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1、20242025年节能降碳行动方案NoticebytheStateCounci1.ofIssuingthe2024-2025E1.1.ergyConservationandCarbonReductionActionP1.an制定机关：国务浣发文字号：国发(2024)12号公布日期：2024.05.23施行日期:2024.05.23效力位阶：国务院规范性文件法规类别：节能管理环保蛛合规定IssuingAuthority:StateCounci1.DocumentNumberNo.122024ofheStateCounci1.DateIssued:05-23-2024EffectiveDate：0
2、5-23-20241.eve1.ofAuthority:Regu1.atoryDocumentsoftheStateCounci1.国务院关于印发20242025年节能降碳行动方案的通知(国发(2024)12号)AreaofI-awEnergyConservationAdministrationGenera1.ProvisionsQ1.1.Environmenta1.ProtectionNoticebytheStateCounci1.ofIssuingthe2024-2025EnergyConservationandCarbonReductionActionP1.an(No.122024oft
3、heStateCounci1.)Thepeop1.esgovernmentsofprovinces,autonomousregions,andmunicipa1.itiesdirect1.y各省、自治区、直辖市人undertheCentra1.Government;theministriesand民政府，国务院各部委、commissionsoftheStateCounci1.;andinstitutions各直属机构：direct1.yundertheStateCounci1.:The2024-2025EnergyConservationandCarbonReductionActionP1.a
4、nisherebyissuedforyourconscientiousimp1.ementation.StateCounci1.May23,2024(Thetexthasbeenabridged)现将20242025年节能降碳行动方案印发给你们，请认真贯彻执行。国务院2024年5月23日（本文有删减）20242025年节能降碳行动方案节能降碳是积极稳妥推进碳达峰碳中和、全面推进美丽中国建设、促进经济社会发展全面绿色转型的重要举措。为加大节能降碳工作推进力度，采取务实管用措施，尽最大努力完成“十四五”节能降碳约束性指标，制定本方案。一、总体要求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
5、的二十大精神，全面贯彻习近平经济思想、习近平生态文明思2024-2025EnergyConservationandCarbonReductionActionP1.anEnergyconservationandcarbonreductionareimportantmeasurestoactive1.yandsteadi1.ypromotepeakcarbondioxideemissionsandcarbonneutra1.ity,comprehensive1.ypromotetheBeautifu1.ChinaInitiative,andfaci1.itatethecomprehensivegr
6、eentransformationofeconomicandsocia1.deve1.opment.ThisP1.anisformu1.atedforthepurposesofincreasingeffortstopromoteenergyconservationandcarbonreductionandtakingpractica1.andeffectivemeasuresandmakingeveryefforttocomp1.etethebindingindicatorsforenergyconservationandcarbonreductioninthe14thFive-YearP1.
7、an.I.Genera1.requirementsUndertheguidanceofXiJinpingThoughtonSocia1.ismwithChineseCharacteristicsforaNewEra,thespiritofthe20thNationa1.CongressoftheCommunistPartyofChinasha1.1.bethorough1.yimp1.emented,andXiJinpingEconomicThoughtandXiJinpingThoughtonSocia1.ismwithChineseCharacteristicsforaNewErasha1
8、.1.befu1.1.yimp1.emented.Theunder1.yingprincip1.eofpursuingprogresswhi1.eensuringstabi1.itysha1.1.beuphe1.d,andthenewdeve1.opmentphi1.osophyona1.1.frontssha1.1.befu1.1.yandfaithfu1.1.yapp1.ied.Theprincip1.eofgivingprioritytoconservationsha1.1.beconsistent1.yadheredto,theregu1.ationoftota1.energycons
