capacity. Vigorous efforts will
be made to develop a circular economy in the mining areas, increase the washing and
dressing rate of raw coal, and rationally develop associated resources. Following the
approach of energy, technology and capital-intensive development with extensive
industrial chain and high added value, the country will develop demonstration projects
of upgraded downstream products in an orderly way. It will encourage the
construction of projects for clean production, utilization, processing and conversion of
low-calorific-value coal. It will strengthen environmental protection and ecological
construction in the mining areas by way of comprehensive ecological management
and land reclamation in mining-subsidence and other areas affected by coal-mining
operations.
-- Spurring clean and highly efficient development of thermal power. Upholding the
principle of low-carbon, clean and efficient development, China actively promotes
green thermal power generation. It encourages coal- electricity integration, and
steadily pushes forward the construction of large coal-fired power bases. It vigorously
applies advanced technologies, including supercritical and ultra- supercritical power
generation, in the construction of clean, highly efficient and environment-friendly
coal-fired power generating sets and energy-saving power plants. It speeds up the
elimination of small thermal power units marked by high energy consumption and
heavy pollution. In order to strictly control pollutant emissions from coal-fired power
plants, newly built coal-fired power generating sets must install dust-removing,
desulfurization and denitration facilities, and the existing plants are asked to speed up
their dust removal, desulfurization and denitration upgrading. It encourages the
construction of thermoelectricity co- generation units in large- and medium-sized
cities and industrial parks where thermal loads are relatively concentrated. It
constructs combined-cycle gas-steam peak-load units and promotes
heat-electricity-cooling co-generation with natural gas as fuel in accordance with local

conditions. It has imposed strict restrictions on the construction of new coal-fired
power generating sets in the Bohai Rim, Yangtze River Delta and Pearl River Delta
areas, except those built for the purpose of large units and restricting
small onesand co-generation. Intensified efforts have been made to spread
water-saving technology in thermal power plants. It develops the integrated
gasification combined cycle power generation, and demonstration projects of carbon
capture, utilization and storage.
-- Intensified efforts in prospecting and exploitation of conventional oil and gas
resources. China will continue to implement the policy of
of oil and gas,the target of stabilization in the east, acceleration in the west,
development in the south and exploitation in the offshore areas. The country will
steadily increase crude oil output and reserves by means of stepping up efforts in
prospecting for and exploiting oil in major oil-production areas, including those in the
Tarim and Ordos basins, and improving renovation for stable yields and increasing
the recovery ratio in old oilfields. In its efforts to speed up the development of natural
gas, the country will enhance the productivity and increase the output of natural gas in
major gas fields in the central and western regions, push forward the development of
offshore oil-gas fields, and gradually increase the proportion of natural gas in the
primary energy structure. It will optimize the distribution of the refining industry,
construct some large refining and chemical bases, and establish three major refining
cluster areas in the Bohai Rim, Yangtze River Delta and Pearl River Delta, so as to
realize upstream and downstream integration, refining and chemicals integration, and
refining-reserve integrated management.
-- Actively promoting the development and utilization of non- conventional oil and gas
resources. China's efforts to expedite the development of non- conventional oil and gas
resources are an important way to enhance its security of energy supply. It will speed
up the exploration and exploitation of coal-bed gas, increase the proven geological
reserves, and push forward the construction of industrial bases in the Qinshui Basin
and eastern edge of the Ordos Basin. In order to accelerate the development of shale
gas, the country will select a group of prospective areas and favorable exploration
target areas, intensify efforts to solve difficulties in core technology, set up a new
development mechanism, implement incentive polices for the shale gas industry, and
improve supporting facilities. China aims to increase its annual output of shale gas to
6.5 billion cu m by 2015, and lay a solid foundation for the future rapid development
of shale gas. In addition, it will strengthen the development of shale oil, oil sand and
other non-conventional oil and gas resources.
-- Enhancing the construction of energy storage and transportation facilities. When
making a plan for the construction of energy output channels, China takes many
factors into consideration, including target market, industrial restructuring,

