The Ministry of Transport and ten other departments have issued guidelines on promoting the integrated development of transportation and energy. The guidelines state that by 2035, a comprehensive integration and interaction between transportation and the new energy system will be promoted, and a transportation energy consumption system will be initially established, primarily based on clean and low-carbon energy consumption, supported by technological innovation, and oriented towards green, smart, and resource-efficient practices. The proportion of electricity in the terminal energy consumption of the transportation industry will remain high, and green electricity generated from transportation infrastructure will be primarily consumed locally.
The following is the original text:
Guidelines on Promoting the Integrated Development of Transportation and Energy by the Ministry of Transport and Ten Other Departments
To the transportation, development and reform, industry and information technology, natural resources, energy, railway, civil aviation, and postal administration authorities of all provinces, autonomous regions, municipalities directly under the Central Government, the Xinjiang Production and Construction Corps, and cities specifically designated in the state plan, as well as the power companies of the State Grid Corporation of China and the China Southern Power Grid Co., Ltd. in all provinces, autonomous regions, and municipalities directly under the Central Government:
To accelerate the construction of a strong transportation nation and a new energy system, promote the integrated development of the transportation infrastructure network and the energy network, and ensure national energy security, the following opinions are hereby proposed on promoting the integrated development of transportation and energy.
I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, and thoroughly implementing the spirit of the 20th CPC National Congress and the second and third plenary sessions of the 20th CPC Central Committee, we will adhere to the principles of collaborative linkage, overall planning, government guidance, and market orientation. We will accelerate the development and utilization of clean energy in transportation infrastructure, promote the green and low-carbon substitution of transportation power, strengthen the guarantee of clean energy for transportation, and provide strong support for actively and steadily advancing carbon peaking and carbon neutrality in the transportation sector, accelerating the construction of a strong transportation nation, and comprehensively building a modern socialist country.
By 2027, a multi-departmental collaborative mechanism for the integrated development of transportation and energy will be basically formed, and the policy, regulatory, standard, and technical equipment systems will be gradually improved. The proportion of electricity in the terminal energy consumption of the transportation industry will reach 10%. The installed power generation capacity of non-fossil energy along transportation infrastructure will be no less than 5 million kW, and the proportion of local consumption will steadily increase. The proportion of NEVs among newly added vehicles will increase year by year, and the production capacity of green fuels for transportation will significantly improve.
By 2035, a comprehensive integration and interaction between transportation and the new energy system will be promoted, and a transportation energy consumption system will be initially established, primarily based on clean and low-carbon energy consumption, supported by technological innovation, and oriented towards green, smart, and resource-efficient practices. The proportion of electricity in the terminal energy consumption of the transportation industry will remain high, and green electricity generated from transportation infrastructure will be primarily consumed locally. Battery electric vehicles (BEVs) will become the mainstream of newly sold vehicles, and the large-scale application of new energy heavy-duty trucks for commercial operations will be promoted. The supply system for green fuels in transportation will be basically established.
II. Strengthening the Coordination of Transportation and Energy Infrastructure Planning
(1) Promoting the coordination and interaction between transportation and energy infrastructure planning. In relevant national plans, strengthen the comprehensive development and utilization of clean energy in the transportation sector. Conduct a survey of new energy resources along transportation infrastructure. Coordinate factors such as the natural endowment of clean energy, energy demand, and construction conditions to promote the formulation of provincial-level plans for the development and utilization of clean energy in transportation infrastructure, and ensure alignment with relevant national and provincial plans.
(2) Coordinating the planning of a clean energy supply guarantee system for transportation. Develop a network plan for charging (swapping) stations for road and waterway vehicles, strengthen the coordinated layout with power grid planning, and enhance the local guarantee level of clean energy. Improve the planning of a green fuel refueling system for vehicles and ships, and systematically promote the development of green fuel refueling facilities and equipment for vehicles and ships. Develop a plan for railway electrification transformation and promote new models of clean energy power supply.
III. Optimizing the Development and Management of Clean Energy in Transportation Infrastructure
(3) Strengthening the guarantee of elements for clean energy development in transportation infrastructure. Strengthen the guarantee of land and sea resources, and encourage the development of clean energy using unused land and stock land around transportation infrastructure, subject to compliance with national land spatial planning and ecological environmental protection requirements. Strengthen the integrated design of transportation and energy infrastructure, and promote the shared use of resources such as channels, pipe corridors, and poles and towers between transportation and energy infrastructure. Promote the optimization and improvement of annual clean energy development plans in various regions, and provide support for clean energy development projects in transportation infrastructure in terms of planning objectives, project inclusion, and grid connection. Strengthen the construction of distribution networks along transportation infrastructure and continuously improve the reliability and comprehensive carrying capacity of distribution network power supply.