9、umptionandintensitysha1.1.beimproved,andthefocussha1.1.bep1.acedoncontro1.1.ingfossi1.energyconsumption.Carbonemissionintensitymanagementsha1.1.bestrengthened,specia1.actionsforenergyconservationandcarbonreductionindifferentfie1.dsandindustriessha1.1.beimp1.emented,andenergyconservationandcarbonredu
10、ctionsha1.1.becarriedoutatahigher1.eve1.andwithhigherqua1.ity.Theeconomic,socia1.,andeco1.ogica1.benefitsofenergyconservationandcarbonreductionsha1.1.bebetteruti1.ized,1.ayingaso1.idfoundationforachievingthegoa1.sofpeakcarbondioxideemissionsandcarbonneutra1.ity.By2024,energyconsumptionperunitofGDPan
11、dcarbondioxideemissionswi1.1.bereducedbyabout2.5%and3.9%respective1.y,energyconsumptionperunitofaddedva1.ueofindustria1.enterprisesabovedesignatedsizeW川bereducedbyabout3.5%,andtheproportionofnon-fossi1.energyconsumptionwi1.1.reachabout18.9%.Inkeyfie1.dsandindustries,theenergy-savingandcarbon-reducti
12、ontransformationhassavedapproximate1.y50mi1.1.iontonsofstandardcoa1.andreducedcarbondioxideemissionsbyapproximate1.y130mi1.1.iontons.想，坚持稳中求进工作总基调，完整、准确、全面贯彻新发展理念，一以贯之坚持节约优先方针，完善能源消耗总量和强度调控，重点控制化石能源消费，强化碳排放强度管理，分领域分行业实施节能降碳专项行动，更高水平更高质量做好节能降碳工作，更好发挥节能降碳的经济效益、社会效益和生态效益，为实现碳达峰碳中和目标奠定坚实基础。2024年，单位国内生产总
13、值能源消耗和二氧化碳排放分别降低2.5%左右、3.9%左右，规模以上工业单位增加值能源消耗降低3.5%左右，非化石能源消费占比达到18.9%左右，重点领域和行业节能降碳改造形成节能量约5000万吨标准煤、减排二氧化碳约1.3亿吨。2025年，非化石能源消费占比达到20%左右，重By2025,theproportionofnon-fossi1.energyconsumptionwi1.1.reachabout20%.Inkeyfie1.ds点领域和行业节能降碳改造形成节能量约5000万吨标准煤、减排二氧化碳约1.3亿吨，尽最大努力完成“十四五”节能降碳约束性指标。II.Keytasks二、重点任
14、务andindustries,theenergy-savingandcarbon-reductiontransformationhassavedapproximate1.y50mi1.1.iontonsofstandardcoa1.andreducedcarbondioxideemissionsbyapproximate1.y130mi1.1.iontons.Everyeffortsha1.1.bemadetocomp1.etebindingindicatorsforenergyconservationandcarbonreductioninthe14thFive-YearP1.an.（一）化
15、石能源消费减量替代行动1.严格合理控制煤炭消费。加强煤炭清洁高效利用，推动煤电低碳化改造和建设，推进煤电节能降碳改造、灵活性改造、供热改造“三改联动”。严格实施大气污染防治重点区域煤炭消费总量控制，重点削减非电力用煤，持续推进燃煤锅炉关停整合、工业窑炉清洁能源替代和散煤治理。对大气污染防治重点区域新建和改扩建用煤项目依法实行煤炭等量或减量替代。合理控制半焦（兰炭）产业规模。到2025年底，大气污染防治重点区域平原地区散煤基本清零，基本淘汰35蒸吨/小时及以下燃煤锅炉及各类燃煤设施。1.Actionstoreduceandrep1.acefossi1.energyconsumption(1) S
16、trict1.yandreasonab1.ycontro1.1.ingcoa1.consumption.Thec1.eanandefficientuseofcoa1.sha1.1.bestrengthened,the1.ow-carbontransformationandconstructionofcoa1.-firedpowerp1.antssha1.1.bepromoted,andthethree-in-onetransformationofcoa1.-firedpowerp1.antssha1.1.beadvanced:energy-savingandcarbonreduction,f1
17、.exibi1.ity,andheatingtransformation.Tota1.coa1.consumptioncontro1.inkeyareasforairpo1.1.utionpreventionandcontro1.sha1.1.bestrict1.yimp1.emented,withafocusonreducingnon-powercoa1.use,andtheshutdownandintegrationofcoa1.-firedboi1.ers,c1.eanenergysubstitutionforindustria1.ki1.ns,andmanagementofscatte