construction of plants that rely on coal, wind, nuclear energy, natural gas and pumped
storage for electricity generation, imported energy resources, and bearing capacity of
local water resources and the ecological environment. It will increase the
cross- regional coal transport capacity through technological renovation of existing
railway lines, construction of new coal-transport channels, and building of supporting
piers. It will expand the scope of power transmission from western to eastern China
and from northern to southern China, strengthen the building of regional power grids,
improve the technology of ultra-high voltage transmission, and enhance the grids'
ability to optimize resource allocation. The country will expedite the construction of
networks of crude oil, product oil and natural gas pipelines, increase the proportion of
oil and gas transported by pipelines, improve regional networks of oil and gas
pipelines, and build large coastal loading and unloading stations. It will strictly
enforce laws and regulations concerning the protection of oil and gas pipelines to
ensure their safe operation. China will balance its resource reserves, both state
reserves and commercial reserves, enhance its ability to extend emergency support,
and improve the reserve system of crude oil, product oil, natural gas and coal. Efforts
will also be made to enhance the peak-shaving ability of natural gas, and build and
improve coal peak-shaving reserves.
VI. Improving Universal Energy Service
The fundamental objective of China's energy development is to guarantee and
improve the livelihood of its people. China makes great efforts to equalize access to
basic energy service for its entire population. It balances the energy development in
both urban and rural areas, enhances energy infrastructure and improves the energy
conditions in the vast rural and border areas and areas inhabited by ethnic minorities
in compact communities, so that energy development can benefit all Chinese people.
-- Providing universal access to electric power. In order to provide the people who
have no access to electricity yet in the Tibet, Xinjiang Uygur and Inner Mongolia
autonomous regions, as well as Qinghai, Yunnan and Sichuan provinces with electric
power, the Chinese government increases investment to expand the coverage of the
power grids and develop distributed renewable energy sources. In areas without grid
connection, China establishes and completes the universal electric service system. By
2015, most of the people who at present don't have electricity in China will gain
access to it.
-- Boosting energy development in rural areas. Energy development in rural areas is
of great significance for the betterment of farmers' living standards and modern
agricultural progress. Adhering to the principle of comprehensive and effective
utilization of diverse energy sources according to local conditions, China increases
financial input in energy infrastructure in rural areas and ameliorates rural energy

management and services. It upgrades rural power grids to improve electric power
conditions for rural life and production, and hence establish new-type rural power
grids, which, backed by advanced technology and management, are safe, reliable,
efficient and eco-friendly. The Chinese government will put great efforts into
developing renewable energy sources in rural areas, and launch various green energy
demonstration projects in accordance with local conditions. By 2015, a total of 200
green-energy counties and 1,000 villages using solar energy will be set up as
examples. China rebuilds old hydropower stations in rural areas to increase their
capacity and efficiency. It accelerates the electrification of hydropower- based rural
areas, and builds more small-sized hydropower stations, so as to get rid of the use of
wood as fuel in some rural areas. In addition, the Chinese government promotes the
use of solar water heaters around the country.
-- Enhancing energy development in border regions. Since 1978, when China
launched its reform and opening-up drive, great progress has been witnessed in both
the society and economy of the country's border regions. However, the energy
conditions in these areas, despite great improvement that has been made, still lag far
behind the eastern and central regions. The Chinese government will appropriate
financial funds to improve energy infrastructure and build energy projects that have a
direct bearing on the people's livelihood in the border regions, especially in Tibet and
Xinjiang, to support leapfrogging development there. It will accelerate the electrical
grid construction in Tibet and Xinjiang as well as the Tibetan-inhabited areas in
Qinghai, Sichuan, Yunnan and Gansu provinces, enlarge the coverage of the
distribution grid, and strengthen the reliability of power supply. The government will
draw up and implement the
funding to Tibet for its electric power development - the direct investment during the
12th Five-Year Plan period to exceed 900 million yuan. The energy projects to
improve the people' s livelihood, such as the of Southern Xinjiang
and Northern Xinjiang,will be sped up. The state will press on
with the project to connect Xinjiang power grid to the northwest China grid so as to
form an energy channel as soon as possible to get Xinjiang' s redundant electric power
transmitted to other parts of China to generate more funds for the development of
Xinjiang. The government will build a group of solar power and solar-wind hybrid
power plants in the farming and herding areas far from towns to improve the quality
of life of the farmers and herdsmen there.
-- Improving energy conditions in urban areas. The Chinese government will upgrade
the urban grids to raise the quality and reliability of power supply in urban areas. It
guarantees urban power supply, especially household electricity consumption. The
state accelerates natural gas development. Natural gas supply networks will be built or
improved in cities so that more urban residents will gain access to natural gas. In

