On October 13, 2025, the National Development and Reform Commission (NDRC) released the "Measures for the Implementation of Minimum Proportion Targets for Renewable Energy Consumption and the Renewable Energy Electricity Consumption Responsibility Weight System (Draft for Comment)" (hereinafter referred to as the "Measures") to solicit public opinions. The document clarified the minimum proportion targets for renewable energy consumption by energy users and the formulation, monitoring, and assessment rules for renewable energy electricity consumption responsibility weights in provincial-level administrative regions. It provides institutional guarantees for the large-scale application of renewable energy (including renewable energy-based production of hydrogen, ammonia, and alcohols), aiding the achievement of the "dual carbon" goals.
For the first time, the "Measures" detailed the minimum proportion targets for renewable energy consumption into two categories: electricity consumption and non-electricity consumption. The non-electricity consumption target explicitly includes "renewable energy-based production of hydrogen, ammonia, and alcohols" and standardizes its accounting methods. Meanwhile, it continues and improves the renewable energy electricity consumption responsibility weight system for provincial regions, clarifying the responsibilities of entities such as power grid enterprises and electricity users, thereby building a policy framework for the comprehensive utilization of renewable energy across all scenarios.
I. Renewable Energy-Based Production of Hydrogen, Ammonia, and Alcohols Gains Clear Policy Positioning; Non-Electricity Consumption Targets Open Development Space
The "Measures" formally incorporate "renewable energy-based production of hydrogen, ammonia, and alcohols" into the scope ofminimum proportion targets for non-electricity consumptionof renewable energy. Together with renewable energy heating (cooling) and biofuels, they constitute the core areas of non-electricity consumption. This marks the first time that their important role in the energy transition has been clarified at the national institutional level, providing a policy basis for the industrialisation development of this field.
From the perspective of achieving the targets, the "Measures" specify that key energy-consuming industries can meet the non-electricity consumption targets through methods such as "comprehensive utilization including renewable energy-based production of hydrogen, ammonia, and alcohols." This means that projects undertaken by relevant enterprises for producing hydrogen, ammonia, and alcohols will be directly linked to policy assessments, which is expected to stimulate investment enthusiasm in industries such as industrial and energy sectors. For example, high-energy-consuming industries like chemicals and steel can deploy renewable energy-based hydrogen production projects to both meet their own emission reduction needs and fulfill the policy-defined non-electricity consumption indicators, forming a virtuous cycle of "project implementation - target achievement - emission reduction and efficiency improvement."
Furthermore, the "Measures" also detail theaccounting standardsfor renewable energy-based production of hydrogen, ammonia, and alcohols, clearly defining energy statistical rules in two categories:
- Raw Material Utilization Category: The non-electric energy utilized from renewable energy that enterprises produce or purchase and consume must be included in the energy consumption corresponding to "raw material utilization such as renewable energy-based production of hydrogen, ammonia, and alcohols," ensuring the traceability of the renewable attribute at the raw material end;
- Fuel Utilization Category: The energy generated through comprehensive fuel utilization, such as combustion, from renewable energy-based production of hydrogen, ammonia, and alcohols by enterprises must be counted as non-electric utilization energy, covering the entire chain accounting from "production - consumption - utilization," providing a clear basis for subsequent monitoring and assessment.
II. Dual-Track Implementation of Renewable Energy Power Consumption and Absorption Responsibilities to Strengthen Industrial Supporting Infrastructure
To ensure the energy supply for projects producing hydrogen, ammonia, and alcohols from renewable energy, the "Measures" establish a dual-guarantee mechanism of "Power Consumption Targets + Absorption Responsibility Weights," ensuring stable access to renewable power resources for such projects.
At thePower Consumption Targetlevel, the "Measures" require key energy-consuming industries to meet minimum renewable energy power consumption proportion targets through methods such as "self-generation for self-use, direct green electricity connection, and green certificate and green electricity trading (transfer)." This provides multiple channels for renewable energy-based hydrogen, ammonia, and alcohol production projects to obtain electricity—projects can directly integrate distributed photovoltaic and wind power for "self-generation and self-use," or purchase remote renewable electricity through green electricity trading, avoiding production disruptions due to unstable power supply and reducing operational risks.
At theProvincial Absorption Responsibility Weightlevel, the "Measures" continue the dual-weight system of "Total Absorption + Non-Hydropower Absorption" (total weight includes all renewable energy, while non-hydropower weight excludes hydropower) and designatepower grid enterprisesas the core entities responsible for implementation: they must increase grid investment and organize regional entities to fulfill electricity absorption according to the absorption implementation plan. Meanwhile, power supply enterprises, electricity retail enterprises, and captive power plant users are also required to share absorption responsibilities, forming an absorption framework led by the grid and coordinated by multiple parties. This mechanism will prioritize the allocation of renewable electricity within provincial regions to non-power sectors such as hydrogen, ammonia, and alcohol production, providing stable power support for projects.
III. Clear Responsibilities for Multiple Entities, Ensuring Policy Implementation Has "Leverage"
By clearly delineating the responsibilities of each participating entity, the "Measures" prevent policies from "being implemented in name only," providing an executable institutional environment for industries such as renewable energy-based hydrogen, ammonia, and alcohol production.
- Power grid enterprises: Assume the role of the "main force" in absorption implementation, requiring grid construction and upgrades (e.g., improving cross-regional transmission channels and distributed grid support) to ensure efficient delivery of renewable electricity to hydrogen, ammonia, and alcohol production projects, while organizing regional users to meet absorption targets;
- Key energy-consuming enterprises: As direct bearers of policy targets, they can simultaneously fulfill "Power Consumption Targets" and "Non-Power Consumption Targets" by deploying renewable energy-based hydrogen, ammonia, and alcohol production projects and purchasing green electricity, creating a synergistic effect between policy incentives and corporate emission reduction needs;
- Regulatory and assessment aspects: The "Measures" specify a "monitoring + assessment" mechanism, which will subsequently evaluate localities and enterprises based on quantitative data (e.g., the proportion of renewable energy consumption, completion rate of absorbed electricity). Assessment results may be linked to energy consumption indicators and financial support, compelling policy implementation.
IV. Release of Draft for Public Comments Signals Policy Optimization, Expected to Further Enhance Industry Adaptability
The issuance of these "Measures" in the form of a draft for public comments, with a feedback deadline of November 12, 2025, reflects the openness and flexibility of policy formulation. Considering that the renewable energy-based hydrogen, ammonia, and alcohol production industry is still in its initial stages, the public consultation is likely to focus on three key areas:
- Differentiated non-electric consumption targets for various industries (such as chemical, energy, and transportation) to avoid a "one-size-fits-all" approach;
- Coordination of supporting policies, including subsidies and tax incentives, for renewable energy-based hydrogen, ammonia, and alcohol production projects;
- A coordination mechanism for cross-regional renewable electricity allocation and consumption responsibilities, addressing the issue of renewable energy abundance but insufficient demand in some regions.
The introduction of these "Measures" is a critical step by the state in improving the renewable energy institutional system. It not only opens a new pathway for "renewable energy-based hydrogen, ammonia, and alcohol production" through non-electric consumption targets but also strengthens the supporting foundation through electricity consumption mechanisms, forming a policy cycle of "target guidance - clear pathways - responsibility assignment." With subsequent opinion collection and policy refinement, market vitality is expected to be further stimulated, promoting the transition of renewable energy-based hydrogen, ammonia, and alcohol production from R&D to large-scale application, thereby providing new momentum for energy structure transformation and the achievement of the "dual carbon" goals.
