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the State Council's opinions on promoting the healthy development of photovoltaic industry

Guo Fa [2113] No.24

People's governments of all provinces, autonomous regions and municipalities directly under the Central Government, ministries and commissions and institutions directly under the State Council:

Developing photovoltaic industry is of great significance to adjusting energy structure, promoting energy production and consumption revolution and promoting ecological civilization construction. In order to standardize and promote the healthy development of photovoltaic industry, the following suggestions are put forward:

1. Fully understand the importance of promoting the healthy development of photovoltaic industry

In recent years, China's photovoltaic industry has developed rapidly, the scale of photovoltaic cell manufacturing industry has expanded rapidly, the market share ranks among the top in the world, photovoltaic cell manufacturing has reached the advanced level in the world, and polysilicon smelting technology has become increasingly mature, forming a complete manufacturing industry system including silicon materials and silicon wafers, photovoltaic cells and components, inverters and control equipment. The domestic application market of photovoltaic power generation has gradually expanded.

At present, under the influence of multiple factors, such as the slowdown of global photovoltaic market demand growth, the increase of product export resistance and the uncoordinated development of photovoltaic industry, China's photovoltaic enterprises generally have difficulties in operation. At the same time, there are some outstanding problems in China's photovoltaic industry, such as serious overcapacity, disorderly market competition, excessive dependence on external demand, insufficient development of domestic application market, weak technological innovation ability, slow development of key technical equipment and materials, need to strengthen financial support, need to improve subsidy mechanism, weak industry management and urgent improvement of application market environment. The development of photovoltaic industry is facing a severe situation.

photovoltaic industry is an important development direction of global energy technology and industry, a sunrise industry with great development potential, and a strategic emerging industry with international competitive advantage in China. The current problems and difficulties in China's photovoltaic industry are not only challenges to industrial development, but also opportunities to promote industrial adjustment and upgrading. In particular, the cost of photovoltaic power generation has dropped significantly, providing favorable conditions for expanding the domestic market. We must strengthen our confidence, seize the opportunity, blaze new trails, and unswervingly promote the sustained and healthy development of the photovoltaic industry.

second, the overall requirements

(a) the guiding ideology.

thoroughly implement the spirit of the 18th CPC National Congress, take Deng Xiaoping Theory, Theory of Three Represents and Scientific Outlook on Development as guidance, innovate institutional mechanisms, improve support policies, stimulate effective demand in the domestic market through market mechanisms, and strive to consolidate the international market; Improve the standard system, standardize the order of industrial development, and strive to promote industrial restructuring, transformation and upgrading; Improve the market mechanism, speed up technological progress, focus on improving the quality and efficiency of photovoltaic industry development, and make contributions to enhancing the vitality and competitiveness of economic development.

(2) Basic principles.

combine far and near, treat both the symptoms and root causes. While expanding the application of photovoltaic power generation, we will control the total production capacity of photovoltaic manufacturing, accelerate the elimination of backward production capacity, and strive to promote industrial restructuring and technological progress.

make overall plans and make comprehensive policies. Take into account the domestic and international market demand, industrial supply and demand balance, upstream and downstream coordination and other factors, and take comprehensive measures to solve the outstanding problems faced by industrial development.

give priority to the market and give priority to support. Give play to the basic role of market mechanism in promoting the structural adjustment, survival of the fittest, optimization of layout and development and utilization of photovoltaic industry. Different photovoltaic enterprises shall be treated differently, with emphasis on supporting the development of backbone enterprises with high technical level and strong market competitiveness and eliminating inferior enterprises.

coordinate and cooperate to form a joint force. Strengthen policy coordination and industry self-discipline, support local innovative development methods, mobilize the enthusiasm of local enterprises and consumers, and promote the development of photovoltaic industry.

