Guiding Opinions of the National Energy Administration on Promoting the Integrated Development of Coal and New Energy
Guonengfa Coal [2025] No. 89
To the energy administrations of all provinces (autonomous regions, municipalities directly under the Central Government), the development and reform commissions and coal industry management departments of relevant provinces (autonomous regions, municipalities directly under the Central Government) and the Xinjiang Production and Construction Corps, all dispatched agencies, and relevant central enterprises:
Promoting the integrated development of coal and new energy, accelerating the development and utilization of new energy resources in coal mining areas, and fostering a new pattern of coordinated development between traditional energy and new energy are of great significance for consolidating the foundation of stable energy supply and promoting the green and low-carbon transformation of energy. To thoroughly implement the decisions and arrangements of the Party Central Committee and the State Council, advance the deep integration of coal and new energy, and accelerate the construction of a new energy system, the following opinions are hereby put forward.
I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, fully and accurately implement the new development philosophy, and earnestly practice the new strategy for energy security. Taking green and low-carbon development as the direction and scientific and technological innovation as the driving force, we will vigorously develop new energy based on the resource elements of coal mining areas, orderly implement clean energy substitution in mining areas, promote the extended development of the coal industry chain, establish and improve the mechanism for the integrated development of coal and new energy, and facilitate the green transformation and sustainable development of the coal industry. By the end of the 15th Five-Year Plan period (2026–2030), remarkable achievements will be made in the integrated development of coal and new energy. The development model of photovoltaic and wind power industries in coal mining areas will be basically mature, the penetration rate of electric energy substitution and new energy will be significantly increased, a number of clean and low-carbon mining areas will be built, and the momentum for green development of the coal industry will be further enhanced.
II. Major Tasks
(1) Accelerate the Development of Photovoltaic and Wind Power Industries in Mining Areas
Effectively revitalize land resources in mining areas. In mining areas with abundant solar resources, make full use of coal mining subsidence areas, industrial squares, spoil dumps, reclamation areas, and other sites to speed up the construction of photovoltaic power stations, promote the local consumption of new energy power generation, and provide more green electricity for mining areas. Encourage coal-producing regions with contiguous land resources and favorable grid access conditions to plan and build large-scale photovoltaic bases to improve the large-scale development level of new energy. Innovate the diversified business development model of "photovoltaic +". Support the development of photovoltaic power generation combined with agricultural and forestry planting, animal husbandry, and other industries in coal mine reclamation areas to achieve spatial complementary and integrated applications. Construct floating photovoltaic power stations in coal mining subsidence areas that have formed ponds or lakes, and promote the integrated model of photovoltaic power generation with aquaculture and crop cultivation to give full play to comprehensive economic, social, and ecological benefits. Coordinate grid carrying capacity and local consumption capacity, and orderly promote the development of centralized and distributed wind power in mining areas and surrounding regions with abundant wind resources.
(2) Actively Promote Clean Energy Substitution for Energy Use in Mining Areas
Accelerate the electrification transformation of key links in coal production, promote the application of electric-driven drilling rigs, electric shovels, and other equipment, and expand the electrification ratio of terminal energy-consuming equipment. Promote new energy substitution for mining area transportation equipment. Scale up the application of electric and hydrogen-powered mining trucks in qualified open-pit coal mines, and gradually apply electric mining rubber-tired vehicles in underground coal mines according to transportation modes to improve the clean and low-carbon level of mining area transportation systems. Support mining areas in rationally laying out and building charging and swapping stations, hydrogen refueling stations in line with production and living needs, and encourage the construction of multi-functional integrated stations of "photovoltaic, energy storage, charging, and discharging" to improve the green transportation service infrastructure in mining areas. Accelerate the elimination of inefficient and backward old boilers in mining areas, and promote advanced boilers such as electric boilers, biomass boilers, gas oxidation heating boilers, and clean and efficient pulverized coal boilers according to local conditions to reduce self-consumed coal in mining areas.
(3) Steadily Promote Renewable Energy Heating and Cooling in Mining Areas
Coordinate the heat preservation requirements of mine shafts and the heating needs of ground production and living, and implement clean heating in mining areas according to local conditions. Encourage qualified coal mines to develop shallow geothermal energy heating, increase the promotion of medium-deep geothermal downhole heat exchange heating technology, and promote the large-scale development and utilization of geothermal energy in mining areas. Support mining areas in developing distributed solar heating based on idle spaces such as roofs and open areas. Effectively utilize the heat sources of gangue power plants, increase the application of waste heat utilization from mine ventilation air and coal mine gas oxidation heating, and explore multi-heat source combined heating in mining areas. On the premise of guaranteed biomass resources, support mining areas in using coal-biomass co-firing cogeneration technology for power generation and heating. Explore innovative applications of renewable energy cooling technology in mining areas to effectively control underground high-temperature heat hazards.
