National Development and Reform Commission Document No. 1345 of 2024
To the People's Governments of all provinces, autonomous regions, and municipalities directly under the Central Government, and relevant ministries and commissions and directly affiliated institutions of the State Council:
Clean and efficient utilization of coal refers to the activities of comprehensively applying advanced technologies and management methods in all aspects of the coal development, production, storage, transportation, and use industrial chain to control and reduce pollutant and carbon emissions and improve coal utilization efficiency. This is of great significance for fully leveraging coal's role as a safety net, promoting the green and low-carbon transformation of energy, and developing new types of productive forces. In order to implement the decisions and plans of the CPC Central Committee and the State Council, ensure energy security, better support and safeguard high-quality development, and promote the achievement of the goals of reducing peak carbon emissions and achieving carbon neutrality, with the approval of the State Council, the following views on strengthening the clean and efficient utilization of coal are presented.
I. General Requirements
Adhere to the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and the Second and Third Plenary Sessions of the 20th CPC Central Committee, fully and accurately implement the new development philosophy, coordinate development and security, give full play to the decisive role of the market in resource allocation, better leverage the role of the government, base ourselves on my country's energy resource endowment dominated by coal, adhere to a combination of goal-oriented and problem-oriented approaches, adhere to a systemic perspective, focus on pollution reduction and carbon reduction and energy efficiency improvement, take innovative technologies and management as the driving force, and rely on improved policies and standards as support to comprehensively strengthen the clean and efficient utilization of the entire coal chain.
By 2030, the capacity for green and intelligent coal development will be significantly enhanced, the energy intensity of production will gradually decrease, the storage and transportation structure will be continuously optimized, the quality of commercial coal will steadily improve, the efficiency and cleanliness of coal use in key areas will be comprehensively improved, and a clean and efficient coal utilization system adapted to ecological priority, conservation and intensive use, and green and low-carbon development will be basically established.
II. Building a Green and Collaborative Development System
(I) Strengthening Coal Resource Exploration. Strengthen basic and public-interest coal geological surveys, encourage enterprises to conduct commercial exploration, and improve the mechanism for sharing the benefits of exploration, development, and utilization. Utilize green exploration technologies, strengthen the classification and grading evaluation of coal resources and the refined exploration of coal mines, and intensify geological exploration and evaluation of large-scale integrated coalfields to provide geological guarantees for the green, intelligent, and efficient development of coal and the stable continuity of production capacity. Strengthen the comprehensive exploration of associated resources such as coal, coalbed methane, and strategic metal minerals.
(II) Optimize the planning and layout of mining areas. Taking into account factors such as resource endowment, transportation channels, and consumption demand, and in accordance with the national land spatial planning, implement the spatial control requirements of the "three zones and three lines" to scientifically plan the layout of coal production capacity and strengthen the overall planning management of coal mining areas. Implement the requirements for ecological and environmental zoning control, strictly conduct planning environmental impact assessments, and prioritize the avoidance of environmentally sensitive areas. Rationally plan the development of the coal industry in the Yellow River Basin and conduct water resource assessments in accordance with the law. Promote the coordinated development of resources, ecology, and economy in mining areas, and construct five major coal supply guarantee bases in Shanxi, western Inner Mongolia, eastern Inner Mongolia, northern Shaanxi, and Xinjiang to high standards.
(III) Promote intensive and efficient coal development. Integrate the concepts of green development and the principles of intensive and large-scale development throughout the entire process of coal mine design, construction, and production. Promote green mining technologies according to local conditions. Scientifically delineate mining areas and fields, rationally determine the scale of coal mine construction, scientifically set up prohibited and restricted mining areas, and construct a number of large and extra-large coal mines that meet ecological and environmental protection requirements, have good resource conditions, high safety levels, and are intelligent and efficient. Strengthen the coordinated development of coal and associated resources.
III. Constructing a Safe and Environmentally Friendly Production System
(IV) Accelerating the Intelligent Development of Coal Mine Safety. New coal mines should, in principle, be designed and constructed according to intelligent standards. Large coal mines and those with severe hazards should accelerate their intelligent transformation, and where conditions permit, achieve intelligent mining systems. The focus should be on promoting intelligent decision-making and autonomous operation of mining systems, efficient collaboration of process equipment in tunneling systems, achieving remote control of mining faces with minimal or no on-site personnel, promoting the application of unmanned operation in fixed locations, and replacing dangerous and heavy-duty positions with robots, thereby improving the level of safe and efficient production management in coal mines.
(V) Improve clean production levels. New coal mines should simultaneously construct supporting coal washing and beneficiation facilities, accelerate the upgrading of existing coal washing and beneficiation facilities, and vigorously eliminate outdated coal washing and beneficiation capacity. Revise the emission standards for coalbed methane (coal mine gas) and strengthen the comprehensive utilization of gas. With prefecture-level cities as the main body, coordinate the comprehensive utilization of mine water, construct centralized treatment and utilization projects according to local conditions, and strengthen the application of advanced technologies and equipment for mine water treatment. Strengthen the classified utilization and disposal of coal gangue, and support the large-scale, harmless, and high-value utilization of coal gangue.