(3) development goals.

taking expanding the domestic market, improving the technical level and accelerating the industrial transformation and upgrading as the fundamental outlet and basic foothold to promote the sustainable and healthy development of the photovoltaic industry, we should establish a production, sales and service system of photovoltaic products adapted to the domestic market, and form laws, policies, standard systems and market environment conducive to the sustainable and healthy development of the industry. From 2113 to 2115, the annual installed capacity of photovoltaic power generation was increased by about 11 million kilowatts, and the total installed capacity reached more than 35 million kilowatts by 2115. Accelerate the merger and reorganization of enterprises, eliminate production enterprises with poor product quality and backward technology, and cultivate a number of leading enterprises with strong technology research and development capabilities and market competitiveness. Accelerate technological innovation and industrial upgrading, improve the self-sufficiency of polysilicon and other raw materials and the technical level of photovoltaic cell manufacturing, significantly reduce the cost of photovoltaic power generation and improve the competitiveness of photovoltaic industry. Maintain a reasonable share of photovoltaic products in the international market, and make new progress in foreign trade and investment and financing cooperation.

3. Actively explore the photovoltaic application market

(1) Vigorously explore the distributed photovoltaic power generation market. Encourage all kinds of power users to build distributed photovoltaic power generation systems in the way of "spontaneous self-use, surplus access to the Internet and grid adjustment". Give priority to supporting the construction of large-scale distributed photovoltaic power generation systems in industrial and commercial enterprises and industrial parks with high electricity prices. Support the promotion of small distributed photovoltaic power generation systems in schools, hospitals, party and government organs, institutions, residential buildings and structures. Make full use of solar energy in the process of urbanization, strengthen the application of photovoltaic power generation in combination with building energy conservation, promote the integration of photovoltaic buildings, and support the application of photovoltaic power generation in the construction of new countryside. Relying on new energy demonstration cities, green energy demonstration counties and renewable energy building application demonstration cities (counties), we will expand the application of distributed photovoltaic power generation, and build 111 large-scale application demonstration zones, 1111 demonstration towns and villages for distributed photovoltaic power generation. Carry out pilot and demonstration projects of new energy smart microgrid suitable for the operation characteristics and large-scale application of distributed photovoltaic power generation, explore the corresponding power management system and operation mechanism, and form a new system of construction, operation and consumption suitable for the development of distributed photovoltaic power generation. Support remote areas and islands to use photovoltaic power generation to solve the problem of no electricity and power shortage. Encourage the promotion of distributed photovoltaic power supply in urban street lighting, urban landscape, communication base stations and traffic lights.

(2) promote the construction of photovoltaic power plants in an orderly manner. According to the general idea of "reasonable layout, close access, local consumption and orderly promotion", according to the needs of local power market development and energy structure adjustment, and on the premise of implementing market consumption conditions, various types of photovoltaic power station construction will be promoted in an orderly manner. Encourage the use of existing power grid facilities to build photovoltaic power stations in a multi-energy complementary manner. Coordinate the planning and construction of photovoltaic power plants and supporting power grids to ensure timely grid connection and efficient utilization of photovoltaic power plants.

(3) consolidate and expand the international market. Actively and properly deal with international trade frictions and promote the establishment of a fair and reasonable international trade order. Strengthen dialogue and consultation, promote global industrial cooperation and standardize the import and export order of photovoltaic products. Encourage photovoltaic enterprises to innovate international trade methods, optimize the distribution of manufacturing areas, and carry out investment and production cooperation abroad. Encourage enterprises to implement the strategy of "bringing in" and "going out", gather global innovation resources, and promote the international development of photovoltaic enterprises.

Fourth, accelerate the adjustment of industrial structure and technological progress

(1) Restrain the blind expansion of photovoltaic production capacity. Strictly control new polysilicon, photovoltaic cells and components projects that simply expand production capacity. Photovoltaic manufacturing enterprises should have advanced technology and strong independent research and development capabilities, and new photovoltaic manufacturing projects should meet the conversion efficiency of monocrystalline silicon photovoltaic cells not less than 21%, polycrystalline silicon photovoltaic cells not less than 18%, thin-film photovoltaic cells not less than 12%, and the comprehensive power consumption of polycrystalline silicon production not more than 111 kWh/kg. Accelerate the elimination of polysilicon production capacity with high energy consumption, imperfect material recycling and substandard environmental protection, and strictly control the construction of polysilicon projects in areas with net power input.

