On December 23, 2025, the National Development and Reform Commission and the National Energy Administration jointly issued the Opinions on Promoting the Large-Scale Development of Concentrated Solar Power (CSP) (hereinafter referred to as the Opinions). The Opinions put forward the overall objectives, development planning and layout, application market expansion, technological and industrial innovation, policy guarantee mechanisms, etc., for CSP in the next five years, and set the direction for the leapfrog development of CSP. The full text translation is as follows. For the sake of accuracy, the Chinese version shall prevail.
Opinions of the National Development and Reform Commission and the National Energy Administration on Promoting the Large-Scale Development of Concentrated Solar Power (CSP)
Jilin Province, Sichuan Province, Tibet Autonomous Region, Gansu Province, Qinghai Province, Ningxia Hui Autonomous Region, Xinjiang Uygur Autonomous Region; relevant dispatched offices of the National Energy Administration; relevant power enterprises:
Concentrated Solar Power (CSP) has the dual functions of peak-regulating power supply and long-duration energy storage. It can realize the regulation and support of new energy by new energy, provide long-cycle peak-regulating capacity and moment of inertia for the power system, and has the potential to serve as peak-regulating and basic power supply in some regions. It is an effective means to achieve the safe and reliable replacement of traditional energy by new energy, and an effective support for accelerating the construction of a new type of power system. At the same time, the CSP industry chain is long, and its large-scale development and utilization will become a new growth point of China's new energy industry. To better adapt to the demand for high-quality development of new energy and help accelerate the construction of a new type of power system, the following opinions are put forward on promoting the large-scale development of CSP.
I. Overall Objectives
Actively promote the construction of CSP projects, continuously expand new scenarios for the development and utilization of CSP, and ensure the large-scale development of CSP. By 2030, the total installed capacity of CSP will strive to reach about 15 million kilowatts, and the levelized cost of electricity (LCOE) will be basically equivalent to that of coal-fired power; technologies will achieve international leadership and complete independent controllability, the industry will realize independent marketization and industrialization development, and become a new industry with international competitive advantages in the new energy field.
II. Strengthen Planning Guidance
(1) Conduct in-depth CSP resource surveys
Establish a scientific and systematic system of content and methods for resource surveys, integrate basic data such as solar energy observation, land and resources, topography and geomorphology, and water resources, evaluate the level of CSP resources, identify restrictive factors for site construction, connect with territorial spatial planning, and form a comprehensive and systematic CSP resource database. Establish a dynamic management mechanism for the survey results database, update basic information in a timely manner, and ensure the timeliness and practicality of survey results. For key provinces and regions, clarify advantageous resource areas and development potential, make early preparations for factor guarantee and site protection, and lay a solid foundation for project construction. Strengthen the sharing and application of survey results to provide a scientific basis for regional CSP development.
(2) Improve the planning and layout of CSP
Adapt to the situation and needs of the large-scale development of CSP, clarify the positioning and role of CSP in the new type of power system, improve the technical system for CSP development planning research, and conduct scientific research on the planning and layout of CSP on the basis of resource survey work. Encourage all provinces and regions to, in light of the national energy development strategy, ecological and environmental protection requirements, regional resource endowments, regional energy development needs, power system characteristics, and electric-thermal coupling needs, fully consider the role of CSP in regional power balance and regulating support power supply, formulate CSP development plans in accordance with local conditions, propose the layout of key CSP projects by stage and region around development models and implementation paths, and do a good job in connecting with other development plans. Support provinces and regions where technology and economy are feasible and demand is urgent to plan and construct a certain scale of CSP projects every year, and provide corresponding policy guarantees.
(3) Coordinate the layout of CSP and industrial development
Give full play to the supporting and regulating capacity of CSP, conduct research on the coordinated layout of CSP and industries by sector, and propose plans for the coordinated layout of CSP and related industries. Encourage new energy integrated projects with CSP as the supporting and regulating power supply to be closely combined with new high-energy-consuming industries such as mineral resource development and smelting, computing power centers, power battery manufacturing, and salt lake lithium extraction. Explore new formats for local consumption of new energy such as computing power-power coordination, direct green power connection, and source-grid-load-storage integration, so as to realize the efficient utilization of renewable energy and promote the construction and layout of industrial parks supplied with a high proportion of renewable energy.
III. Actively Cultivate the CSP Application Market
(4) Reasonably configure the scale of CSP as needed in combination with the construction of large energy bases
Support new energy bases with technical and economic conditions, such as large "desert, Gobi, and barren land" external transmission new energy bases, hydro-wind-solar external transmission bases, and various self-use bases, to carry out the construction of CSP plant projects. Scientifically determine the installed capacity of CSP in the bases, optimize and improve the regulating capacity of the bases, increase the proportion of green power in the bases, reduce the average carbon emission per kilowatt-hour of the bases, strengthen the stable transmission of new energy, and actively explore the role of CSP plants with feasible technology and economy as supporting and regulating power supply in large bases.
