Two departments: Strive to reach a total installed capacity of about 15 million kilowatts of photothermal power generation by 2030, the cost of electricity is basically the same as that of coal power

The Zhitong Finance App learned that on December 23, the National Development and Reform Commission and the National Energy Administration issued “Certain Opinions on Promoting the Large-scale Development of Photothermal Power Generation”, which proposed actively promoting the construction of photothermal power generation projects, continuously expanding new scenarios for the development and utilization of photothermal power generation, and ensuring large-scale development of photothermal power generation. By 2030, the total installed capacity of photothermal power generation will reach about 15 million kilowatts, and the cost of electricity is basically the same as that of coal power; the technology has achieved international leadership and is completely autonomous and controllable, and the industry has achieved independent marketization and industrialization, becoming a new industry with an international competitive advantage in the field of new energy.

The original text is as follows:

The National Development and Reform Commission and the National Energy Administration on promoting

Some opinions on large-scale development of photothermal power generation

Development and Reform Energy [2025] No. 1645

Hebei Province, Inner Mongolia Autonomous Region, Jilin Province, Sichuan Province, Tibet Autonomous Region, Gansu Province, Qinghai Province, Ningxia Hui Autonomous Region, Xinjiang Uygur Autonomous Region Development and Reform Commission, Energy Administration, National Energy Administration, relevant power enterprises:

Photothermal power generation has the dual functions of peak-shifting power supply and long-term energy storage. It can use new energy to regulate and support new energy, can provide long-term peak shifting capacity and rotational inertia for power systems, and has the potential to be used as a peak shifting and basic power source in some regions. It is an effective means to achieve a safe and reliable replacement of traditional energy with new energy sources, and is an effective support for speeding up the construction of new power systems. At the same time, the photothermal power generation industry has a long chain, and large-scale development and utilization will become a new growth point for China's new energy industry. In order to better meet the high-quality development needs of new energy sources and help accelerate the construction of new power systems, the following opinions are put forward on promoting large-scale development of photothermal power generation.

I. General objectives

Actively promote the construction of photothermal power generation projects, continuously expand new scenarios for the development and utilization of photothermal power generation, and ensure large-scale development of photothermal power generation. By 2030, the total installed capacity of photothermal power generation will reach about 15 million kilowatts, and the cost of electricity is basically the same as that of coal power; the technology has achieved international leadership and is completely autonomous and controllable, and the industry has achieved independent marketization and industrialization, becoming a new industry with an international competitive advantage in the field of new energy.

II. Strengthen planning guidance

(1) Conduct an in-depth survey of photothermal power generation resources. Establish a scientific resource survey content method system, integrate basic data such as solar observations, land resources, topography and water resources, evaluate the level of solar energy, implement limiting factors for site construction, connect with territorial spatial planning, and form a comprehensive and systematic database of photothermal power generation resources. Establish a dynamic management mechanism for the survey results database, update basic information in a timely manner, and ensure the timeliness and practicality of the survey results. For key provinces and regions, clarify areas with superior resources and development potential, guarantee factors and site protection in advance, and lay a good foundation for project construction. Strengthen the sharing and application of survey results to provide a scientific basis for regional photothermal development.

(2) Complete the planning and layout of photothermal power generation. Adapt to the large-scale development situation and needs of photothermal power generation, clarify the positioning and role of photothermal power generation in new power systems, improve the photothermal development planning research technology system, and scientifically carry out research on the planning and layout of photothermal power generation on the basis of resource survey work. Provinces and regions are encouraged to fully consider the role of photothermal power generation in regional power balance and regulation of supporting power sources, taking into account national energy development strategies, ecological and environmental protection requirements, regional resource endowments, regional energy development needs, power system characteristics and electric thermal coupling requirements, etc., prepare photothermal power generation development plans according to local conditions, propose key photothermal power generation project layouts in stages and regions around development models and implementation paths, and make good connections with other development plans. Support the planning and construction of a certain scale of photothermal power generation projects every year in provinces and regions where technology and economy are feasible and demand is urgent, and ensure corresponding policies.

(3) Do a good job in the collaborative layout of photothermal power generation and industrial development. Make full use of photothermal power generation support and regulation capabilities, carry out research on the collaborative layout of photothermal power generation and industries by industry, and propose collaborative layout plans for photothermal power generation and related industries. Encourage new energy integration projects using photothermal power generation to support and regulate power sources with new high-capacity industries such as mineral resource development and smelting, computing power centers, power battery manufacturing, salt lake lithium extraction, etc., and explore new forms of new energy consumption nearby through computational power collaboration, direct green power connection, and integrated source network load storage to achieve efficient use of renewable energy, and promote the construction layout of high-proportion renewable energy energy supply industrial parks.

