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Guiding opinions on the implementation of the “13th FYP” for renewable energy development
Original title: 国家能源局关于可再生能源发展“十三五”规划实施的指导意见
Links: Original source (in Chinese) (link).
[Summary table added by China Energy Portal]
国能发新能[2017]31号
National Energy Administration
Guiding opinions on the implementation of the "13th FYP" for renewable energy development
To the Development and Reform Commissions (Energy Administrations) of provinces, autonomous regions, directly controlled municipalities, and the Xinjiang Production and Construction Corps, local branches of energy regulation organizations, the State Grid Corporation, China Southern Power Grid Company, and the Inner Mongolia Electric Power Company:
Supported by the "Renewable Energy Law" and related policies, China's renewable energy industry has rapidly developed, the level of technology has significantly improved, the manufacturing industry capacity has been rapidly improved, and markets have continued to expand, playing an important role in promoting energy structure adjustment, environmental protection and the cultivation of new economic development。In order to thoroughly implement the strategy of the energy production and consumption revolution, to effectively solve the problems of curtailment of hydropower, wind and PV, and the insufficiency of funds for renewable energy subsidies and other issues that have come with the development of renewable energy sources, and to achieve sustainable and healthy development of the renewable energy industry, and to properly implement the "13th FYP" for renewable energy development, we issue the following set of opinions：
1. Strengthen renewable energy targets and monitoring & evaluation
Energy authorities of provinces (autonomous regions, municipalities) shall, on the basis of the national "13th FYP" for energy development, the "13th FYP" for the electricity sector, the "13th FYP" for renewable energy development, as well as the targets for shares of non-hydro renewables in electricity generation and the requirements for strengthened utilization of hydropower as laid out in the "Guiding opinions on the establishment of a target setting system for the development and utilization of renewable energy (NEA, Dept. for new and renewable energy [2016] No. 54)", and in recognition of the province's renewable energy development planning and market consumption conditions, reasonably determine the province's renewable power generation development goals, strengthen project construction management and policy implementation, and promote the orderly development of renewable power generation。The NEA will annually monitor, evaluate and assess renewable energy development and utilization of each province (autonomous region, municipality), and publicly announce evaluation and assessment results。
2. Strengthen the leading role of renewable energy development planning