(5) Construct a number of supporting and regulating new energy power stations dominated by CSP
In light of internal and external conditions such as regional resource endowments, construction factors, energy demand, and consumption capacity, and according to the needs of building a new type of power system, with the goals of effectively filling regional power gaps, alleviating the pressure of power guarantee, and providing green supporting and regulating capacity, implement the concept of electric-thermal coupling and source-grid coordination, construct a number of large-capacity CSP plants for local consumption or integrated dispatch and operation projects of CSP, wind power, and photovoltaic power generation, improve the peak-regulating capacity and stability of regional power grids, and enhance the safety and flexibility of power supply.
(6) Explore the construction of a source-grid-load-storage integrated system with CSP as the basic power supply
Actively promote industries with green traceability needs, and in combination with the needs of industrial adjustment and transfer, construct a source-grid-load-storage integrated system based on CSP plants, combined with other new energy power sources and new energy storage facilities in CSP resource-rich areas. In areas with conditions, further explore covering the electricity, steam, and heat needs of nearby areas. Strengthen the management and operation of the source-grid-load-storage integrated system, and establish and improve the operation mechanism and safety guarantee system. Encourage the exploration of constructing weakly connected or independent source-grid-load-storage integrated systems supported by CSP at the end of power grids with conditions, so as to improve the level of power supply guarantee.
IV. Give Full Play to the Supporting and Regulating Role of CSP in the New Type of Power System
(7) Give play to the supporting role of CSP in the new type of power system
Combined with the green supporting capacity of CSP that integrates "thermal-electric" conversion and conventional AC synchronous generators, give full play to the role of CSP in frequency modulation, voltage regulation, black start, and inertia response, further optimize the operation mode of power stations, tap the potential of CSP as a green and low-carbon basic power supply, promote the transformation of the system power supply guarantee value of CSP, and increase the proportion of green and reliable supporting capacity of the new type of power system.
(8) Enhance the regulating role of CSP in the new type of power system
Give play to the functions of large-scale, low-cost, and high-safety heat storage systems of CSP, utilize the wide load regulation range and fast load change capacity of CSP, exert deep peak-regulating capacity, and improve the regulating capacity of the power system. Encourage the configuration or reservation of electric heating systems, and support CSP plants equipped with electric heating systems to play the role of system long-duration energy storage power stations through the power market and obtain corresponding market returns.
(9) Accelerate the construction of ongoing projects and improve the dispatch response capacity of operational projects
Fully absorb the experience of commissioned projects in design, construction, and operation links, actively apply new technologies, new equipment, and new processes to reduce costs and increase efficiency, and accelerate the construction of ongoing projects on the basis of ensuring safety and quality. Provincial energy competent departments should strengthen the supervision of registered but not started projects and accelerate their commencement and construction. Actively promote operational projects to explore profit models in the power market, continuously improve dispatch response and the ability to participate in the auxiliary service market, and take multiple measures to improve the economic benefits of power stations.
V. Accelerate Technological and Industrial Innovation of CSP
(10) Gradually promote the popularization of high-parameter and large-capacity technologies
Actively support the technological innovation and engineering application of high-parameter and large-capacity CSP plants, steadily promote the construction of 300,000-kilowatt level CSP plants in areas with suitable resource conditions and high demand for power and heat loads, strengthen project monitoring and evaluation, accumulate basic data for the subsequent promotion of 600,000-kilowatt level CSP plants, gradually improve the technological advancement of CSP plants and the system supporting and regulating role, and effectively improve the safe and reliable replacement capacity of new energy.
(11) Accelerate breakthroughs in key technologies and promote cost reduction and efficiency increase in the CSP industry
Accelerate the R&D of key technologies, materials, and equipment, support leading CSP enterprises and scientific research institutions to form R&D consortia, focus on fields such as efficient concentrating, heat absorption and heat exchange, large-scale long-duration high-temperature heat storage, efficient energy conversion, highly flexible CSP units, and intelligent control, develop localized key equipment such as new large-aperture trough collectors, high-precision heliostats, low-cost and long-life heat storage materials, and new turbines, and comprehensively improve the independentization of China's core CSP technologies and the localization of key equipment. Strengthen basic research on applications in the CSP field, break through scientific theories such as high-parameter "light-thermal-electric" conversion and efficient thermal energy storage, and encourage disruptive technological innovation.