(4) Innovating the management model for clean energy development in transportation infrastructure. In the feasibility studies of transportation infrastructure projects, add a special chapter on clean energy development and utilization according to the actual situation of the project. Encourage the synchronous development and investment attraction of transportation and clean energy infrastructure. For clean energy development projects relying on the same transportation infrastructure built by the same investor, the relevant project approval (filing) authorities may uniformly handle the approval (filing) procedures in accordance with the law. For new, reconstructed, or expanded clean energy development and utilization projects in transportation infrastructure, the road construction permits may be handled simultaneously during the construction of the main part of the project.
IV. Promoting the Integrated Construction of Transportation and Energy Infrastructure
(5) Safely and orderly developing clean energy in railway infrastructure. Make full use of resources such as waiting halls, freight yards, station buildings, and railway lines, comprehensively consider the impact of the light environment and safety, carry out PV transformation of eligible existing stations, and build PV roofs and PV carports. Reserve the basic conditions for the installation of PV power generation on the roofs of newly built large railway stations and encourage the application of clean energy in stations.
(6) Comprehensively promoting the development and utilization of clean energy in highway infrastructure. In accordance with the principles of compliance with laws and regulations and building wherever feasible, and on the premise of ensuring safety, make full use of service areas, toll stations, maintenance work areas, monitoring centers along expressways and other highways, as well as the land of former provincial toll stations, slopes, tunnel entrances and exits, isolation belts, interchanges, and ramp circles to build clean energy development and utilization projects. Actively promote new technologies such as flexible power transmission and distribution, intelligent regulation, grid-forming ESS, and shallow geothermal utilization, and support the planning and construction of integrated generation-grid-load-storage-charging projects along highways. Build charging (swapping) stations, gas stations, and hydrogen refueling stations along highways, in urban surrounding areas, and at distribution centers. Promote the direct local charging of green electricity for NEVs at service facilities along highways and increase the proportion of green electricity consumption for NEVs.
(7) Promoting the comprehensive utilization of clean energy in ports and waterways according to local conditions. Based on the existing conditions of port terminals and waterway canals, and on the premise of ensuring the safety of port operations and ship navigation, rely on port basins, warehouses, breakwaters, etc., to promote the local development and utilization of new energy sources such as ocean energy, PV, and wind power according to local conditions. Encourage container hub seaports to scrap and replace container trucks within ports with new energy and clean energy vehicles. Rely on port facilities to layout and build ship charging (swapping) stations and refueling stations.
(8) Accelerating the development and utilization of clean energy in hub stations. Consider the intelligent transformation and upgrading of freight hubs, freight yards, passenger stations, bus parking lots, etc., as well as the energy demand for cold chain transportation, vehicle charging (swapping), etc., scientifically utilize resources such as factory roofs and land within hub stations to develop distributed new energy, encourage the use of renewable energy sources such as geothermal energy and air energy for heating and cooling in transportation hub stations, and reasonably configure new-type energy storage and flexible hydrogen production resources.
V. Promoting the Efficient and Stable Operation of Transportation and Energy Infrastructure
(9) Enhancing the resilience of the transportation energy system. Encourage the development of local consumption of new energy within the road area of transportation infrastructure, optimize the allocation of flexible regulation resources such as new-type energy storage and flexible hydrogen production, accelerate the demonstration and application of new technologies, equipment, and models such as flexible new energy aggregation and connection, intelligent microgrids, multi-source conversion and multi-energy complementarity, vehicle-grid interaction, and virtual power plants, and improve the comprehensive carrying capacity of distribution networks along transportation infrastructure.
(10) Improving the emergency response capability of the transportation energy system. Strengthen the construction of fault detection, early warning, and recovery capabilities of the transportation energy system to effectively enhance its ability to withstand risks and disasters. Explore the establishment of a green transportation emergency power system based on grid-forming technology to gradually improve the safety and reliability of the energy supply for transportation. Along transportation infrastructure in areas prone to natural disasters, build a batch of energy service facilities with dual functions for both peacetime and emergency use, integrating functions such as clean energy power generation, energy storage, and satellite communication to meet the needs of temporary settlement, energy supply, material support, and emergency communication. Promote the use of mobile energy storage charging vehicles and emergency mobile energy storage facilities to ensure the energy supply for transportation during peak charging periods such as holidays.