3. Actively cultivate the photothermal power generation application market

(4) In conjunction with the construction of large-scale energy bases, rationally allocate the scale of photothermal power generation as needed. Support new energy bases with technical and economic conditions, such as the “Shagowang” large-scale export new energy base, water scenery delivery base, and various private use bases, and carry out the construction of photothermal power plant projects. Scientifically determine the installed scale of photothermal power generation in the base, optimize and improve the base's regulation capacity, increase the proportion of the base's green electricity, reduce the base's average electricity carbon emissions, enhance the stable transmission of new energy, and actively explore the role of technologically and economically viable photothermal power plants as supporting and regulating power sources in large bases.

(5) Build a number of supported and regulated new energy power plants, mainly photothermal power generation. Combining internal and external conditions such as regional resource endowments, construction factors, energy demand and consumption capacity, according to new power system construction requirements, the goal is to effectively fill the regional power gap, relieve power guarantee pressure, and provide green support and regulation capabilities, implement the collaborative concept of electrothermal coupling and source networks, and build a number of large-scale photothermal power plants or integrated scheduling and operation projects for photothermal, wind power, and photovoltaic power generation for local consumption to enhance the peak shifting capacity and stability of regional power grids and enhance the safety and flexibility of power supply.

(6) Explore the construction of an integrated source network load storage system based on photothermal power generation. Actively promote industries with green traceability requirements, combine industrial adjustment and transfer needs, build integrated source network load storage systems based on photothermal power plants in areas rich in photothermal resources, combined with other new energy power sources and new energy storage facilities, and further explore covering the electricity, steam and heat needs of nearby regions in regions where conditions are available. Strengthen the management and operation of integrated source network load storage systems, and establish and improve operation mechanisms and safety guarantee systems. Encourage the exploration and construction of weakly connected or independent source grid load storage integrated systems supported by photothermal power generation at the end of power grids where conditions are available, and raise the level of power supply guarantee.

4. Give full play to the supporting and regulating role of photothermal power generation in new power systems

(7) Give full play to the supporting role of photothermal power generation in new power systems. Combining the green support capacity of photothermal power generation with “thermoelectric” conversion and conventional AC synchronous generators, it gives full play to the role of photothermal power generation in frequency modulation, voltage regulation, black start and inertia response, further optimizes the operation mode of power plants, explores the potential of photothermal power generation as a green and low-carbon basic guaranteed power source, promotes the transformation of photothermal system insurance and supply value, and increases the proportion of green and reliable support capacity of new power systems.

(8) Enhance the regulatory effect of photothermal power generation on new power systems. Give full play to the functions of a large-scale, low-cost, and high-safety heat storage system for photothermal power generation, use the wide load adjustment range and rapid load change capacity of photothermal power generation, use deep peak shifting capabilities, and improve power system regulation capabilities. Encourage the configuration or reservation of electric heating systems, and support photothermal power plants equipped with electric heating systems to perform the function of long-term energy storage power plants through the electricity market and obtain corresponding market benefits.

(9) Accelerate the construction of projects under construction and improve the scheduling response capacity of projects in operation. Fully absorb the experience in design, construction and operation of commissioned projects, actively apply new technology, new equipment and new processes to reduce costs and increase efficiency, and accelerate the construction of projects under construction on the basis of ensuring safety and quality. Provincial energy authorities should strengthen supervision of registered and unstarted projects and speed up the commencement of construction. Actively promote projects in operation to explore profit models in the electricity market, continuously improve the ability to respond to scheduling and participate in the auxiliary services market, and take more measures to improve the economic efficiency of power plants.

5. Accelerate the promotion of photothermal power generation technology and industrial innovation

(10) Gradually promote the promotion of high-parameter, high-capacity technology. Actively support technological innovation and engineering application of high-parameter high-capacity photothermal power plants, steadily advance the construction of 300,000 kilowatt grade photothermal power plants in regions with appropriate resource conditions and high demand for electricity load and heat load, strengthen project monitoring and evaluation, accumulate basic data for subsequent promotion of 600,000 kilowatt grade photothermal power plant construction, gradually enhance the technical advancement and system support and regulation role of photothermal power plants, and effectively improve the safe and reliable replacement capacity of new energy sources.

(11) Accelerate breakthroughs in key technologies and promote cost reduction and efficiency in the photothermal industry. Accelerate research and development of key technologies, materials and equipment, and support leading photothermal power generation enterprises and scientific research institutions to form R&D consortia, focusing on the fields of efficient concentrated light absorption and heat transfer, large-scale long-term high-temperature heat storage, efficient energy conversion, highly flexible photothermal units, intelligent control, etc., to develop new large-opening slot collectors, high-precision heliostats, low-cost long-life heat storage materials, and key equipment for translational localization of China's photothermal core technology and comprehensively enhance the level of localization of key equipment in China. Strengthen basic applied research in the field of photothermal energy, break through scientific theories such as high-parameter “photothermal-electricity” conversion and high-efficiency heat storage, and encourage disruptive technological innovation.