(VI) Promote Energy Conservation and Environmental Protection Upgrades. Improve the standard system for energy conservation and carbon reduction in coal mines, promote the application of high-efficiency technologies and equipment, and the comprehensive utilization of resources such as waste heat and waste pressure. Deeply explore the energy-saving potential of production systems and reasonably reduce energy consumption in coal mine production. Coal enterprises must strictly implement their primary responsibility for environmental protection and ecological restoration, fully allocate funds for mine geological environment governance and restoration, and ensure that these funds are used for their designated purposes. Innovate the circular economy development model in mining areas, and encourage the development of new energy sources, energy storage, and carbon sink forests and grasslands in coal mining subsidence areas and in the above-ground and underground spaces of closed coal mines, such as industrial squares, spoil heaps, and roadways.
IV. Establish a clean and efficient storage and transportation system
(VII) Optimize the coal storage and transportation network. Continuously improve the coal railway transportation network, increase the proportion of dedicated railway lines connecting large and medium-sized coal enterprises, accelerate the expansion and upgrading of existing coal transportation railways, improve the layout of railway collection and distribution stations, strengthen the construction of collection and distribution railways, and fully release the capacity of heavy-haul coal transportation railway corridors. Improve the structure of the regional coal transportation highway network, strengthen the monitoring and emergency response of road network operations in key areas, and ensure convenient and efficient passage. Optimize the layout of coal ports and enhance the railway collection and distribution capacity. Rationally plan coal reserves, orderly construct coal production capacity reserves in major coal-producing areas, and construct coal storage bases in major consumption areas and transportation hubs.
(VIII) Improve the cleanliness of coal storage and transportation. Continue to promote the shift of coal transportation from road to rail and water, and encourage the conversion of bulk coal to containerized coal from the source of the mines. Further increase the proportion of medium- and long-distance coal rail transportation in major coal-producing areas, and build a multimodal transport system with railways and waterways as the backbone to effectively prevent dust pollution during transportation. Encourage the use of enclosed belt conveyors, pipelines, tubular belt conveyors, and new energy vehicles such as electric and hydrogen-powered vehicles for short-distance coal transportation. Improve the cleanliness and environmental protection level of coal storage facilities at all stages of production, circulation, and consumption. Increase the proportion of green collection and distribution at coastal and river ports, and promote the regular use of shore power by ships at berths in accordance with the law.
(ix) Improve coal circulation efficiency. Promote the integrated development of coal transportation, storage, processing and distribution; support the construction of large-scale coal storage and distribution centers; encourage refined processing and distribution; and promote the large-scale and intensive development of storage and transportation. Accelerate the application of advanced technologies such as the Internet of Things and mobile internet in the field of coal logistics, and promote the standardization of coal logistics. Give full play to the role of coal trading centers, encourage product innovation and online trading, continuously deepen the construction of the coal market system, and promote the improvement of a unified national coal trading market.
V. Construcción de un Sistema de Consumo de Carbón Diversificado y Eficiente
(X) Implementar continuamente el control total del consumo de carbón en áreas clave para la prevención y el control de la contaminación atmosférica. Reforzar el control en origen de los nuevos proyectos que utilizan carbón. Los proyectos nuevos, renovados y ampliados que utilizan carbón deben cumplir con los requisitos del nivel de desempeño ambiental A e implementar una sustitución de carbón igual o menor, de conformidad con la ley. Los proyectos con planes de sustitución incompletos no serán aprobados. Utilizar plenamente la capacidad de calefacción de las centrales de cogeneración de 300.000 kilovatios o más. Para finales de 2025, completar el cierre o la integración de las calderas de carbón y las unidades de generación de energía a carbón obsoletas (incluidas las centrales eléctricas propias) dentro de un radio de calefacción de 30 kilómetros. Reforzar la programación diaria, los sistemas de alerta temprana y las inspecciones de trabajo para la reducción y la sustitución del consumo de carbón en áreas clave.
(XI) Promote pollution and carbon reduction in the coal-fired power industry. Coordinate the needs for electricity and heat, the construction of transmission channels, the supporting infrastructure for new energy sources, load-side regulation capacity, and energy conservation, emission reduction, and carbon reduction requirements to rationally plan and construct clean and efficient coal-fired power projects. Except for necessary heating units, newly constructed coal-fired power projects should adopt advanced units with large capacity, high parameters, low energy consumption, and good regulation capabilities. Continuously promote energy conservation and consumption reduction retrofits, heating system retrofits, and flexibility retrofits for coal-fired power plants. Carry out low-carbon retrofits and construction of coal-fired power plants, and encourage the planning and construction of carbon dioxide capture devices in coal-fired power projects. Support the implementation of clean energy substitution for self-owned coal-fired units. Steadily and orderly carry out the work of eliminating outdated coal-fired power production capacity.
