双碳战略下中国煤电低碳化转型政策与行动
Low-carbon Transformation of China’s Coal Power
under the “Dual Carbon” Strategy：
Polices and Actions
Dr. *YI Ye and Dr. BO Yu
Power Generation Engineering Consultancy Department
China Electric Power Planning and Engineering Institute
September 2, 2024

目录 CONTENTS
一

Introduction to Chinese Coal-fired Power Industry

二Policies and Actions under the “Dual Carbon” Goals

三

Future of Chinese Coal-fired Power Industry2

目录 CONTENTS
一

Introduction to Chinese Coal-fired Power Industry

二Policies and Actions under the “Dual Carbon” Goals

三

Future of Chinese Coal-fired Power Industry

31. Coal-fired Power: installed capacity and power generation•2023年煤电装机1165吉瓦，发电5379太瓦时。煤电装机占比、发电量占比逐年下降。2023年，煤电装机占比为39.9%，首次降低到40%以下（2014年为
60.9%），煤电发电量占比57.9%（2014年为70.9%）。

•Coal-fired power: generated 5379 TWh electricity with a capacity of 1165 GW in 2023.
Installed capacity share and power generation ratio are decreasing year by year, whichfell from 60.9% and 70.9% to 39.9% (lowest in history) and 57.9% during 2014-2023.

Installed Capacity (left) and Power Generation Mix (right) in 2023

4

1. Coal-fired Power: unit size and steam type•现役煤电机组：单机参数高，容量大。2023年超超临界和超临界机组占比合计69%；60万及以上机组占比55%。

•Coal Power Fleet in 2023: high efficiency and large-scale units take up more than halfof the coal fleet.
••

Steam type: ultra-supercritical, 31%; supercritical, 24%; subcritical and below, 45%
Unit size: ≥ 1 GW, 17%; 600-1000 MW, 38%; 300-600 MW, 34%; < 300 MW, 11%

11%

17%

31%

45%
34%
38%
24%
100万及以上 (≥1000MW)
60-100万 (600-1000MW)
30-60万 (300-600MW)
30万以下 (<300MW)

超超临界 Ultra-supercritical超临界 Supercritical
亚临界及以下Subcritical and below

煤电机组容量分类占比(左）、参数分类占比（右）The Composition of China’s Coal Power Fleet showing Unit Size(left) andSteam Type(right) in 2023

5

1. Coal-fired Power: low-emission•

中国已建成全球最大清洁煤电供应体系。6000千瓦及以上电厂平均供电煤耗从2003年的380克标煤/千瓦时下降到2023年的302克标煤/千瓦时。

•China has built the world’s largest clean coal-fired power supply system. The
average coal consumption rate for power supply from plants with a capacity of over
6MW gradually declined from 380 gce/kWh in 2003 to 302 gce/kWh in 2023.

400
380360340

320

380 376

370 366

Unit: gce/kWh356345

340

333 330326

321 318315 312309 308 306.4

300

305.5

302

280

2003-2023年煤电平均供电煤耗Average Coal Consumption Rate for Power Supply (2003-2023)

6

1. Coal-fired Power: low-emission•度电碳排放持续降低。但仅优于日本，次于欧美国家，仍有较大提升空间。

•The carbon emission factor is decreasing over time, however, it is still muchhigher than that of the Western countries and needs improvement.

Unit: g-CO2/kWh

1000

Unit: g-CO2/kWh

800

600
500
400
300
200
100
0600

400
200

2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
2022
2023

0煤电

Coal-fired Power

全口径电量

Power Sector

中国 美国 日本 欧盟 德国 法国
China U.S. Japan EU Germany France煤电及全口径发电量度电碳排放各国全口径发电量度电碳排放比较

Carbon Emission Factor of the Coal-fired Powerand Power Sector

Comparison of Carbon Emission Factor of thePower Sector
71. Coal-fired Power: low-emission•中国燃煤电厂超低排放标准已经是世界上最严格的排放标准。

•Emission standards for air pollutants from coal-fired power plants have been tightenedover the years. China's ultra-low emission standards are one of the most rigorous in theworld.