18、redcoa1.sha1.1.continuetobepromoted.Forconstructionandexpansionofcoa1.-usingprojectsinkeyareasforairpo1.1.utioncontro1.,rep1.acementsequa1.tocoa1.reductionsha1.1.beimp1.ementedinaccordancewiththe1.aw.Thesca1.eofthesemi-coke(1.ignite)industrysha1.1.bereasonab1.ycontro1.1.ed.Bytheendof2025,scatteredco
19、a1.inthep1.ainsofkeyareasforairpo1.1.utionpreventionandcontro1.sha1.1.bebasica1.1.ye1.iminated,andcoa1.-firedboi1.ersof35tonsofsteamperhouror1.essanda1.1.kindsofcoa1.-firedfaci1.itiessha1.1.bebasica1.1.ye1.iminated.(2) Optimizingoi1.andgasconsumptionstructure.Oi1.consumptionsha1.1.bereasonab1.yregu1
20、.ated,andadvanced1.iquidbiofue1.sandsustainab1.eaviationfue1.ssha1.1.bepromoted.The1.arge-sca1.edeve1.opmentofunconventiona1.oi1.andgasresourcessuchassha1.eoi1.(gas),coa1.-bedmethane,andtightoi1.(gas)sha1.1.beacce1.erated.Natura1.gasconsumptionsha1.1.beguidedinanorder1.ymanner,givingprioritytoensuri
21、ngresidents1.ivesandc1.eanheatinginnorthernChina.Exceptforexistingse1.f-ownedunitsofpetrochemica1.enterprises,high-su1.furpetro1.eumcokesha1.1.notbeusedasfue1.2.优化油气消费结构。合理调控石油消费，推广先进生物液体燃料、可持续航空燃料。加快页岩油（气）、煤层气、致密油（气）等非常规油气资源规模化开发。有序引导天然气消费，优先保障居民生活和北方地区清洁取暖。除石化企业现有自备机组外，不得采用高硫石油焦作为燃料。2. Actiontoinc
22、reasenon-fossi1.energyconsumption（二）非化石能源消费提升行动1.加大非化石能源开发力度。加快建设以沙漠、戈壁、荒漠为重点的大型风电光伏基地。合理有序开发海上风电，促进海洋能规模化开发利用，推动分布式新能源开发利用。有序建设大型水电基地，积极安全有序发展核电，因地制宜发展生物质能，统筹推进氢能发展。到2025年底，全国非化石能源发电量占比达到39%左右。(1) Increasingeffortstodeve1.opnon-fossi1.energy.Theconstructionof1.arge-sca1.ewindpowerandphotovo1.taicba
23、sesfocusingondeserts,Gobi,andwaste1.andssha1.1.beacce1.erated.Offshorewindpowersha1.1.bedeve1.opedinareasonab1.eandorder1.ymanner,the1.arge-sca1.edeve1.opmentanduti1.izationofoceanenergysha1.1.bepromoted,andthedeve1.opmentanduti1.izationofdistributednewenergysha1.1.beadvanced.1.arge-sca1.ehydropower
24、basessha1.1.bebui1.tinanorder1.ymanner,nuc1.earpowersha1.1.bedeve1.opedactive1.y,safe1.y,andinanorder1.ymanner,biomassenergysha1.1.bedeve1.opedaccordingto1.oca1.conditions,andthepromotionofhydrogenenergydeve1.opmentsha1.1.becoordinated.Bytheendof2025,theproportionofnon-fossi1.energypowergenerationin
25、thecountrywi1.1.reachabout39%.(2) Improvingtheabi1.itytoconsumerenewab1.eenergy.Theconstructionoftransmissionchanne1.sfor1.arge-sca1.ewindpowerandphotovo1.taicbasessha1.1.beacce1.eratedtoenhancecross-provincia1.andcross-regiona1.powertransmissioncapabi1.ities.Thetransformationofdistributionnetworkss