(XII) Improve coal efficiency in key industries. Regularly update benchmark and baseline levels for clean and efficient coal utilization in key areas. New coal-using projects should, in principle, meet the benchmark levels. Existing projects that do not meet the baseline levels should be upgraded and transformed. Outdated production capacity should be eliminated in accordance with laws and regulations. Strengthen the tracking of coal-using technologies in major coal-consuming industries, promptly formulate and revise technical standards, and dynamically eliminate outdated coal-using technologies and equipment that do not meet the requirements. Implement clean energy substitution and comprehensive energy-saving and environmental protection transformation of coal-fired boilers and industrial kilns, and promote the development and application of clean and efficient combustion technologies. Promote high-quality ultra-low emission transformation in key industries such as steel, cement, and coking.
(XIII) Orderly Development of Coal Raw Material Utilization. Strengthen innovation in the application of new coal-based materials, optimize and adjust the product structure, and accelerate the development and application of high-end chemical products such as new coal-based synthetic materials, advanced carbon materials, and biodegradable materials. Accelerate the construction of strategic coal-to-oil and gas bases. Strengthen the production capacity and technology reserves of coal-to-oil and gas. Promote the coupled development of coal chemical industry with green electricity, green hydrogen, energy storage, carbon dioxide capture, utilization, and storage, create a low-carbon and circular coal high-efficiency conversion industrial chain, and promote the high-end, diversified, and low-carbon development of the coal chemical industry.
(XIV) Strengthen comprehensive management of scattered coal use. Adhere to the principle of establishing new systems before eliminating old ones, and orderly carry out the replacement of scattered coal use on the basis of ensuring a safe and stable energy supply. Under the premise of securing gas sources, promote "coal-to-gas" and "coal-to-electricity" conversions according to local conditions, and encourage the use of industrial waste heat, combined heat and power, and clean energy sources such as geothermal and solar thermal to replace the use of scattered coal. Steadily promote clean heating in rural areas and gradually reduce coal use in agricultural production. By the end of 2025, scattered coal use in the plains areas of key air pollution prevention and control areas will be basically eliminated.
(XV) Promote the graded and graded utilization of coal. Improve the quality standards for commercial coal and strengthen coal quality supervision throughout the entire process of production, storage, transportation, and utilization. Encourage the import of high-quality coal. Local governments and enterprises should clarify the minimum quality requirements for thermal coal based on their actual conditions. Long-term contracts for thermal coal should include clear quality clauses and be included in performance supervision. Accelerate the protective mining and high-value utilization of scarce and special coal resources such as oil-rich coal. Key regions should establish and improve special utilization plans and promote their implementation to promote the integrated development of graded and graded utilization with coal chemical industry, power generation, and other industries.
VI. Safeguard Measures
(XVI) Strengthen policy support. Implement key tasks related to supporting the construction of major projects and promote the construction of low-carbon demonstration projects for eligible coal-fired power units. Improve and refine relevant financial policies to guide and attract social capital to participate extensively in the clean and efficient utilization of coal. Guide banking financial institutions to increase credit support for eligible green and low-carbon transformation projects in accordance with market-oriented and rule-of-law principles. Coal mines adopting green and efficient production methods such as backfilling mining and intelligent transformation will receive policy support for capacity replacement. The leading role of central enterprises will be leveraged, and enterprises that achieve outstanding results in promoting the clean and efficient utilization of coal will receive certain policy incentives in performance evaluations.
(XVII) Strengthen technological innovation and transformation and application. Strengthen basic research and core technology breakthroughs in the clean and efficient utilization of coal, encourage in-depth cross-sectoral innovation cooperation among enterprises, research institutions, and universities, fully leverage the role of science and technology innovation platforms, and improve the level of independently controllable key core technologies and equipment. Support qualified regions and enterprises in carrying out major technology promotion and accelerate the transformation and application of scientific and technological achievements. Conduct evaluations of clean and efficient coal utilization projects and actively promote the construction of technological transformation and upgrading projects.
(XVIII) Strengthen Organization and Implementation. The National Development and Reform Commission (NDRC) and the National Energy Administration (NEA), together with relevant departments, will strengthen overall coordination, conduct assessments and supervision, and promptly coordinate and resolve outstanding issues. All regions should refine policies and measures according to local conditions and rigorously supervise their implementation. Industry associations should play a guiding role and do a good job in standard formulation and revision, technology promotion, and other related work. All relevant parties should explore innovations, actively promote and guide the public, and create a favorable atmosphere for promoting the clean and efficient utilization of coal.
National Development and Reform Commission
Ministry of Industry and Information Technology
Ministry of Natural Resources
Ministry of Ecology and Environment
Ministry of Transport
National Energy Administration
September 11, 2024
(Source: NDRC website)