•2023年烟尘、二氧化硫、NOx排放分别为0.017g/kWh、0.083g/kWh、0.133g/kWh，比2014年分别下降95%、95.5%、93%。

•In 2023, emissions of dust, SO2, and NOX were 0.017g/kWh, 0.083g/kWh, and0.133g/kWh, respectively, which was 95%, 95.5%, and 93% lower than that of 2014.
“ultra-low emission”
2014 超低排放GB132231996
Dust:200mg/Nm3
SO2:1200~2100
NOX:650~1000

GB132232003
Dust:50mg/Nm3
SO2:400~1200

GB132232011
Dust:30mg/Nm3
SO2:100~200

Dust 烟尘:10mg/Nm3
SO2: 35 mg/Nm3
NOX: 50 mg/Nm3

NOX:100~200

NOX:450~1000
8

目录 CONTENTS
一Introduction to Chinese Coal-fired Power Industry

二Policies and Actions under the “Dual Carbon” Goals

三Future of Chinese Coal-fired Power Industry

92. Policies on Achieving the “Dual Carbon” Goals••

双碳目标：2030年前尽早达峰，2060年实现碳中和
Dual Carbon Goals: to peak China’s carbon dioxide emissions before 2030 andachieve carbon neutrality before 2060

•为达成双碳目标，中国构建起目标明确、措施有力的碳达峰碳中和“1+N"政策体系。

•Dual Carbon Goals: has establisheda clear and robust "1+N" policy
framework to gradually achieve thedual carbon goals.

•The "1" refers to the "Guidelines forComprehensive Implementation of NewDevelopment
PhilosophyandtheAchievement of Carbon Peaking and Carbon
Neutrality Work“ (2021) and the "Action
PlanforCarbon
Peaking
Before2030“ (2021) issued at the national level,
which are the top-level designs of the entire
policy system.
The "N" represents the ministry-level
implementation plans for carbon peaking in
key sectors and industries, as well as a seriesof supporting and assistance measures.

•1410

2. Actions for a Green and Low-Carbon Energy Transformation• 在2021年10月公布的《2030年前碳达峰行动方案》中，明确提出了“能源绿色低碳转型行动”。该行动包含了6个方面：推进煤炭消费替代和转型升级、大力发展新
能源、因地制宜开发水电、积极安全有序发展核电、合理调控油气消费和加快建设新型电力系统。

• China has clearly proposed 6 actions related to the green and low-carbon energy
transformation in the "Action Plan for Carbon Peaking Before 2030“ issued in Oct.
2021, which includes:① Advancing the substitution and transformational upgrading of coal consumption. Strictly
and reasonably control the growth of coal consumption; strictly control the addition of new coal
power projects, orderly phase out outdated coal power units, accelerate the energy-saving andflexibility transformation of existing units, promote heating transformation, and drive thetransformation of coal power towards both basic guarantee and system regulation powersources. Promote the reduction and limitation of coal use in key coal-consuming industries.
② Vigorously develop new energy sources.
③ Develop hydropower according to local conditions.

④ Actively, safely, and orderly develop nuclear power.
⑤ Reasonably regulate the consumption of oil and gas.
⑥ Accelerating the construction of a new type of power system.
11

2. Action Plan for Low-carbon Retrofit and Construction ofCoal-fired Power Plants• 2024年7月，国家发展和改革委员会和国家能源局印发了《煤电低碳化改造建设行动方案（2024-2027年）》，统筹推进存量煤电机组低碳化改造和新上煤电机组低碳
化建设，以提升煤炭清洁高效利用水平，加快构建清洁低碳安全高效的新型能源体系，助力实现碳达峰碳中和目标。
• In July of 2024, the National Development andReform Commission (NRDC) and National
Energy Administration (NEA) jointly released
the “Action Plan for Low-carbon Retrofit andConstruction of Coal-fired Power Plants”(2024-2027) to promote and guide the lowcarbon retrofit of existing coal fleet and newly
construction of coal power plants.
12

2. Action Plan for Low-carbon Retrofit and Construction ofCoal-fired Power Plants: targets• 《煤电低碳化改造建设行动方案》目标：• 到2025年，首批煤电低碳化改造建设项目全部开工；度电碳排放相较2023
年同类机组平均碳排放水平降低20%左右，显著低于现役先进煤电机组• 到2027年，建造和运行成本显著下降；度电碳排放相较2023年同类机组平均碳排放水平降低50%左右，接近天然气发电机组碳排放水平• Targets of “Action Plan for Low-carbon Retrofit and Construction of Coal-fired PowerPlants”：

By 2025• Start Construction of thefirst batch of retrofitted
projects• The carbon intensity ofthese retrofitted plants
should be 20% lower thanthat of the average of thesame level