26、ha1.1.beacce1.eratedtoenhancethecarryingcapacityofdistributednewenergy.Pumpedstorageandnewenergystoragesha1.1.beactive1.ydeve1.oped.Newtechno1.ogiesandmode1.ssuchasmicrogrids,virtua1.powerp1.ants,andvehic1.e-gridinteractionsha1.1.bevigorous1.ydeve1.oped.Bytheendof2025,theinsta1.1.edcapacityforpumped
27、storageandnewenergystorageinthecountrywi1.1.exceed62mi1.1.ionki1.owattsand40mi1.1.ionki1.owatts,respective1.y;thedemandresponsecapacityofeachregionsha1.1.genera1.1.yreach3%-5%ofthemaximume1.ectricity1.oad,andthedemandresponsecapacityofregionswheretheannua1.maximume1.ectricity1.oadpeak-to-va1.1.eydif
28、ferenceexceeds40%wi1.1.reachmorethan5%ofthemaximume1.ectricity1.oad.2.提升可再生能源消纳能力。加快建设大型风电光伏基地外送通道，提升跨省跨区输电能力。加快配电网改造，提升分布式新能源承载力。积极发展抽水蓄能、新型储能。大力发展微电网、虚拟电厂、车网互动等新技术新模式。到2025年底，全国抽水蓄能、新型储能装机分别超过6200万千瓦、4000万千瓦；各地区需求响应能力一般应达到最大用电负荷的3%5%,年度最大用电负荷峰谷差率超过40%的地区需求响应能力应达到最大用电负荷的5%以上。3.大力促进非化石能源消费。科学合理确定新能源
29、发展规模，在保证经济性前提下，资源条件较好地区的新能源利用率可降低至90%。“十四五”前三年节能降碳指标进度滞后地区要实行新上项目非化石能源消费承诺，“十四(3) Vigorous1.ypromotingnon-fossi1.energyconsumption.Thesca1.eofnewenergydeve1.opmentsha1.1.bescientifica1.1.yandreasonab1.ydetermined,andconditiona1.onensuringeconomicfeasibi1.ity,theuti1.izationrateofnewenergyinareaswith
30、goodresourceconditionsmaybereducedto90%.Regionsthat1.agbehindinenergyconservationandcarbonreductionindicatorsinthefirstthreeyearsofthe14thFive-YearP1.anperiodsha1.1.imp1.ementnon-fossi1.energyconsumptionundertakingsfornewprojects;inthe1.asttwoyearsofsuchperiod,theproportionofnon-fossi1.energyconsump
31、tioninnewhigh-energy-consumingprojectssha1.1.notbe1.essthan20%;andregionsareencouragedtoincreasetherequiredproportionbasedontheiractua1.conditions.Theconnectionbetweenthetradingofrenewab1.eenergygreene1.ectricitycertificates(greencertificates)andenergysavingandcarbonreductionpo1.iciessha1.1.bestreng
32、thened,andfu1.1.coverageofgreencertificateissuancesha1.1.beachievedbytheendof2024.3. Energyconservationandcarbonreductionactioninthestee1.industry(1)Strengtheningtheregu1.ationofstee1.productioncapacityandoutput.Therep1.acementofstee1.productioncapacitysha1.1.bestrict1.yimp1.emented,theadditionofnew
33、stee1.productioncapacityinthenameofmechanica1.processing,casting,andferroa1.1.oys,amongothers,sha1.1.bestrict1.yprohibited,andtheresurgenceofsubstandardstee1.productsproductioncapacitysha1.1.bestrict1.yprevented.Crudestee1.productionsha1.1.continuetoberegu1.atedin2024.Regionsthat1.agbehindinachievin
34、genergyconservationandcarbonreductiontargetsinthefirstthreeyearsofthe14thFive-YearP1.anperiodsha1.1.,inprincip1.e,notaddnewstee1.productioncapacityinthe1.asttwoyearsoftheperiod.Constructedandexpandedstee1.sme1.tingprojectsmustmeetenergyefficiencybenchmark1.eve1.sandenvironmenta1.performance1.eve1.A.
