Opinions of the General Office of the CPC Central Committee and the General Office of the State Council on Doing Energy Conservation and Carbon Reduction Work at a Higher Level and Higher Quality 中共中央办公厅国务院办公厅关于更高水平更高质量做好节能降碳工作的意见

Xinhua April 22,2026 https://www.mee.gov.cn/zcwj/zyygwj/202604/t20260422_1149910.shtml

Issued April 11, 2026

Energy conservation and carbon reduction are important levers for advancing the carbon peaking and carbon neutrality goals and for accelerating the green transformation of development patterns, and they are important supports for safeguarding national energy security and promoting industrial upgrading. In order to do energy conservation and carbon reduction work at a higher level and higher quality, with the approval of the Party Central Committee and the State Council, the following opinions are hereby put forward.

节能降碳是推进碳达峰碳中和、加快发展方式绿色转型的重要抓手，是维护国家能源安全、促进产业提质升级的重要支撑。为更高水平、更高质量做好节能降碳工作，经党中央、国务院同意，现提出如下意见。

I. General Requirements

一、总体要求

Persist in Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era as the guide, thoroughly implement the spirit of the 20th Party Congress and successive plenary sessions of the 20th Central Committee, earnestly implement the deployments of the Fourth Plenum, fully, accurately, and comprehensively implement the new development philosophy, adhere to the general principle of seeking progress while maintaining stability, uphold the combination of an effective market and a capable government, coordinate development and security, unwaveringly uphold the principle of conservation first, integrate energy conservation and carbon reduction throughout every aspect of economic and social development, do energy conservation and carbon reduction work at a higher level and higher quality, resolutely curb unreasonable growth in total energy consumption, continuously improve the output efficiency of energy and resources, effectively reduce carbon emissions at the source, and provide strong guarantees for achieving carbon peaking and carbon neutrality and accelerating the comprehensive green transformation of economic and social development.

坚持以习近平新时代中国特色社会主义思想为指导，深入贯彻党的二十大和二十届历次全会精神，认真落实四中全会部署，完整准确全面贯彻新发展理念，坚持稳中求进工作总基调，坚持有效市场和有为政府相结合，统筹发展和安全，一以贯之坚持节约优先方针，把节能降碳贯穿经济社会发展全过程各方面，更高水平、更高质量做好节能降碳工作，坚决遏制能源消费总量不合理增长，持续提升能源资源产出效率，从源头有效减少碳排放，为实现碳达峰碳中和、加快经济社会发展全面绿色转型提供有力保障。

II. Coordinated Advancement of Energy Conservation, Carbon Reduction, and Green Transformation

二、协同推进节能降碳与绿色转型

(1) Coordinate energy conservation and carbon reduction with industrial optimization and upgrading. Strengthen the policy alignment and coordination between energy conservation and carbon reduction and industrial planning, capacity regulation, and other policies; strengthen the incentives, constraints, and standard-setting leadership of energy conservation and carbon reduction; and continuously reduce industry's dependence on energy. Vigorously promote energy-saving and low-carbon, clean production technologies, equipment, and products; actively implement market-based energy conservation and carbon reduction services; and support the use of digital-intelligent and green technologies to upgrade traditional industries. Forcefully and effectively manage high-energy-consuming, high-emitting projects, and advance the phase-out of backward and inefficient production capacity, processes, and equipment in an orderly manner in accordance with law, jointly resolving structural contradictions in key industries. Accelerate the development of advanced manufacturing, high- and new-tech industries, and modern services, vigorously develop green and low-carbon industries, and actively cultivate new industries and new business models conducive to energy conservation and carbon reduction. Advance the construction of zero-carbon industrial parks, and develop the "using green to make green" model of manufacturing green products with green energy.

（一）统筹节能降碳与产业优化升级。加强节能降碳与产业规划、产能调控等政策衔接协同，强化节能降碳激励约束和标准提升引领，持续降低产业对能源的依赖。大力推广节能低碳、清洁生产技术装备和产品，积极推行市场化节能降碳服务，支持运用数智技术、绿色技术改造提升传统产业。有力有效管控高耗能高排放项目，依法有序推进落后低效产能和工艺设备出清，协同化解重点产业结构性矛盾。加快发展先进制造业、高新技术产业和现代服务业，大力发展绿色低碳产业，积极培育有利于节能降碳的新产业、新业态。推进零碳园区建设，发展以绿色能源制造绿色产品的"以绿制绿"模式。