By 2027• Significant cost reduction• The carbon intensity ofthese retrofitted plants
should be 50% lower thanthat of the average of thesame level, approachingthat of the gas-fired powerplants
132. Action Plan for Low-carbon Retrofit and Construction ofCoal-fired Power Plants: three measures• 《煤电低碳化改造建设行动方案》改造和建设方式：• 生物质掺烧。改造后煤电机组应具备掺烧10%以上生物质燃料能力• 绿氨掺烧。改造后煤电机组应具备掺烧10%以上绿氨燃料能力• 碳捕集利用与封存。CO2高效驱油、CO2加氢制甲醇、CO2地质封存。

• Three measures encouraged in “Action Plan for Low-carbon Retrofit and Constructionof Coal-fired Power Plants”

Biomass Co-firing

Ammonia Co-firing

CCUS• Full use of
agricultural andforestry residues,
psammophyte,energy plants, etc.
• Retrofitted plantshould be able toco-fire 10% or morebiomass with coal

• Produce green
ammonia withsurplus renewableelectricity• Retrofitted plantshould be able toco-fire 10% or moreammonia with coal

• Capture CO2 after
coal combustion• CO2 utilization andstorage: CO2
Enhanced Oil
Recovery, methanol
production, storage
in a suitablelocation, etc..
14

2. Action Plan for Low-carbon Retrofit and Construction ofCoal-fired Power Plants: requirements for plant location• 项目布局 优先支持在可再生能源资源富集、绿色电力需求旺盛、经济承受能力强、地质条件适宜的地区实施煤电低碳化工程建设项目。优先支持采用多种技术路线耦合的项目建设。

• Location of selected projects: to locate in well-developed areas or areas that has abundant
renewable resources, high green electricity needs, or suitable geographical conditions.
Programs carrying on various retrofitting methods are preferred and encouraged.

Biomass
Co-firingAmmonia
Co-firing

Stable long-term accessto agricultural andforestry residues,
psammophyte, energy
plants, or otherbiomass resources

Reliable ammonia
resources, including
abundant renewable
resources to produce
green ammonia

CCUS

Significant CO2
consumption orsuitable locations forCO2 storage
15

2. Action Plan for Low-carbon Retrofit and Construction of
Coal-fired Power Plants: requirements for plant• 机组条件 实施低碳化改造建设的煤电机组应满足预期剩余使用寿命长、综合经济性好等基本条件，新上煤电机组须为已纳入国家规划内建设项目。
• Plant Condition: select existing plants which has a long remaining lifetime andgood financial behavior or newly built plants that are already included in thenational construction plan.

• 降碳效果 2025年建成项目度电碳排放应显著低于自身改造前水平或显著优于现役先进水平，并较 2023 年同类煤电机组平均碳排放水平降低 20%左右。2027年建成项目，度电碳
排放应较 2023 年同类机组平均降低 50%左右、接近天然气发电机组碳排放水平。同等条件下，优先支持度电碳排放更低、技术经济性更好的项目。

• Carbon Reduction Level: the carbon intensity of selected projects should be 20%
lower than that of the same level plant before retrofit by 2025. The carbon intensityof selected projects should be 50% lower than that of the same level plant before
retrofit by 2027. Projects having less carbon emission and better financial
behavior are prioritized.

16

2. Action Plan for Low-carbon Retrofit and Construction ofCoal-fired Power Plants: supporting measures• 保障措施加大资金支持力度、强化政策支撑保障、优化电网运行调度、加强技术创新应用。

• Four Supporting Measures• Increasefinancialsupport• Enhance
policysupport andguarantees• Optimize
operation anddispatch of thepower grid

• Strengthen
implementationof innovativetechnologies
172. Application of Co-firing Biomass• 典型项目采用气化耦合：湖北华电襄阳电厂6号机组；采用直燃耦合：华能日照电厂4号机组。

• Typical projects:

湖北华电襄阳电厂耦合生物质发电项目
Xiangyang Project in Hubei Co-firing: gasified biomass Electrical Power of Unit 6: 600 MW
Biomass: 10.8 MW
 Co-firing ratio: 1.68%
 Annual CO2 emission reduction:～50,000 t
 Start Operation: Sep. 2018华能日照电厂耦合生物质发电项目
Rizhao Project in Shandong Co-firing: direct combustion of biomass Electrical Power of Unit 4: 680 MW
Biomass: 34 MW
 Co-firing ratio: 5%
 Annual CO2 emission reduction:～140,000 t
18
 Start Operation: Nov. 2022

2. Application of Co-firing Ammonia• 典型项目皖能铜陵电厂300MW机组掺氨燃烧项目、神华台山电厂600MW机组掺氨燃烧项目。

• Typical projects:皖能铜陵电厂300MW机组掺氨燃烧项目神华台山电厂600MW机组掺氨燃烧项目Tongling Project in Anhui