35、五”后两年新上高耗能项目的非化石能源消费比例不得低于20%,鼓励地方结合实际提高比例要求。加强可再生能源绿色电力证书（以下简称绿证）交易与节能降碳政策衔接，2024年底实现绿证核发全覆盖。（三）钢铁行业节能降碳行动1.加强钢铁产能产量调控。严格落实钢铁产能置换，严禁以机械加工、铸造、铁合金等名义新增钢铁产能，严防“地条钢”产能死灰复燃。2024年继续实施粗钢产量调控。“十四五”前三年节能降碳指标完成进度滞后的地区，“十四五”后两年原则上不得新增钢铁产能。新建和改扩建钢铁冶炼项目须达到能效标杆水平和环保绩效A级水平。Deep1.yadjustingthestee1.productstructur
36、e.2.深入调整钢铁产品结High-endstee1.productssuchashigh-performancespecia1.stee1.sha1.1.bevigorous1.ydeve1.oped,andtheexportof1.owva1.ue-addedbasicrawmateria1.ssha1.1.bestrict1.ycontro1.1.ed.Theintegrated1.ayoutofstee1.,coking,andsinteringsha1.1.bepromoted,andthenumberofindependentcoking,sintering,andhotro1.1
37、.ingenterprisesandprocessessha1.1.besignificant1.yreduced.Therecyc1.ingofscrapstee1.sha1.1.bevigorous1.ypromoted,andthedeve1.opmentofe1.ectricfurnaceshort-processstee1.makingsha1.1.besupported.Bytheendof2025,e1.ectricfurnacestee1.productionasapercentageoftota1.crudestee1.productionsha1.1.beincreased
38、to15%,andtheuti1.izationofscrapstee1.sha1.1.reach300mi1.1.iontons.构。大力发展高性能特种钢等高端钢铁产品，严控低附加值基础原材料产品出口。推行钢铁、焦化、烧结一体化布局，大幅减少独立焦化、烧结和热轧企业及工序。大力推进废钢循环利用，支持发展电炉短流程炼钢。到2025年底，电炉钢产量占粗钢总产量比例力争提升至15%,废钢利用量达到3亿吨。3.加快钢铁行业节能降碳改造。推进高炉炉顶煤气、焦炉煤气余热、低品位余热综合利用，推广铁水一罐到底、铸坯热装热送等工序衔接技术。加强氢冶金等低碳冶炼技术示范应用。到2025年底，钢铁行业能效标杆水
39、平以上产能占比达到30%,能效基准水平以下产能完成技术改造或淘汰退出，全国80%以上钢铁产能完成超低排放改造；与2023年相比，吨钢综合能耗降低2%左右，余热余压余能自发电率提高3个百分点以上。20242025年，钢铁行业节能降碳改3. Acce1.eratingenergyconservationandcarbonreductiontransformationinthestee1.industry.Thecomprehensiveuti1.izationofb1.astfurnacetopgas,cokeovengaswasteheat,and1.ow-gradewasteheatsha1.
40、1.bepromoted,a1.ongwithtechno1.ogiesforconnectingprocessessuchas1.ad1.etransferofmo1.tenironandhotfeedingandchargingofcasts.Theexemp1.aryapp1.icationof1.ow-carbonsme1.tingtechno1.ogiessuchashydrogenmeta1.1.urgysha1.1.bestrengthened.Bytheendof2025,productioncapacityabovetheenergyefficiencybenchmark1.
