To thoroughly implement the decisions and arrangements of the Party Central Committee and the State Council, to put into practice the new energy security strategy at an even higher standard, and to solidly carry out energy-related work for 2025—thereby contributing to the sustained recovery and improvement of China’s economy through high-quality energy development and high-level energy security—the National Energy Administration has drafted the “Guiding Opinions on Energy Work for 2025” (hereinafter referred to as the “Guiding Opinions”). We will now provide an interpretation of the “Guiding Opinions” from four key aspects.

  I. Background of Issuance

  Formulating annual work guidelines is a task explicitly stipulated in the “Administrative Measures for Energy Planning,” and it also serves as an important initiative for the energy sector to unify thinking, build synergy, and promote high-quality energy development. In 2024, the energy sector thoroughly implemented the decisions and deployments of the Party Central Committee and the State Council, taking the new energy security strategy of “Four Revolutions and One Cooperation” as the fundamental guiding principle. It coordinated and advanced both high-quality energy development and high-level energy security, further enhancing its capacity to ensure energy security. Among them, raw coal production by industrial enterprises above designated size reached a record high; crude oil production remained stable at over 200 million tons for three consecutive years; natural gas production by industrial enterprises above designated size increased by more than 10 billion cubic meters for eight consecutive years. Meanwhile, the structure of energy consumption continued to optimize, and the level of green and low-carbon development further improved.

  Currently, China’s energy development also faces certain risks and challenges. The international situation remains complex and severe; the reliance on imported oil and gas remains relatively high; the rapid growth of new energy sources is placing ever-higher demands on system integration and consumption; breakthroughs in key energy technologies and equipment still need to be strengthened; and reforms of the energy-related systems and mechanisms must continue to be deepened. The “Guiding Opinions” put forward targeted policy measures that will help localities and relevant entities further accelerate the planning and construction of a new energy system, work together to successfully conclude the 14th Five-Year Plan, and, through high-quality energy development and high-level energy security, bolster the sustained recovery and improvement of China’s economy and meet the growing energy needs of the people for a better life.

  II. Main Considerations

  The Guiding Opinions adhere to the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, fully implement the spirit of the 20th National Congress of the Communist Party of China and the Second and Third Plenary Sessions of the 20th Central Committee, uphold the general principle of seeking progress while maintaining stability, and put forward a new energy security strategy that calls for even higher standards. The Opinions emphasize adhering to bottom-line thinking, continuously enhancing energy security safeguards, fully leveraging the role of fossil fuels as a safety net, strengthening the safe, reliable, and orderly substitution of fossil fuels with non-fossil energy sources, and firmly safeguarding the bottom line of energy security. They also stress pursuing green and low-carbon development, continuously optimizing and adjusting the energy structure, synergistically promoting carbon reduction, pollution control, greening, and growth, and increasing the share of non-fossil energy consumption. Furthermore, the Opinions underscore the importance of deepening reform, continuously stimulating vitality and momentum in energy development, placing greater emphasis on deepening reforms of the energy system and mechanisms, and constantly transforming institutional advantages into an inexhaustible driving force for energy development. Lastly, the Opinions highlight the need to remain innovation-driven, continuously fostering the development of new energy technologies, new industries, and new models, accelerating breakthroughs in key core technologies and equipment for energy, developing energy-related productive forces suited to local conditions, and advancing the construction of a modern energy industrial system.

  III. Work Objectives

  The “Guiding Opinions” set forth the main objectives for energy work in 2025: In terms of supply assurance capability, The nation’s total energy production has been steadily increasing. Coal production remains stable and is being boosted, crude oil output has stayed above 200 million tons, and natural gas production continues to grow at a relatively rapid pace, with the scale of oil and gas reserves steadily expanding. The country’s total installed power generation capacity has reached over 3.6 billion kilowatts, with new renewable energy capacity added exceeding 200 million kilowatts. Power generation totaled approximately 10.6 trillion kilowatt-hours, and inter-provincial and inter-regional transmission capacity continues to improve. In terms of green and low-carbon transformation, The share of non-fossil fuel power generation capacity has risen to around 60%, and the proportion of non-fossil fuels in total energy consumption has increased to about 20%. New progress has been made in replacing fossil fuels with renewable energy in key sectors such as industry, transportation, and buildings. Policy measures for the integration and regulation of new energy sources have been further refined, and policy mechanisms for green and low-carbon development have been further strengthened. In terms of development quality and efficiency, The average coal consumption per unit of electricity generated by thermal power units remains at a reasonable level. The utilization rates of wind and photovoltaic power generation stay at appropriate levels, and the comprehensive benefits of photovoltaic sand control projects have become even more prominent. Large-scale coal mines have largely achieved intelligent operations. A nationwide unified electricity market system has been preliminarily established, further optimizing resource allocation.

  IV. Key Tasks

  The “Guiding Opinions” outline 21 key annual tasks. One is Vigorously enhance energy security capabilities from three aspects: strengthening the foundation for ensuring energy security, improving regional energy collaborative security capabilities, and reinforcing the management of major energy security risks. Second is Actively and steadily promote the green and low-carbon transformation of the energy sector from three aspects: maintaining a robust development momentum for non-fossil energy sources, coordinating and advancing the construction of a new power system, and continuously deepening the transformation of energy development and utilization methods. Third is Deepen energy reform and the rule of law by continuously improving the energy institutional framework, deepening the construction of a nationwide unified electricity market, and steadily enhancing the energy legal system. Fourth is Accelerate the drive toward self-reliance and strength in energy technology by continuously improving the energy technology innovation system, strengthening efforts to tackle key core technologies in the energy sector, and fostering the development and expansion of new energy industries and business models. Five is Effectively enhance the satisfaction of the people with energy services by improving the level of energy supply and security for people’s livelihoods and promoting high-quality energy development at the county level. Six is Focus on enhancing the effectiveness of energy regulation by earnestly safeguarding a fair and just market order and continuously strengthening electricity safety oversight. Seven is Consolidate and deepen international energy cooperation by strengthening our capacity to ensure the supply of overseas resources, coordinating energy cooperation with key countries and regions, and actively participating in global energy governance. Eight is Promote the coordinated preparation and implementation of energy plans from two perspectives: fully accelerating the achievement of the energy planning goals and tasks for the 14th Five-Year Plan, and scientifically formulating the energy plan for the 15th Five-Year Plan.