Taishan Project in Guangdong Maximum ratio of co-firing ammonia: 35%
with a load below 100 MW
 Burn-up of ammonia: 99.99%
 Combustion Type: pure ammonia
 Start Operation: Jun. 2022

 Maximum ratio of co-firing ammonia: 20%
under various loads
 Burn-up of ammonia: 99.99%
 Combustion Type: ammonia-coal co-firing
 Start Operation: Dec. 2023
19

2. Application of CCUS
• Typical projects:华能北京热电厂
CO2捕集示范项目
Beijing CHP power plant,
CO2 capture demo project华能石洞口二厂CO2捕集示范项目
Shidongkou 2nd powerplant, CO2 capture project

国电投重庆双槐电厂
CO2捕集示范项目
Chongqing ShuangHuai,
CO2 capture demonstration

大唐高井热电厂
CO2捕集项目
Datang Gaojing CHP powerplant, CO2 capture projectStart Operation: July 2008

Start Operation: Dec. 2009

Start Operation: Jan. 2010

Start Operation: 20142008年7月投运

2009年12月投运

2010年1月投运

2014年投运Capacity: 3000 t/a

Capacity: 120,000 t/a

Capacity: 10,000 t/a

Capacity: 1,500 t/a

规模: 3000 吨/年

规模: 120,000 吨/年

规模: 10,000 吨/年

规模: 1,500 吨/年

202. Application of CCUS
• 典型项目

国家能源泰州电厂CCUS项目(50万吨/年，目前亚洲最大)、华能正宁电厂CCUS项目。

• Typical projects:

国家能源泰州电厂CCUS项目

CCUS Project in Taizhou Power Plant
 Carbon Capture Capacity: 500,000 t/a (largestin Asia)
 CO2 Capture: post-combustion CO2 Utilization: EOR (20,000t/month), otherindustrial uses
 Start Operation: Jun. 2023

华能正宁电厂CCUS项目
CCUS Project in Zhengling Power Plant
 Carbon Capture Capacity: 1,500,000 t/a
 CO2 Capture: post-combustion CO2 Utilization: EOR
 Start Operation: 202521

2. Application of CCUS• 典型项目国华锦界电厂捕集与封存全流程示范项目、中海油恩平15-1油田群CO2封存项目。

• Typical projects:

中海油恩平15-1油田群CO2封存项目
Enping CO2 Storage Project in Oil Field

国华锦界电厂捕集与封存全流程示范项目

CCUS Project in Jinjie Power Plant

Carbon Capture Capacity: 150,000 t/a
CO2 Capture: post-combustion
CO2 Utilization: EOR, other industrial use
Start Operation: Jan. 2021



Carbon Capture Capacity: 300,000 t/a
Carbon Storage Capacity : 1.46 Mt
CO2 Storage: Saline Aquifer
Start Operation: Aug. 2021
22

目录 CONTENTS
一Introduction to Chinese Coal-fired Power Industry二Policies and Actions under the “Dual Carbon” Goals

三Future of Chinese Coal-fired Power Industry

23

3. Future Development of Chinese Coal-fired Power• 将严格控制煤电规模，并保留一定规模煤电，以确保电力供应安全。China will strictlycontrol the scale of coal power and retain a certain scale of coal power to ensure the security ofthe power supply.
• 将持续关停落后煤电机组。China will continue to phase out outdated coal-fired power units.
Since 2011, China has shut down over 100 GW of coal-fired power units with high carbonemissions.

• 将持续减少煤电发电量，煤电年利用小时数将持续大幅下降。China will continue to reduce
the electricity generation from coal power, and the annual utilization hours of coal power willcontinue to decline significantly. In 2023, the annual utilization hours of coal power were 4,466
hours, and it is expected to drop to 4,100 hours in 2025, 3,500 hours in 2030, and around 1,500
hours by 2060.
• 将持续提高煤电机组的调峰能力和快速变负荷能力。China will continue to enhance the peakshaving and rapid load-following capabilities of coal-fired power units, aiming to achieve
operational flexibility similar to gas turbines. It is to widen the regulatory room for adjusting
renewable energy consumption and further improve its utilization level.
• 将持续降低煤电机组碳排放水平。China will continue reducing the carbon emission of coalfired power units by 1) improving the unit efficiency to reduce coal consumption, 2) co-firingwith zero-carbon-emission fuels such as biomass, and 3) adopting carbon capture, utilization,and storage (CCUS) technologies. China will implement carbon emission reductions for coal-fired
power in a prudent and orderly way, through short-term demonstrations and long-term large-scale
applications based on feasible and realistic conditions.
24

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