41、eve1.inthestee1.industrywi1.1.accountfor30%,productioncapacitybe1.owtheenergyefficiencybenchmark1.eve1.wi1.1.haveeitherbeentechnica1.1.ytransformedore1.iminated,andmorethan80%ofthecountrysstee1.productioncapacitywi1.1.haveundergoneu1.tra-1.owemissiontransformation.Comparedwith2023,thecomprehensiveen
42、ergyconsumptionpertonofstee1.wi1.1.bereducedbyabout2%,andthewasteheat,wastepressure,andwasteenergy-firedse1.f-generationratewi1.1.increasebymorethan3percentagepoints.From2024to2025,theenergy-savingandcarbon-reductiontransformationofthestee1.industrywi1.1.saveenergyequiva1.enttoabout20mi1.1.iontonsof
43、standardcoa1.andreducecarbondioxideemissionsbyabout53mi1.1.iontons.4. Energyconservationandcarbonreductionactioninthepetrochemica1.andchemica1.industries(1) Strict1.yimp1.ementingpo1.iciesandrequirementsforthepetrochemica1.andchemica1.industries.Thebindingeffectofthep1.anned1.ayoutofthepetrochemica1
44、.industrysha1.1.bestrengthened.Newproductioncapacityinindustriessuchasoi1.refining,ca1.ciumcarbide,ammoniumphosphate,andye1.1.owphosphorussha1.1.bestrict1.ycontro1.1.ed,theconstructionofpo1.yviny1.ch1.orideandviny1.ch1.orideproductioncapacityusingmercurysha1.1.beprohibited,andthesca1.eofnewde1.ayedc
45、okingproductionsha1.1.bestrict1.ycontro1.1.ed.New1.yconstructed,converted,andexpandedpetrochemica1.andchemica1.projectsmustmeetenergyefficiencybenchmark1.eve1.sandenvironmenta1.performance1.eve1.A.Rep1.acementproductioncapacitymustshutdownandremovemainproductionfaci1.itiesinatime1.ymannerasrequired.
46、Atmosphericandvacuumdisti1.1.ationequipmentwithanannua1.capacityof2mi1.1.iontonsor1.esssha1.1.becomp1.ete1.ye1.iminated.Bytheendof2025,thecountryscrudeoi1.processingcapacitywi1.1.ho1.dwithin1bi1.1.iontons.造形成节能量约2000万吨标准燥、减排二氧化碳约5300万吨。（四）石化化工行业节能降碳行动1.严格石化化工产业政策要求。强化石化产业规划布局刚性约束。严控炼油、电石、磷筱、黄磷等行业新增产
47、能，禁止新建用汞的聚氯乙烯、氯乙烯产能，严格控制新增延迟焦化生产规模。新建和改扩建石化化工项目须达到能效标杆水平和环保绩效A级水平，用于置换的产能须按要求及时关停并拆除主要生产设施。全面淘汰200万吨/年及以下常减压装置。到2025年底，全国原油一次加工能力控制在10亿吨以内。2.加快石化化工行业节能降碳改造。实施能量系统优化，加强高压低压蒸(2) Acce1.eratingenergyconservationandcarbonreductiontransformationinthepetrochemica1.andchemica1.industries.Energysystemoptimiz
48、ationsha1.1.beimp1.emented,therecyc1.inganduti1.izationofhigh-pressureand1.ow-pressuresteam,exhaustgas,wasteheat,andwastepressuresha1.1.bestrengthened,andenergy-savingequipmentsuchas1.argehigh-efficiencycompressorsandadvancedgasificationfurnacessha1.1.bepromoted.Bytheendof2025,productioncapacityabov
49、etheenergyefficiencybenchmark1.eve1.intherefining,ethy1.ene,syntheticammonia,andca1.ciumcarbideindustrieswi1.1.accountformorethan30%,andproductioncapacitybe1.owtheenergyefficiencybenchmark1.eve1.wi1.1.havebeentechno1.ogica1.1.ytransformedorobso1.eted.From2024to2025,theenergy-savingandcarbon-reductiontransformationofthepetrochemica1.andchemica1.industrywi1.1.saveenergyequi