Energy administrations of each province (autonomous region, municipality) shall, in accordance with the various energy plans issued by the NDRC and NEA, and with the regional "13th FYP" for energy development as approved by the NEA, determine the region's renewable energy development planning and an annual implementation program, clarify the annual scale of renewable power generation construction, construction responsibilities, structure and layout, and coordinate the relationship between renewable energy and conventional energy。
Energy authorities of each province (autonomous region, municipality) shall, on the basis of relevant planning and a scientific and rational layout, and linked with the power market, prepare annual implementation plans for renewable power generation construction, in order to guide research of supporting power grids construction and renewable electricity consumption measures by power grid enterprises。Fully utilize a combination of the existing stock and optimized additions, and on the basis of conditions for annual implementation of inter-provincial electricity deliveries and consumption, orderly organize construction of hydropower, wind power, PV power generation and other renewable electricity generation。
3. Strengthen implementation of power grid access and market consumption conditions
The energy authorities of the provinces (autonomous regions, municipalities) should make implementation of infrastructure for the delivery and consumption of renewable electricity a basic prerequisite in arranging the scale and layout of construction of renewable electricity generation in the administrative area。The provincial power grid companies should research the grid-connection conditions and measures for consumption for the suggested annual scale of newly added capacity, and issue viewpoints on power consumption。集中式风电和光伏发电的年度规模确定及分配都要以省级电网企业承诺投资建设电力送出工程和出具的电力系统消纳能力意见为前提。
对大型水电、风电、光伏发电基地，所在省（区、市）能源主管部门及市（县）级地方政府能源主管部门首先要落实电力消纳市场。所发电量本地消纳的基地，有关省级能源主管部门要会同地方政府和省级电网企业明确电力消纳机制和保障措施；所发电量跨省跨区消纳的基地，要符合国家能源和电力相关发展规划，送受端省级政府及电网企业要协商达成送受电协议、输电及消纳方案。
发挥跨省跨区特高压输电通道消纳可再生能源的作用。对国家能源局已明确可再生能源电量比重指标的特高压输电通道，按已明确的指标进行考核；对未明确指标的特高压输电通道由有关监管机构对其进行一年为周期的监测，确定可再生能源电量比重指标及通道利用指标。水能、风能、太阳能资源富集地区后续规划新建的特高压输电通道均应明确输送可再生能源电量比重指标，以输送水电为主的特高压输电通道应明确通道利用率指标。
四、创新发展方式促进技术进步和成本降低
各省（区、市）能源主管部门应遵循发挥市场在资源配置中起决定性作用和更好发挥政府作用的理念，结合电力体制改革等创新可再生能源电力发展模式。鼓励结合社会资本投资经营配电网、清洁能源局域电网和微电网建设，实现可再生能源高效利用并降低成本。原则上不再支持建设无技术进步目标、无市场机制创新、补贴强度高的集中式光伏发电项目。
国家能源局会同有关部门制定光伏产品的市场应用技术标准、领跑者技术标准，加速技术进步和落后产能退出市场。各省（区、市）能源主管部门组织地方政府，对具备成片开发土地资源且具备统一送出消纳条件的光伏电站场址，编制光伏发电先进技术应用基地。国家能源局按年度统一组织光伏发电先进技术应用基地优选，被选上的基地纳入该地区年度新增建设规模。对优选上的基地，由所在地省级能源主管部门在国家能源局指导下组织地方政府采取公开竞争方式选择项目投资主体，并提出统一的技术标准，以此引领技术进步和产业升级，促进成本下降，减少补贴需求。
五、健全风电、光伏发电建设规模管理机制
各省（区、市）能源主管部门应根据风电产业预警信息合理布局风电项目。预警结果为绿色地区的省（区、市）能源主管部门，根据相关规划在落实电力送出和市场消纳的前提下，自主确定风电年度建设实施方案，严格核实纳入年度建设方案各项目的风资源勘查评价、电力送出及消纳市场等建设条件，并指导开发企业与电网企业做好衔接，将年度建设实施方案报送国家能源局。分散式风电严格按照有关技术规定和规划执行，不受年度建设规模限制。
按照市场自主和竞争配置并举的方式管理光伏发电项目建设。对屋顶光伏以及建立市场化交易机制就近消纳的2万千瓦以下光伏电站等分布式项目，市场主体在符合技术条件和市场规则的情况下自主建设；对集中式光伏电站，以不发生限电为前提，设定技术进步、市场消纳、降低补贴等条件，通过竞争配置方式组织建设；国家能源局统一组织光伏发电先进技术应用基地建设，基地及基地内项目业主均按照有关规定通过竞争方式选择；光伏扶贫根据有关地区扶贫任务的需要，有关省（区、市）能源主管部门会同扶贫部门组织地方政府编制光伏扶贫计划。