(2) Coordinate energy conservation and carbon reduction with the green transformation of energy. Properly handle the relationship between energy conservation and carbon reduction on the one hand and energy security on the other, scientifically regulate total energy consumption, strictly control fossil energy consumption, thoroughly advance the reduction of coal use and control of oil use, strengthen management of incremental demand for coal and oil, actively advance clean substitution for existing coal-fired boilers, industrial kilns, and other coal-using equipment, advance the substitution of scattered coal use in an orderly manner, and push coal consumption and oil consumption to peak progressively. Reasonably control the scale of coal power installed capacity and power generation, vigorously develop non-fossil energy and new-type energy storage, accelerate the construction of a new-type power system, scientifically lay out pumped storage, innovatively develop new business models such as direct green-power connection and smart microgrids, promote the consumption of green electricity, and have newly added clean-energy power generation progressively cover society's incremental electricity demand. Improve energy production efficiency, promote high-efficiency extraction technologies and equipment for fossil energy, strengthen energy-saving, carbon-reducing, and flexibility retrofits of coal-fired power, reasonably determine dispatch order and peak-shaving depth for coal power, continuously improve the efficiency of wind and solar generation and the energy-conversion efficiency of storage devices, and steadily reduce the comprehensive line-loss rate of the grid.

（二）统筹节能降碳与能源绿色转型。处理好节能降碳和能源安全的关系，科学调控能源消费总量，严格控制化石能源消费，深入推进减煤控油，强化新增用煤用油需求管理，积极推进存量燃煤锅炉、工业窑炉等用煤设备清洁替代，有序推进散煤替代，推动煤炭消费和石油消费逐步达峰。合理控制煤电装机规模和发电量，大力发展非化石能源和新型储能，加快建设新型电力系统，科学布局抽水蓄能，创新发展绿电直连、智能微电网等业态，促进绿色电力消纳，推动新增清洁能源发电量逐步覆盖全社会新增用电需求。提高能源生产效率，推广化石能源高效开采技术装备，加强煤电节能降碳改造、灵活性改造等，合理确定煤电调度顺序和调峰深度，持续提升风光发电效率和储能装置能量转化效率，稳步降低电网综合线损率。

III. Vigorously Advance Energy Conservation and Carbon Reduction in Key Sectors

三、大力推进重点领域节能降碳

(3) Strengthen industrial energy conservation and carbon reduction. Comprehensively raise energy efficiency levels in key sectors such as steel, nonferrous metals, petrochemicals, chemicals, and building materials; focus on production processes, main procedures, and key equipment and thoroughly implement energy-conservation and carbon-reduction diagnostics; and organize the implementation of a batch of industrial energy-conservation and carbon-reduction projects. Deepen energy conservation and carbon reduction in industrial parks, promote joint construction and sharing of heating, cooling, and other infrastructure, strengthen energy exchange and cascade utilization among enterprises, support cross-industry coupled efficiency improvements such as integrated steel-chemical and refining-chemical production, carry out the construction of eco-industrial parks, and advance overall optimization of park energy systems and intensive, economical, and circular resource use.

（三）强化工业节能降碳。全面提升钢铁、有色、石化、化工、建材等重点行业能效水平，聚焦生产工艺、主要工序、重点设备等深入实施节能降碳诊断，组织实施一批工业节能降碳工程。深化工业园区节能降碳，推动供热、制冷等基础设施共建共享，加强企业间能量交换与梯级利用，支持钢化联产、炼化集成等跨行业耦合提效，开展生态工业园区建设，推进园区能源系统整体优化和资源集约节约循环利用。

(4) Strengthen energy conservation and carbon reduction in buildings. Strictly manage the energy efficiency of new buildings, optimize building energy-conservation and carbon-reduction design, advance the scaled development of ultra-low-energy buildings, and build safe, comfortable, green, and smart "good housing." In conjunction with old-neighborhood renovation, clean heating, and other work, actively advance energy-conservation and carbon-reduction retrofits of existing buildings, and strengthen energy-conservation and carbon-reduction management of building operations. Establish a building energy-efficiency rating system. Optimize the building energy-use mix, advance building-integrated photovoltaics in an orderly manner, and advance waste-heat and non-fossil-energy heating substitution according to local conditions. Thoroughly advance heat metering reform, rationalize heating prices in an orderly manner, support the renewal and retrofit of aging heating pipe networks and other facilities and equipment and the smart upgrading of heating systems, and work to improve energy-use efficiency at every link of heating.

（四）加强建筑节能降碳。严格新建建筑能效管理，优化建筑节能降碳设计，推动超低能耗建筑规模化发展，建设安全舒适绿色智慧的"好房子"。结合老旧小区改造、清洁取暖等工作，积极推进既有建筑节能降碳改造，加强建筑运行节能降碳管理。建立建筑能效等级制度。优化建筑用能结构，有序推进建筑光伏一体化建设，因地制宜推进余热资源和非化石能源供热替代。深入推进供热计量改革，有序理顺供热价格，支持老化供热管网等设施设备更新改造和供热系统智能化升级，着力提升供热各环节能源利用效率。