(2) accelerate the merger and reorganization of enterprises. Use the "market reversal" mechanism to encourage enterprises to merge and reorganize. Strengthen policy guidance and promotion, establish and improve a long-term mechanism to eliminate backward production capacity, and accelerate the shutdown and elimination of backward photovoltaic production capacity. Focus on supporting the development of polysilicon and photovoltaic cell manufacturing enterprises with high technical level and strong market competitiveness, and cultivate a number of polysilicon manufacturing enterprises with low comprehensive energy consumption and low material consumption and internationally competitive photovoltaic cell manufacturing enterprises with strong technology research and development capabilities and independent intellectual property rights and brand advantages. Guide the production capacity of polysilicon to gather in the areas with superior energy resources in the central and western regions, encourage polysilicon manufacturing enterprises to cooperate or reorganize with advanced chemical enterprises, reduce the comprehensive power consumption and improve the comprehensive utilization rate of by-products.

(3) speed up the improvement of technology and equipment. Through the implementation of new energy integration application project, we will support the research and development and industrialization of high-efficiency crystalline silicon batteries and new thin-film batteries, electronic-grade polysilicon, silicon tetrachloride closed-loop circulation devices, high-end cutting machines, automatic screen printing machines, flat-plate coating processes, high-purity key materials, etc. Improve the technology and equipment level of photovoltaic inverter, tracking system, power prediction, centralized monitoring and smart grid, and improve the system integration technology capability of photovoltaic power generation. Support enterprises to develop new silicon material production processes and photovoltaic new products and technologies, and support key enterprises to build photovoltaic power generation engineering technology research and development and test platforms. Support universities and enterprises to train photovoltaic industry-related professionals.

(4) actively carry out international cooperation. Encourage enterprises to strengthen international R&D cooperation and carry out joint research and development of cutting-edge technologies in photovoltaic industry. Encourage qualified domestic photovoltaic enterprises and bases to establish strategic cooperative relations with foreign research institutions and industrial clusters. Support relevant scientific research institutes and enterprises to establish an international talent introduction and training mechanism, focusing on cultivating high-end professional and technical talents with strong innovation ability and comprehensive management talents. Actively participate in the formulation of international standards for photovoltaic industry, increase the overseas promotion of independent intellectual property standards system, and promote international mutual recognition of testing and certification.

v. standardizing the order of industrial development

(1) strengthening planning and industrial policy guidance. According to the development needs of photovoltaic industry, the development plan of photovoltaic industry is compiled and implemented. Each region may, according to the national photovoltaic industry development plan and the development needs of the region, formulate and implement relevant local plans and implementation plans. Strengthen the connection and coordination between national planning and local planning, manufacturing industry and power generation application, photovoltaic power generation and supporting power grid construction. Strengthen photovoltaic power generation planning and annual implementation guidance. Improve the construction management system of photovoltaic power stations and distributed photovoltaic power generation projects, and promote the orderly development of photovoltaic power generation.

(2) promote the construction of standardization system and testing and certification system. Establish and improve the standard system of photovoltaic materials, batteries and components, systems and components, and improve the technical standard system of photovoltaic power generation system and related power grids. Formulate and improve the standard system of building photovoltaic application suitable for different climate zones and building types, and consider the application of photovoltaic power generation in urban planning, architectural design and old building renovation. Strengthen the construction of testing and certification platforms for silicon materials and silicon wafers, photovoltaic cells and components, inverters and control equipment, improve the testing and certification system for photovoltaic products, and timely release the catalogue of photovoltaic products that meet the standards. Carry out observation and evaluation of solar energy resources and establish a solar energy information database.

(3) Strengthen market supervision and industry management. Formulate, improve and strictly implement the standard conditions of photovoltaic manufacturing industry, standardize the order of photovoltaic market, promote the withdrawal of backward production capacity from the market, and improve the level of industrial development. The implementation of photovoltaic cell modules, inverters, control equipment and other key products testing and certification system, products that have not passed the testing and certification are not allowed to enter the market. Strict implementation of photovoltaic power plant equipment procurement, design supervision and engineering construction bidding system, against unfair competition, prohibit local protection. Improve the qualification management of photovoltaic power generation project construction and operation technical posts. Strengthen the supervision of photovoltaic power grid access and operation. The establishment of photovoltaic industry development monitoring system, timely release of industrial development information. Strengthen the law enforcement and supervision of the Renewable Energy Law of the People's Republic of China and its supporting policies. Local governments at all levels shall not charge solar power generation enterprises fees other than those prescribed by laws and regulations in the name of collecting resource use fees.