根据国家发展改革委、国家能源局发布的各类能源规划和经国家能源局批复的各地区能源发展规划以及各省（区、市）能源主管部门报送的“十三五”风电、光伏发电分年度规模建议，国家能源局将各省（区、市）分年度建设规模方案予以公布（见附件1、2），各省（区、市）能源主管部门按此方案做好规划实施工作。2017年各省（区、市）风电、光伏发电按随文公布的新增建设规模执行。2018年以及后续年度，各省（区、市）能源主管部门按年度向国家能源局报送年度实施方案建议，其中包括新增建设规模和布局信息以及电网公司关于投资建设电力送出工程和消纳能力的意见。
国家能源局对各省（区、市）能源主管部门报送的年度实施方案和相关条件进行核实，按照当年电网企业承诺的电力送出和消纳条件最终确定各省（区、市）当年新增建设规模。对应纳入年度规模管理的发电项目，各省（区、市）能源主管部门必须严格按当年下达的年度新增建设规模组织建设。
六、加强和规范生物质发电管理
生物质发电（主要包括农林生物质发电和垃圾焚烧发电）“十三五”规划布局规模一次性下达。各省（区、市）能源主管部门根据规划布局，组织开展项目核准工作，每年2月底之前上报上一年度项目核准及建设运行情况。“十三五”中期组织开展本地区生物质发电“十三五”规划修编，进行滚动调整。
大力推进农林生物质热电联产，从严控制只发电不供热项目。将农林生物质热电联产作为县域重要的清洁供热方式，为县城及农村提供清洁供暖，为工业园区和企业提供清洁工业蒸汽，直接替代县域内燃煤锅炉及散煤利用。因地制宜推进城镇生活垃圾焚烧热电联产项目建设。
纳入生物质发电“十三五”规划布局方案的是符合国家可再生能源基金支持政策的农林生物质发电和垃圾焚烧发电项目。不符合国家可再生能源基金支持政策，或者不申请国家可再生能源基金支持的布局项目，不纳入本规划布局方案。有关地方能源主管部门核准建设规划布局方案之外的生物质发电项目（沼气发电除外），由所在省（区、市）负责解决补贴资金问题。
七、多措并举扩大补贴资金来源
各省（区、市）能源主管部门组织本地区可再生能源电力建设，除了考虑电网接入和市场消纳保障，还应考虑本地区可再生能源电价附加征收情况、本地区其他补贴资金来源等因素。鼓励各级地方政府多渠道筹措资金支持可再生能源发展，已制定本省级区域支持可再生能源建设和利用补贴政策的地区可相应扩大建设规模。
各省（区、市）能源主管部门和各派出能源监管机构应会同有关部门监测评价风电、光伏发电、生物质发电项目电费结算、补贴资金到位以及企业经营状况，向社会及时发布信息，提醒企业投资经营风险，合理把握可再生能源电力建设节奏。
八、加强政策保障
各级地方政府能源主管部门要积极落实国家支持可再生能源发展的政策，完善政府管理和服务机制，在土地利用等方面降低成本，不得以收取资源费等名义增加企业负担。电网企业要遵照《可再生能源法》的规定，与依法取得行政许可或报送备案的可再生能源发电企业做好衔接，及时投资建设配套电网，签订并网调度协议和购售电合同，履行对可再生能源发电的全额保障性收购责任。
各级地方政府能源主管部门与电网企业要贯彻《可再生能源法》的要求，按照电力体制改革工作部署，以可再生能源发电全额保障性收购要求作为依据，落实可再生能源发电项目合同的签订和执行。若可再生能源企业优先发电合同未履行，其优先发电权可以转让。
各派出能源监管机构要按照《可再生能源发电全额保障性收购管理办法》第十二、十三条等有关要求，会同省级能源主管部门、经济运行主管部门及电网企业严格落实国家核定的最低保障小时数。各派出能源监管机构要加强可再生能源电力项目接入电网监管，并会同地方政府有关部门加强对可再生能源发电全额保障性收购执行情况的监管和考核工作。
Annex：
1. Plan for newly added wind power capacity 2017-2020
2. Plan for newly added centralized PV power plant capacity 2017-2020
3. "13th FYP" Biomass power generation plan
National Energy Administration
July 19, 2017
Annex 1
Plan for newly added wind power capacity 2017-2020
Unit：MW
| Province | 2017 | 2018 | 2019 | 2020 | Cumulative additions 2017-2020 | 2020 Targets for total grid-connected capacity |
| Total | 30,650 | 28,840 | 26,600 | 24,310 | 110,410 | 126,000 |
| Beijing | 0 | 50 | 50 | 100 | 200 | 500 |
| Tianjin | 290 | 260 | 400 | 280 | 1,230 | 1,000 |
| Hebei | 2,390 | 3,500 | 3,000 | 2,500 | 11,390 | 18,000 |
| Shanxi | 2,560 | 2,400 | 2,200 | 2,240 | 9,400 | 9,000 |
| Liaoning | 0 | 700 | 500 | 400 | 1,600 | 8,000 |
| Shanghai | 0 | 100 | 100 | 100 | 300 | 500 |
| Jiangsu | 1,100 | 1,000 | 800 | 800 | 3,700 | 6,500 |
| Zhejiang | 0 | 1,000 | 900 | 900 | 2,800 | 3,000 |
| Anhui | 2,000 | 1,000 | 1,000 | 500 | 4,500 | 3,500 |
| Fujian | 500 | 1,000 | 1,000 | 1,000 | 3,500 | 3,000 |
| Jiangxi | 1,130 | 1,600 | 1,400 | 600 | 4,730 | 3,000 |
| Shandong | 3,500 | 2,400 | 2,000 | 2,000 | 9,900 | 12,000 |
| Henan | 3,000 | 3,000 | 3,000 | 3,000 | 12,000 | 6,000 |
| Hubei | 3,010 | 1,500 | 1,500 | 1,500 | 7,520 | 5,000 |
| Hunan | 2,320 | 2,300 | 1,500 | 1,500 | 7,620 | 6,000 |
| Guangdong | 1,650 | 1,500 | 1,500 | 1,500 | 6,150 | 6,000 |
| Guangxi | 2,000 | 1,000 | 1,000 | 1,000 | 5,000 | 3,500 |
| Hainan | 0 | 0 | 0 | 350 | 350 | 300 |
| Chongqing | 300 | 150 | 150 | 150 | 750 | 500 |
| Sichuan | 220 | 80 | 200 | 200 | 700 | 5,000 |
| Guizhou | 150 | 600 | 1,200 | 440 | 2,390 | 6,000 |