(4) Innovate the Development and Utilization of Green Energy in Mining Areas
Build smart microgrids in mining areas with coordinated control of "source, grid, load, and storage" according to local conditions, promote the integrated development and operation of photovoltaic and wind power, gas power generation, diversified energy storage, and intelligent energy management systems in mining areas, and facilitate efficient complementary utilization of multiple energy sources. Actively promote the improvement of mining area production load regulation capacity, orderly carry out direct green power connection, encourage participation in green certificate and green power trading, and strive to expand the proportion of green electricity used in mining areas. Vigorously promote energy-saving and carbon-reduction transformations in mining areas, update key energy-consuming equipment in line with benchmark and advanced levels, focus on key places such as electromechanical maintenance workshops and transportation logistics centers in mining areas, build a number of typical high-efficiency, low-carbon, and zero-carbon factories and parks, and reduce the carbon emission level of mining areas. Encourage qualified mining areas to scientifically implement carbon sink forest and grass projects to coordinate the promotion of ecological restoration and carbon sequestration and enhancement in mining areas.
(5) Promote the Synergistic and Mutual Promotion of Coal Industry Chain Extension and New Energy Development
Actively support coal enterprises in coordinating the industrial layout of coal, coal-fired power, and new energy, increase investment and development in clean and efficient thermal power, new energy, and other industries, improve the benefits of integrated and coordinated development, and gradually transform into comprehensive energy production and service providers. Promote the upgrading of a new generation of coal-fired power generation at pithead power plants in mining areas, encourage joint development and optimized combination with new energy, and enhance the stability of the energy supply system. Strengthen the full-concentration utilization of coal mine gas, and actively develop utilization methods such as gas power generation, heating, and purification. Optimize the industrial chain layout, encourage coal-to-gas, coal-to-liquids, and coal chemical projects to carry out large-scale green power and green hydrogen substitution and the application of carbon capture, utilization, and storage (CCUS) to effectively reduce the carbon emission level of coal conversion. Support coal enterprises in developing innovative products such as carbon-based special fuels, coal-based biodegradable materials, and new energy power generation materials to create new highlights for the green development of the coal-based industrial chain.
(6) Strengthen Scientific and Technological Innovation and Talent Cultivation
Actively carry out basic theoretical research on the integrated development of coal and new energy, strengthen the research and development of key technologies such as coal-new energy coupled power generation, mine space energy storage system integration, and new energy hydrogen production coupled with coal conversion. Increase the exploration and practice of technical paths such as carbon reduction and efficiency enhancement through the coupling of heating coal-fired generating units with new energy and gravity energy storage using abandoned mine spaces. Support the application of the first set of technical equipment for the integrated development of coal and new energy, build a number of replicable and promotable advanced pilot projects, and form a low-carbon-oriented transformation model of coal-based scientific and technological achievements. Intensify the cultivation of talents in the new energy field for coal enterprises, encourage the on-demand training of a group of professional and compound talents through forms such as order-based classes and joint training, and support coal enterprises in strengthening exchanges and communication with new energy enterprises and scientific research institutions to jointly improve the innovative practical capabilities of talents.
(7) Increase Policy Coordination and Support
The state will incorporate the integrated development of coal and new energy into the 15th Five-Year Plan for energy, coal, and renewable energy, and prioritize its implementation as a key task. Support local governments in overall planning of land resources in mining areas, make good use of policies such as central budgetary funds and carbon emission reduction support tools, and strengthen the guarantee of factors for the development of new energy industries in mining areas. Guide financial institutions to increase credit support for projects of the integrated development of coal and new energy in accordance with market-oriented and law-based principles. Power grid enterprises shall strengthen communication and coordination with construction units of new energy projects in mining areas to ensure the grid connection and power generation of new energy projects in mining areas. Encourage distributed new energy projects in mining areas to directly participate in the power market or participate in aggregation mode. Strengthen energy conservation review and carbon emission evaluation for new projects to promote the clean and efficient utilization of coal and the substitution of non-fossil energy.
III. Organization and Implementation
The National Energy Administration will strengthen overall industry coordination, work with relevant departments to enhance guidance, coordination, tracking, and evaluation of the integrated development of coal and new energy, improve supporting policies and standard systems, and study and coordinate the resolution of major issues in the work promotion process. Provincial energy authorities shall refine and improve policy measures, strengthen work supervision and guidance, enhance exchanges and mutual learning of advanced technologies and management models, and promote the implementation of various tasks for the integrated development of coal and new energy. Project units for the integrated development of coal and new energy shall strictly implement the main responsibility for production safety and earnestly carry out all work related to production safety. Dispatched agencies of the National Energy Administration, local energy authorities, and other departments shall strengthen supervision in accordance with their duties and promote the standardized construction and operation of projects. Key coal enterprises, especially members of the high-quality coal development mechanism, shall give full play to their industrial, technological, and market advantages, study and formulate implementation plans for the integrated development of coal and new energy based on the actual conditions of mining areas, put forward industrial development directions and key tasks, accelerate the implementation of key projects, build a number of characteristic typical cases, and lead and drive the high-quality development of the integrated development of coal and new energy.
National Energy AdministrationOctober 28, 2025