northern cities, where the district heating system is applied, the government will
develop co- generation units based on local conditions to improve the heating quality.
VII. Accelerating Progress of Energy Technology
China's energy technology has developed rapidly since the country launched the
reform and opening-up program in late 1978, and has played an increasingly
significant role in energy conservation, emission reduction, energy structure
optimization and energy security. However, China still lags behind the developed
countries in this field, particularly marked by its flimsy basis for independent
innovation, backwardness in core technology, and dependence on imports for some
key technologies and equipment. Therefore, the Chinese government will attach more
importance to technological innovation. It will establish and complete at full speed an
energy technology innovation system that suits China's reality, and combines efforts
of enterprises, colleges and research institutes. The National Energy Technology
Program During the 12th Five-Year Plan Period, issued in 2011 as China's first
scheme to improve its energy technology, has outlined the four key aspects of China's
energy technology, namely, exploration and exploitation; processing and conversion;
power generation, transmission and distribution; and new energy. The program also
contains an overall plan to build a national energy technology innovation system that
integrates research into key technology, manufacturing of key equipment, key
demonstration projects and a technological innovation platform.
-- Reinforcing energy technology R&D. China will launch a series of strategic and
advanced research projects on frontier technologies in basic sciences like geology,
materials, environmental studies, power and energy, and information and control, with
the aim of making breakthroughs in basic energy sciences. The Chinese government
encourages major enterprises and research institutes in the industry to carry out
studies in advanced and adaptive technologies, and put them into practical use, like
high-efficiency and intensive coal mining technology, exploration and development
technology of unconventional oil and gas resources, high-efficiency clean technology,
offshore wind power technology, solar thermal power technology, advanced oil and
gas storage and transportation technology, and high-capacity, high-efficiency and
long-distance power transmission technology. China will press on with the two
national high-tech programs -- oil-gas fields and coal-bed gas development,
and advanced pressurized-water reactor and high temperature gas-cooled
reactor nuclear power stations-- to facilitate key technological innovations, and
enhance the innovation abilities, including innovation,
innovation
-- Promoting progress of energy equipment technology. Based on major technological
equipment projects, China strives to make technological breakthroughs, improve

supporting facilities, set up and enforce technical standards for energy equipment,
establish a complete testing and certification system, and raise its ability for energy
equipment design, manufacturing and system integration. China will further enhance
the supporting policy system, boost the technological advance of key equipment, such
as high-capacity, high-parameter and ultra- supercritical generating units, gas turbines,
third-generation nuclear power, renewable energy generating units, exploration and
development of unconventional oil and gas resources, and spreading the application of
state-of-the-art equipment. The government will also strengthen planning and
guidance for the energy equipment manufacturing industry to prevent redundant
construction.
-- Launching major technological demonstration projects. Centering on the
transformation of energy development mode and upgrading of the energy industry, the
Chinese government will give more support in funding, technology and policy to
launch major demonstration projects in such fields as large pressurized-water reactors,
high-temperature gas-cooled reactors, development and utilization of coal-bed gas,
exploration and development of shale gas, and deep processing of coal, energy storage
and smart power grids, thus promoting the application of technological and scientific
research achievements in production.
-- Improving the innovation system of energy technology. The Chinese government
will continue to support large enterprises, R&D institutes, colleges and universities to
set up national innovation platforms that can conduct independent R&D and make
breakthroughs in core technologies, especially technologies for coal exploration,
development and utilization of coal-bed gas, exploration and development of shale
gas, marine engineering equipment, high- capacity high-efficiency and low-pollution
power generating equipment, smart grids and advanced nuclear reactors. It will
improve the policy system supporting technological innovation platforms. The
government will give full play to the role of enterprises in innovation, and encourage
them to spread and apply innovative technologies. It will guide R&D institutes and
institutions of higher learning to serve enterprises in the field of innovation, and better
integrate the efforts of enterprises with that of the research institutes and institutions
of higher learning. The state will set up an evaluation and reward mechanism for
technological development, and establish and improve a training system and an
incentive mechanism for innovations.
VIII. Deepening Institutional Reform in the Energy Sector
Reform constitutes a strong dynamic force in accelerating the transformation of the
development mode. China will resolutely implement reform in the energy sector,
strengthen top design and overall planning, accelerate the pace of building a system
and mechanism for the scientific development of the energy industry, ameliorate the

environment for energy development, bring about a revolution in energy production
and utilization, and safeguard China's energy security.
-- Accelerating building of legal regime for the energy sector. China will improve its
energy-related legal regime to regulate the energy market, protect the ecological
environment and guarantee energy security. China attaches great importance to
energy legislation and will press on with the improvement of the legal system related
to the energy sector. Now, work has been going on an energy law, as well as a series
of administrative regulations on oil reserves, protection of submarine oil and natural
gas pipelines, and nuclear power station management. It has amended the Coal
Industry Law, the Electric Power Law and other laws, and has been making efforts to
promote the enactment of laws concerning oil, natural gas and nuclear energy.