| Yunnan | 0 | 650 | 650 | 650 | 1,950 | 12,000 |
| Tibet | 0 | 50 | 50 | 100 | 200 | 200 |
| Shaanxi | 3,030 | 1,500 | 1,500 | 1,500 | 7,530 | 5,500 |
| Qinghai | 1,500 | 1,500 | 1,000 | 1,000 | 5,000 | 2,000 |
Notes：1. The above mentioned scale of new construction is based on the "13th FYP", the capacity for local consumption, and the initial installed capacity as reported in the proposed program by the administrative region. Areas that received a green early warning result may unilaterally adjust actual construction scales；
2. Jilin, Heilongjiang, Gansu, Ningxia, Inner Mongolia, Xinjiang Autonomous Region, and the XPCC are temporarily not allocated an annual quota for new construction; when wind power curtailment issues have been resolved such allocation will be separately issued；
3. The table does not include wind power bases supported by UHV transmission channels or offshore wind power。The scale of wind power bases is supported by UHV transmission channels, and can be separately determined on the basis of UHV transmission channel planning, timing of operational start and construction cycle. In principle, this scale can be configured according to the maximum inter-provincial UHV transmission capacity。
Annex 2
Plan for newly added centralized PV power plant capacity 2017-2020
Unit：MW
| Province | 2017 | 2018 | 2019 | 2020 | Cumulative additions 2017-2020 | 2020 Targets for total grid-connected capacity |
| Total | 22,400 | 21,900 | 21,100 | 21,100 | 86,500 | 128,000 |
| Hebei | 1,000 | 1,200 | 1,200 | 1,200 | 4,600 | 12,000 |
| Shanxi | 800 | 1,000 | 1,000 | 1,000 | 3,800 | 12,000 |
| Shandong | 500 | 1,000 | 1,000 | 1,000 | 3,500 | 10,000 |
| Inner Mongolia | 1,000 | 1,000 | 1,000 | 1,000 | 4,000 | 12,000 |
| Liaoning | 500 | 400 | 300 | 300 | 1,500 | 2,500 |
| Jilin | 500 | 400 | 400 | 400 | 1,700 | 2,400 |
| Heilongjiang | 800 | 800 | 800 | 800 | 3,200 | 6,000 |
| Shaanxi | 800 | 800 | 800 | 800 | 3,200 | 7,000 |
| Qinghai | 800 | 500 | 500 | 500 | 2,300 | 10,000 |
| Jiangsu | 1,200 | 1,000 | 1,000 | 1,000 | 4,200 | 10,000 |
| Zhejiang | 1,000 | 1,000 | 1,000 | 1,000 | 4,000 | 8,000 |
| Anhui | 800 | 600 | 500 | 500 | 2,400 | 7,000 |
| Jiangxi | 500 | 300 | 300 | 300 | 1,400 | 4,000 |
| Henan | 900 | 500 | 500 | 500 | 2,400 | 5,000 |
| Hubei | 500 | 500 | 300 | 300 | 1,600 | 3,500 |
| Hunan | 500 | 500 | 300 | 300 | 1,600 | 2,000 |
| Sichuan | 500 | 500 | 300 | 300 | 1,600 | 2,500 |
| Guizhou | 300 | 300 | 300 | 300 | 1,200 | 2,000 |
| Yunnan | 500 | 500 | 500 | 500 | 2,000 | 3,100 |
| Guangdong | 500 | 800 | 800 | 800 | 2,900 | 6,000 |
| Guangxi | 500 | 300 | 300 | 300 | 1,400 | 1,000 |
| "PV leader" technology base | 8,000 | 8,000 | 8,000 | 8,000 | 32,000 |
Notes：1. The "2020 Targets for total grid-connected capacity" in the above table are the national "13th FYP" development targets for PV and the targets determined in "13th FYP" plans of provinces (autonomous regions, municipalities) and approved by the National Energy Administration, and refer to the cumulative grid-connected capacity by the end of 2020；