(11) Strengthening the coordination and interaction between the transportation infrastructure network and the energy network. Promote the establishment of an information interaction and sharing mechanism between the transportation infrastructure network and the energy network, and strengthen the big data analysis and forecasting of transportation energy supply and demand. Accelerate the deep participation of the transportation energy system in the operation and regulation of the power system. Vigorously promote intelligent charging facilities and vehicle-grid interaction technologies, incorporate vehicle-grid interaction into power demand-side management, and advance it in coordination with the construction of the power market.
VI. Promoting the Use of New Energy and Clean Energy Transportation Equipment
(12) Promoting the green and low-carbon transformation of railway rolling stock. Promote the energy-saving transformation and low-carbon upgrading of high-energy-consuming and high-emission rolling stock, establish a mechanism for the replacement of old rolling stock, and encourage and guide the orderly withdrawal of high-energy-consuming and high-emission rolling stock. Improve the monitoring and evaluation system for the energy consumption and emissions of rolling stock, conduct research on a carbon credit management system for railway equipment, promote the application of railway diesel locomotives equipped with a new generation of low-emission and low-fuel-consumption medium- and high-speed diesel engines, and promote the large-scale application of railway new energy rolling stock such as long-range electric, hydrogen, and hybrid-powered vehicles and supporting energy supply facilities in areas with weak power grid structures.
(13) Accelerating the promotion of NEVs. Accelerate the electrification of vehicles in the public sector, continuously promote the application of NEVs in urban public transportation, taxis, postal and express delivery, urban freight distribution, ports, airports, and other fields, promote the elimination and replacement of commercial vehicles meeting National IV emission standards or below, promote the large-scale application of new energy heavy-duty trucks (trucks) according to local conditions, and develop zero-emission freight transportation.
(14) Promoting the development of green and low-carbon ships. Scrap and replace old commercial vessels with high energy consumption and high emissions, and vigorously support the development of new energy and clean energy-powered ships. Explore the shared use of movable ship equipment such as standardized fuel tanks and box-type power supplies, support the application of PV power generation technology on inland river ships, and actively promote the application of clean energy sources such as electricity, liquefied natural gas (LNG), biodiesel, green methanol, green ammonia, and green hydrogen on ships.
(15) Developing new energy aircraft. Promote the application and popularization of new energy aircraft and increase support for the development of new energy aircraft. Encourage regions with a foundation and conditions to establish test bases for key technologies, product solutions, and safety verification of green aviation. Accelerate the establishment of an airworthiness certification system and a continuous airworthiness system for new energy aircraft.
(16) Promoting the development of green and low-carbon postal and express delivery. Promote the use of new energy postal and express delivery vehicles, and increase the promotion and application of drones and unmanned vehicles on the premise of ensuring safety. Actively promote the use of sustainable aviation fuel in air transportation for mail and express delivery. Eliminate old sorting equipment, promote the iteration of intelligent sorting equipment, improve sorting efficiency, and promote the intelligent and low-carbon upgrading of equipment.
VII. Build a Safe and Reliable Green Fuel System for Transportation
(17) Continuously enhance the supply capability of green fuels for transportation. Accelerate breakthroughs in technological bottlenecks for green fuel production and gradually improve the efficiency of green fuel preparation. Promote the construction of a number of green fuel production sites and accelerate the enhancement of the supply capability of liquefied natural gas (LNG), biodiesel, green methanol, green ammonia, hydrogen energy, bio-jet fuel, etc. Encourage the production of hydrogen from clean energy sources based on local conditions, leveraging transportation infrastructure.
(18) Gradually improve the storage, transportation, and refueling network for green fuels in transportation. Coordinate the demand for green fuels in transportation equipment and actively promote the construction of storage, transportation, and refueling facilities for green fuels in key regions. Build comprehensive energy supply stations in service areas, freight terminals, ports, airports, hubs, and other locations that meet the conditions, ensuring safety. Actively and steadily promote diversified hydrogen storage and transportation methods.
VIII. Cultivate a Modern Industrial Integration System
(19) Encourage the promotion of new models and the incubation of emerging industries. Aggregate resources such as distributed power supplies, EVs, and charging (swapping) facilities to create virtual power plants in the transportation sector. Guide innovations in business models such as battery-electric vehicle separation, vigorously develop emerging industries such as battery asset management and financing leasing of new energy transportation equipment, and build an intelligent integration industry innovation platform for vehicles-stations-piles-networks. Promote the innovative development of a pan-automotive new ecosystem featuring deep integration of NEVs with smart energy, intelligent transportation, and smart cities.