-- Improving the market mechanism. China is actively promoting market-oriented
reform in the energy sector by giving full play to the fundamental role of the market
in the allocation of resources. All projects listed in the national energy program,
unless forbidden by laws or regulations, are open to private capital. The Chinese
government encourages private capital to participate in the exploration and
development of energy resources, oil and natural gas pipeline network construction
and the electric power industry, encourages the involvement of private capital in coal
processing and oil refining, and supports the entry of private capital into the new
energy and renewable energy fields. The Chinese government will intensify and
regulate the administration of coal exploration and development rights, gradually
eliminate the double-track price system for contracted coal supply and market coal
supply, and create a mechanism to balance the development of coal and coal-bed gas.
The government will press on with institutional reform in the power sector and
steadily carry out trials to separate power transmission from power distribution.
Proactive efforts will be made in the pricing mechanism of electricity to gradually let
the market decide the prices of electricity generated and marketed, while the prices of
transmission and distribution are to be decided by the government. The state will
regulate the prices of coal for electricity generation and prices of electricity marketed,
and explore ways to set up a renewable energy trading mechanism. It has successfully
implemented the price, tax and fee reform of refined oil products and guides the
public's rational energy consumption through tax means. It will continuously
rationalize the refined oil price and form a pricing mechanism, and start the
experimental reform of natural gas pricing mechanism. It will improve the market
system for energy and develop more forms of trade, including spot trade, long-term
contracts and futures trade.
-- Tightening administration of the energy sector. In order to increase the efficiency of
energy development and utilization, promote the scientific development of the energy
sector and safeguard the country's energy security, China is determined to strengthen

administration in the energy sector. It takes strategic planning and macro-control for
energy development, and carries out industry regulation by making use of plans,
policies and standards. The Chinese government will reduce its intervention in
specific matters and simplify administrative examination and approval, while
intensify supervision over monopoly and unfair competition by establishing an open,
fair, scientific and effective supervision mechanism. It will strengthen statistics
collection and forecasts related to the energy sector, and establish a comprehensive
system covering statistics, monitoring, forecasting and early warning in this regard.
IX. Strengthening International Cooperation in Energy
China's development cannot be achieved without cooperation with the rest of the
world, and the prosperity of the world has need of China as well. With accelerating
economic globalization, China has forged increasingly closer ties with the rest of the
world in the field of energy. China's development of energy has not only satisfied its
own needs for economic and social progress, but also made great contributions to
world energy security and global market stability.
China is an active and responsible participant in international energy cooperation, and
it has established bilateral dialogue and cooperative mechanisms in the field of energy
with the US, the EU, Japan, Russia, Kazakhstan, Turkmenistan, Uzbekistan, Brazil,
Argentina, Venezuela and many other countries and regions, and has strengthened
dialogues, exchanges and cooperation with these countries regarding oil, natural gas,
coal, electric power, renewable energy, technology, equipment and energy policy.
China is also a member of or important participant in many multilateral organizations
and mechanisms, including the energy working group of the Asia-Pacific Economic
Cooperation Organization, Group of 20, Shanghai Cooperation Organization, World
Energy Council and International Energy Forum. It is an observer of the Energy
Charter, and maintains close relations with such international organizations as the
World Energy Agency and the Organization of Petroleum-Exporting Countries. In
international energy cooperation, China assumes a wide range of obligations and
plays an active and constructive role.
China upholds a policy of opening to the rest of the world in the field of energy. To
provide a favorable environment for foreign investment and protect the legitimate
rights and interests of investors, it has promulgated a series of laws and regulations in
succession, like the Law on Sino-foreign Equity Joint Ventures, Law on Sino- foreign
Cooperative Joint Ventures and Law on Foreign Investment Enterprises, and framed
such policy documents as the Catalogue of Industries for Guiding Foreign Investment
and the Catalogue of Advantageous Industries for Foreign Investment in the Central
and Western Regions. The Chinese government encourages foreign investment to
engage in the exploration and development of oil, natural gas and unconventional oil