2. The seven provinces (autonomous regions, municipalities) of Beijing, Tianjin, Shanghai, Fujian, Chongqing, Tibet, and Hainan may unilaterally manage the scale of utility PV construction during the "13th FYP" period, and orderly construct in accordance with regional energy planning, market consumption and other conditions；
3. The table does not include the scale of construction of distributed PV projects, village-level poverty alleviation power stations or PV power plants supported with inter-provincial transmission channels；Various models where PV power plant projects are is combined with greenhouses or livestock breeding are included in the annual scale of construction as centralized power plants；
4. Currently, there is serious curtailment of PV in Gansu, Xinjiang (including XPCC), and Ningxia; no construction quota is allocated to these provinces temporarily. After the PV curtailment shows significant improvement, such a quota will be separately studied and determined；
5. Provinces (autonomous regions, municipalities) should prioritize construction of PV power stations for poverty alleviation within the annual construction quota for 2017; there will be no further separate allocation of quota for construction of centralized PV power stations for poverty alleviation；the provinces of Hebei, Henan, Henan, Jiangxi, Hunan, Hubei, Yunnan, Guangdong and other provinces for which the previous 2017 construction quota exceeded 500 MW should construct all further additions as PV power plants for poverty alleviation；
6、有关省（区、市）依据《国家能源局关于调整2016年光伏发电建设规模有关问题的通知》（国能新能〔2016〕383号）调增的建设规模计入2016年。对有关省（区）能源主管部门据此文件安排的调增建设规模，符合文件规定的均为有效，国家能源局不再单另下文确认。调增规模超过100万千瓦的，请有关省级能源主管部门自行对超过部分剔除；
7、2017-2020年每年安排领跑基地项目800万千瓦，由国家能源局统一组织竞争优选确定；
8、张家口市光伏发电建设规模根据国家批复的有关专项规划建设，不占表中所列河北省各年度建设规模；
9、河南省2017年度建设规模中的40万千瓦用于专项支持兰考、永城、虞城、商水农村能源革命试点。
Annex 3
"13th FYP" Biomass power generation plan
Unit：MW
| Province | Scale of biomass power generation | Of which: agricultural and forestry residue based biomass power generation | Of which: waste incineration based power generation |
| Total | 23,340 | 13,120 | 10,220 |
| Beijing | 60 | 10 | 50 |
| Tianjin | 40 | 20 | 20 |
| Hebei | 1,640 | 1,340 | 300 |
| Shanxi | 550 | 300 | 250 |
| Inner Mongolia | 340 | 240 | 100 |
| Liaoning | 1,340 | 790 | 550 |
| Jilin | 1,330 | 1,130 | 200 |
| Heilongjiang | 1,280 | 1,100 | 180 |
| Shanghai | 160 | 10 | 150 |
| Jiangsu | 1,430 | 570 | 860 |
| Zhejiang | 620 | 50 | 570 |
| Anhui | 1,270 | 730 | 540 |
| Fujian | 260 | 20 | 240 |
| Jiangxi | 950 | 560 | 390 |
| Shandong | 2,240 | 1,260 | 980 |
| Henan | 2,230 | 1,600 | 630 |
| Hubei | 970 | 590 | 380 |
| Hunan | 890 | 360 | 530 |
| Guangdong | 1,190 | 230 | 960 |
| Guangxi | 880 | 490 | 390 |
| Hainan | 300 | 150 | 150 |
| Chongqing | 260 | 130 | 130 |
| Sichuan | 480 | 150 | 330 |
| Guizhou | 400 | 150 | 250 |
| Yunnan | 210 | 0 | 210 |
| Tibet | 30 | 0 | 30 |
| Shaanxi | 920 | 480 | 440 |
| Gansu | 510 | 380 | 130 |
| Ningxia | 80 | 30 | 50 |
| Xinjiang | 190 | 0 | 190 |
| XPCC | 290 | 250 | 40 |
Note：For specific layout of individual biomass power generation projects, see the paper version of this document