(20) Promote the strengthening and extension of the industrial chain between transportation and energy. Accelerate the cultivation of industries such as new-type power batteries and key materials, hydrogen fuel cells, and green fuels to ensure a high-quality and stable supply of upstream raw materials and parts. Promote the industrial upgrading of clean energy power generation facilities, new energy and clean energy transportation equipment, etc., and form a technological equipment system with independent intellectual property rights. Actively expand market demand and incubate and cultivate industries such as battery dismantling and recycling, reuse of retired PV modules, and the aftermarket for NEVs. Strengthen advantageous industrial clusters, enhance cross-sector cooperation across the upstream, midstream, and downstream of the industry chain, and continuously strengthen the resilience of the industrial chain and supply chain.
IX. Increase Policy Support
(21) Improve supporting and guaranteeing policies. Encourage the local consumption of new energy by transportation infrastructure within the scope of transportation corridors. Support the participation of distributed new energy power generation projects along transportation infrastructure in market-oriented transactions, and encourage clean energy power generation projects along transportation infrastructure to carry out direct connections or sign multi-year power purchase and sale agreements based on local conditions to promote the local consumption of distributed new energy. Exempt centralized charging (swapping) facilities subject to two-part tariff electricity prices from demand (capacity) electricity charges before 2030. Accelerate the construction of the electricity spot market and enhance users' enthusiasm for participating in vehicle-grid interaction through time-of-use electricity prices. Research and formulate supportive policies for the preparation of green fuels. Improve the institutional mechanisms for government investment to effectively drive social investment, promote the fair opening of competitive infrastructure sectors to business entities, and standardize the implementation of new mechanisms for government-social capital cooperation.
(22) Increase support for capital elements. Leverage the guiding and driving role of central funds, make good use of various funding channels such as local government special bonds, green credit, green bonds, green funds, and re-loans for scientific and technological innovation and technological transformation, and implement tax incentives for new energy, clean energy vehicles and vessels, and charging (swapping) stations. Encourage NEVs, etc., to participate in electricity market transactions and green electricity certificate trading through aggregation methods.
(23) Strengthen support for standards and specifications. Promote the formulation and revision of relevant standards for the development and utilization of clean energy in transportation infrastructure, electric heavy-duty trucks, hydrogen-powered heavy-duty trucks, electric vessels, vehicle-grid interaction, power batteries, charging (swapping) stations, hydrogen refueling stations, etc., and improve standards for safety, energy conservation, and environmental protection. Issue interface standards and communication protocols for energy supply facilities and new energy vessels, and coordinate the promotion of the public service of energy supply for new energy vessels. Promote the formulation of safety operation and inspection standards for hydrogen refueling of new energy vessels. Research and issue standards for the "production, storage, and use" of green fuels in transportation. Promote mutual recognition of international standards, facilitate cooperation in the field of international standards, and accelerate the improvement of the certification system for green fuels in transportation.
(24) Promote scientific and technological innovation. Establish a research and development platform for technology and equipment integrating transportation and energy, and promote cross-industry, cross-departmental, and cross-regional collaborative innovation. Strengthen technological innovation in the field of transportation and energy integration, support the research and development of key core technologies such as vehicle-grid interaction, intelligent microgrids, advanced intelligent energy storage systems, clean energy transportation equipment, and sustainable fuels for transportation, and promote breakthroughs and applications of major original scientific achievements.
(25) Strengthen pilot leadership. Launch the "Qiyao" and "Chengfeng" initiatives for transportation infrastructure. Organize and implement a number of innovative projects for the integrated development of transportation and energy in conjunction with the construction of a transportation powerhouse, the new energy system, fuel cell vehicles, vehicle-grid interaction, intelligent microgrids, etc. Rely on major projects such as the New Western Land-Sea Corridor, the Xinjiang coal outward transportation corridor, and the expansion and reconstruction of the main lines of national highways to create model (near-) zero-emission transportation corridors. Establish regional demonstration zones for the electrification of vessels in areas such as the Danjiangkou Reservoir area and the Yangtze River Delta. Construct a number of key projects such as (near-) zero-carbon service areas and ports.
X. Strengthen Organization and Implementation
All relevant units should strengthen planning and deployment, clarify work responsibilities, improve long-term mechanisms, and effectively implement the guidance in this document based on actual conditions. Improve the coordination mechanism for the integrated development of transportation and energy, strengthen cross-departmental cooperation, strengthen supervision and guidance, and form a joint effort. Strengthen publicity and training, build a cross-sector publicity and exhibition platform, strengthen international exchanges and cooperation, promote the sharing and mutual learning of experiences, and create a favorable atmosphere.
Ministry of Transport, National Development and Reform Commission, Ministry of Industry and Information Technology, Ministry of Natural Resources
National Energy Administration, National Railway Administration, Civil Aviation Administration of China, State Post Bureau
State Grid Corporation of China, China Southern Power Grid Co., Ltd.
March 26, 2025
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