(12) Establish and improve collaborative development mechanisms to promote high-quality development of the photothermal industry. Explore and develop research and application of combined photothermal and coal-electricity carbon reduction technology, and encourage the construction of photothermal and coal-electricity coupling technology projects in regions with suitable resources and construction conditions. Scientifically plan the layout for the collaborative development of the photothermal industry chain, actively build a complete industrial chain, give full play to the driving role of the modern industrial chain, promote in-depth upstream and downstream cooperation in the photothermal industry chain, and form an industrial pattern of complementary advantages and collaborative development. Accelerate the strengthening and repair of the photothermal industry chain, promote the deep integration of capital and industrial chains, build photothermal industrial parks or industrial clusters in key regions, and promote cost reduction and efficiency in the photothermal industry through industrial agglomeration and collaborative development. Accelerate the construction of a standardization system for the photothermal industry, raise the level of standardization of the entire process of design, manufacturing, construction, operation and maintenance of the photothermal industry, and actively participate in the formulation of international standards.

(13) Actively promote the industry to “go global” and raise the level of international cooperation for photothermal power generation. Make full use of bilateral and multilateral energy cooperation mechanisms, give full play to the technological innovation and equipment advantages of China's photothermal industry, strengthen mutual recognition with relevant national standards, and develop diversified photothermal power generation products and technical services that meet local resource endowments and market needs. Increase external publicity and encourage domestic enterprises to combine their own development strategies with local enterprises to develop various forms of cooperation such as technology and joint ventures to explore the construction of “Belt and Road” flagship projects for photothermal power generation. At the same time, pay attention to preventing various risks and promoting long-term sustainability of cooperative projects.

6. Improving policy guarantee mechanisms

(14) Strengthen policy support. Support eligible photothermal power generation projects to revitalize existing assets and promote a virtuous cycle of investment and financing by issuing real estate investment trusts (REITs) and asset-backed securities in the infrastructure sector.

(15) Promote fair participation of photothermal power generation in the electricity market. Implement the requirements for market-based reform of new energy feed-in tariffs, encourage relevant provinces to formulate implementation rules for new energy sources to support the development of photothermal power generation to participate in the electricity market, and introduce sustainable price settlement mechanisms that can not only adapt to market competition but also guarantee stable operation according to local conditions. Eligible photothermal power generation capacity can be compensated according to reliable capacity, and relevant provinces are encouraged to explore methods for evaluating the reliable capacity of photothermal power plants, and wait until the country establishes a reliable capacity compensation mechanism and then connect it with relevant national requirements. Encourage photothermal power generation projects to participate in annual medium- and long-term electricity transactions within the province and across provinces, and support photothermal power generation to actively participate in various auxiliary service markets and obtain benefits.

(16) Establish and improve an incentive mechanism for photothermal power generation. Systematically evaluate the construction and operation experience of the first batch of photothermal demonstration projects, establish an industry-wide information sharing mechanism, and promote the collaborative development of the photothermal power generation industry. Systematically evaluate the operating status, peak shaving effect, and system support capacity of the new energy base and source network load storage supporting photothermal power generation, and establish a project incentive mechanism based on the evaluation results.

(17) Increase the green benefits of photothermal power plants. Coordinate and make good use of the national greenhouse gas voluntary emission reduction trading market, green certificate market, and new energy sustainable development price settlement mechanism, etc., and make good support policy connections. Photothermal power generation projects can independently choose green revenue sources. Those that wish to participate in green certificate transactions cannot apply for national certification voluntary emission reduction (CCER) and are not included in the new energy sustainable development price settlement mechanism; those that intend to apply for CCER will cancel the untraded green certificate corresponding to the emission reduction after completing emission reduction verification and registration; projects incorporating the sustainable development price settlement mechanism according to national regulations will not receive green certificate benefits repeatedly.

(18) Strengthen land and other factor guarantees and policy implementation guarantees. Coordinate the development layout of new energy sources. In various projects such as large scenic bases, integrated source networks and storage, high-ratio renewable energy supply industrial parks, and various projects such as independent energy supply systems including photothermal power generation, photothermal and coal-electricity coupling pilot projects, cogeneration, etc., the photothermal and thermal sites are rationally arranged and reserved, and land for the photothermal collector area can be obtained through leasing.

Relevant provincial energy authorities should actively promote the development of photothermal power generation, urgently organize and carry out provincial photothermal power generation resource surveys, layout plans, etc., promote the implementation of various guarantee measures such as electricity price mechanisms and auxiliary service rules related to photothermal power generation, strengthen overall coordination of project construction, and ensure the smooth implementation of the project. Agencies dispatched by the National Energy Administration carry out normalized supervision of the implementation of policies and measures for large-scale development of photothermal power generation, and report on important matters in a timely manner.

National Development and Reform Commission

National Energy Administration

December 15, 2025

This article was selected from “National Development and Reform Commission Official Website”, Zhitong Finance Editor: Xu Wenqiang.