VI. Improve grid-connected management and services

(1) Strengthen the construction of supporting power grids. Power grid enterprises should strengthen the construction and transformation of power grids that are compatible with photovoltaic power generation, and ensure that supporting power grids and photovoltaic power generation projects are completed and put into operation simultaneously. Actively develop micro-grid and smart grid technologies that integrate advanced energy storage technology and information technology, and improve the ability of power grid systems to accept photovoltaic power generation. The photovoltaic power generation project connected to the public power grid, the connection project and the transformation of the public power grid caused by the connection are invested and constructed by the power grid enterprises. The distributed photovoltaic power generation connected to the user side, and the transformation of the public power grid caused by the connection is partly invested and built by the power grid enterprises.

(2) improve the grid-connected operation service of photovoltaic power generation. All power grid enterprises should provide grid-connected services for photovoltaic power generation, optimize system dispatching operation, give priority to ensuring photovoltaic power generation operation, ensure timely grid-connected photovoltaic power generation projects, and fully purchase the generated power. Simplify the grid access mode and management procedures of distributed photovoltaic power generation, announce the grid-connected service process of distributed photovoltaic power generation, and establish a simple and efficient grid-connected service system. For distributed photovoltaic power generation projects, the system reserve capacity fee and related service fee are exempted. Strengthen the supervision of photovoltaic power grid access and grid-connected operation.

VII. Improve support policies

(1) Vigorously support photovoltaic applications on the user side. Open the construction of distributed power supply on the user side, and support and encourage enterprises, institutions, communities and families to install and use photovoltaic power generation systems. Encourage specialized energy service companies to cooperate with users, invest in the construction and management of photovoltaic power generation and related facilities for users. The distributed photovoltaic power generation project shall be put on record management, and the power generation business license of distributed photovoltaic power generation application shall be exempted. For distributed photovoltaic power generation projects that do not need state financial subsidies, if they have the conditions to access the power grid, the scale construction can be liberalized. The total amount of distributed photovoltaic power generation is included in the statistics of electricity generation and consumption of the whole society, and it is used as the performance evaluation index of local governments and power grid enterprises. Spontaneous self-use power generation is not included in the scope of application of ladder electricity price, but included in the energy saving of local governments and users.

(2) improve the electricity price and subsidy policy. The distributed photovoltaic power generation shall be subsidized according to the amount of electricity. According to the resource conditions and construction costs, the benchmark electricity price of photovoltaic power stations in different regions is formulated, and the price and subsidy standards are found through competitive methods such as bidding. According to the change of photovoltaic power generation cost and other factors, the on-grid tariff of photovoltaic power station and the subsidy standard of distributed photovoltaic power generation are reasonably reduced. In principle, the implementation period of on-grid tariffs and subsidies is 21 years. According to the needs of photovoltaic power generation development, adjust the additional levy standard of renewable energy electricity price and expand the scale of renewable energy development fund. The scale of photovoltaic power generation is coordinated with the scale of the national renewable energy development fund.

(3) improve the management of subsidy funds. Strict renewable energy electricity price surcharge management, to ensure that the additional funds should be collected. Improve the payment methods and procedures of subsidy funds. For photovoltaic power plants, the on-grid price of photovoltaic power generation determined by power grid enterprises in accordance with state regulations or bidding shall be fully settled with power generation enterprises on a monthly basis; For distributed photovoltaic power generation, a system of monthly transfer of subsidy funds by power grid enterprises is established. The central government allocates subsidy funds to power grid enterprises on a quarterly basis to ensure that the subsidy funds are in place in full and on time. Encourage local governments at all levels to use financial funds to support the application of photovoltaic power generation.

(4) increase fiscal and taxation policy support. Improve the central financial funds to support photovoltaic.