and gas resources, such as shale gas and coal-bed gas, by way of cooperation; invites
foreign investment in the building of new-energy power stations, hydroelectric power
stations, clean-combustion power stations, and nuclear power stations as long as the
Chinese partners have control; and supports multinational energy corporations to set
up R&D centers in China.
Following the principle of equality, mutual benefits and reciprocity, Chinese energy
enterprises are actively involved in international energy cooperation, participating in
overseas energy infrastructure projects and expanding cooperation in energy
engineering and services. Ninety percent of Chinese enterprise-invested energy
resources abroad are sold locally, thus increasing and diversifying supplies in the
global energy market. When investing in foreign countries, Chinese energy
enterprises abide by local laws and regulations, and respect the religious beliefs and
customs of the local people. They actively make contributions to local economic and
social development while achieving self- growth.
For a fairly long time to come, international energy trade will remain the major way
by which China utilizes foreign energy sources. China will improve policies for fair
trade and optimize the trade structure, and conduct energy imports and exports in
accordance with the WTO rules. It will diversify the modes of trade and
comprehensively use such methods as futures trade, long-term agreements, entrepot
and barter trade. China will actively participate in global energy management. It will
intensify exchanges and cooperation with other countries, addressing together the
impact of the international monetary system, excessive speculation and energy market
monopoly, thereby maintaining the stability of international energy market and energy
price.
Energy is of vital importance to economic development and people's well-being. In
order to reduce conflicts and inequality brought about over access to energy resources,
achieve a stable growth of the world economy and make the economic globalization
lead to a balanced, universally beneficial and win-win development, the international
community should foster a new energy security concept featuring mutually beneficial
cooperation, diversified development and common energy security through
coordination. To jointly ensure global energy security, the Chinese government calls
for international efforts in the following three aspects:
-- Strengthening dialogues and exchanges. Strengthening dialogue and
communication among energy exporting, consuming and transiting countries is the
foundation of international energy cooperation. The international community should
further cement its bilateral and multilateral ties; increase dialogues and exchanges in
the fields of efficient use of energy, energy conservation, environmental protection,
energy management and energy policy; promote monitoring and emergency response

mechanisms for the global energy market; and deepen the cooperation in the fields of
information exchanges, personnel training and coordination.
-- Carrying out effective energy cooperation. Upholding the principles of reciprocity,
mutual benefit and common development, the various countries should ensure
mutually beneficial cooperation in international energy resources exploration, enrich
and improve cooperative mechanisms and methods, increase the international energy
supply, and diversify supply channels. They should work together to stabilize the
prices of bulk energy commodities, secure the energy needs of various countries, and
maintain the normal order of the energy market. For the sake of sustainable
development, the developed countries should actively provide and transfer clean and
highly efficient energy technology to developing and underdeveloped countries and
together promote green development globally on the condition that intellectual
property rights are protected. The international community should strive hand in hand
to help the least-developed countries to eliminate energy poverty, increase energy
services and promote sustainable development.
-- Working together to maintain energy security. A fair and rational international
energy management mechanism is a prerequisite for a stable global energy market.
The international community should work collaboratively to maintain stability in oil
producing and exporting countries, especially those in the Middle East, to ensure the
security of international energy transport routes and avoid geopolitical conflicts that
affect the world's energy supply. The various countries involved should settle major
international energy disputes through dialogue and consultation. Energy issues should
not be politicized, and the use of force and armed confrontation should be avoided.
Conclusion
Energy is the vital material base for China to modernize and build a moderately
prosperous society. The Chinese government will strive to address the energy problem
properly by following the sustainable road of energy development.
China will still be in a stage featuring accelerated industrialization and urbanization
for a long time to come, facing the challenging tasks of developing its economy and
improving its people's livelihood. Its energy needs will go on to increase in the future.
As a large developing country with a population of over 1.3 billion, China must rely
on itself to increase the energy supply steadily to satisfy such demands.
Energy security is a global issue. Few countries can secure their energy supply
without international cooperation. The achievements China has made in energy
development are inseparable from its friendly cooperation with other countries. Its
future development in the energy sector will need more understanding and support
from the international community. China, with a population of more than one billion,

is exploring and practicing a new way in the history of energy development to ensure
its sustainable energy development. China did not, does not and will not pose any
threat to the world's energy security. Abiding by the principle of equality, reciprocity
and mutual benefit, it will further strengthen its cooperation with other energy
producing and consuming countries as well as international energy organizations, and
work together with them to promote a sustainable energy development around the
world. It will strive to maintain stability of the international energy market and energy
prices, secure the international energy transportation routes, and make due
contributions to safeguarding international energy security and addressing global
climate change.