(12) Establish and improve a coordinated development mechanism to promote the high-quality development of the CSP industry
Explore the research and application of CSP and coal-fired power coupling carbon reduction technologies, and encourage the construction of CSP and coal-fired power coupling technology projects in areas with suitable resource and construction conditions. Scientifically plan the coordinated development layout of the CSP industry chain, actively build a complete industrial chain, give full play to the leading role of modern industrial chain chain leaders, promote in-depth cooperation upstream and downstream of the CSP industry chain, and form an industrial pattern of complementary advantages and coordinated development. Accelerate the strengthening and supplementation of the CSP industry chain, promote the deep integration of capital and the industrial chain, build CSP industrial parks or industrial clusters in key areas, and promote cost reduction and efficiency increase in the CSP industry through industrial agglomeration and coordinated development. Accelerate the construction of the CSP industry standardization system, improve the standardization level of the whole process of CSP industry design, manufacturing, construction, and operation and maintenance, and actively participate in the formulation of international standards.
(13) Actively promote the "going global" of the industry and improve the level of international cooperation in CSP
Make full use of bilateral and multilateral energy cooperation mechanisms, give play to the advantages of China's CSP industry in technological innovation and equipment, strengthen mutual recognition with relevant national standards, and develop diversified CSP products and technical services that meet local resource endowments and market demands. Increase external publicity, encourage domestic enterprises to carry out various forms of cooperation such as technology and joint venture operations with local enterprises in accordance with their own development strategies, explore the creation of flagship CSP projects under the "Belt and Road" Initiative, and at the same time pay attention to preventing various risks to promote the long-term sustainability of cooperation projects.
VI. Improve the Policy Guarantee Mechanism
(14) Increase policy support
Support eligible CSP projects to revitalize stock assets and promote a virtuous circle of investment and financing by issuing Real Estate Investment Trusts (REITs) in the infrastructure field, asset-backed securities, etc.
(15) Promote the fair participation of CSP in the power market
Implement the requirements of the market-oriented reform of on-grid electricity prices for new energy, encourage relevant provinces to formulate implementation rules for new energy participation in the power market that support the development of CSP, and introduce sustainable development price settlement mechanisms that can adapt to market competition and ensure stable operation in accordance with local conditions. Eligible CSP capacity may be compensated according to reliable capacity. Encourage relevant provinces to explore the construction of a reliable capacity assessment method for CSP plants, and connect with national relevant requirements after the state establishes a reliable capacity compensation mechanism. Encourage CSP projects to participate in intra-provincial and inter-provincial and cross-regional annual medium and long-term power transactions, and support CSP to actively participate in various auxiliary service markets and obtain benefits.
(16) Establish and improve the CSP incentive mechanism
Systematically evaluate the construction and operation experience of the first batch of CSP demonstration projects, establish an industry-wide information sharing mechanism, and promote the coordinated development of the CSP industry. Systematically evaluate the operation status, peak-regulating effect, and system supporting capacity of CSP supporting new energy bases and source-grid-load-storage projects, and establish a project incentive mechanism based on evaluation results.
(17) Improve the green benefits of CSP plants
Coordinately utilize the national voluntary greenhouse gas emission reduction trading market, green certificate market, and new energy sustainable development price settlement mechanism, and do a good job in connecting supporting policies. CSP projects may independently choose the source of green benefits. Those intending to participate in the green certificate trading shall not apply for National Certified Emission Reductions (CCER) for the corresponding electricity, and shall not be included in the new energy sustainable development price settlement mechanism; those intending to apply for CCER shall cancel the untraded green certificates corresponding to the emission reductions after completing the verification and registration of emission reductions; projects included in the sustainable development price settlement mechanism in accordance with national regulations shall not obtain green certificate benefits repeatedly.
(18) Strengthen the guarantee of factors such as land and the implementation of policies
Coordinately plan the development layout of new energy, reasonably layout and reserve CSP sites in large wind-solar bases, source-grid-load-storage integration projects, industrial parks supplied with a high proportion of renewable energy, as well as various projects such as independent energy supply systems including CSP, CSP and coal-fired power coupling pilots, and combined heat and power generation. The land for CSP collector fields may be obtained through leasing.
Relevant provincial energy competent departments should actively promote the development of CSP, promptly organize and carry out provincial-level CSP resource surveys and layout planning, promote the implementation of various guarantee measures such as electricity price mechanisms and auxiliary service rules related to CSP, strengthen the overall coordination of project construction, and ensure the smooth implementation of projects. The dispatched offices of the National Energy Administration shall conduct regular supervision on the implementation of policies and measures for the large-scale development of CSP, and report major matters in a timely manner.
National Development and Reform CommissionNational Energy AdministrationDecember 15, 2025