On August 10, the National Development and Reform Commission (NDRC) and the National Energy Administration (NEA) released the 15th Five-Year Plan for the Coal Industry. The plan outlines that by 2030, coal’s role as a foundational energy guarantee will be further strengthened, and the production and development layout will be continuously optimized. The share of high-quality, advanced production capacity will continue to rise, the production-supply-storage-sales system will be further improved, and the proportion of output from large-scale, modernized coal mines nationwide will increase to 87%.Safety, green development, and clean, efficient utilization will see significant improvements. The comprehensive rollout of smart mining systems will accelerate, with the share of output from intelligent coal mines reaching 75%. A diversified, coal-based industrial structure will take shape more rapidly, and coal consumption is expected to peak. Mechanisms to ensure a dynamic balance between supply and demand will be further refined, and the industry’s modern governance capabilities will see a marked increase. A modern coal industry system will be basically established, taking high-quality development in the coal sector to a new level.
Clean Energy Substitution in Mining Areas
Electric-powered drilling rigs, electric shovels, and similar equipment will be actively promoted and applied in key coal production processes. In open-pit mining transportation, the large-scale replacement of diesel heavy-duty trucks with electric or hydrogen-powered mining trucks will be carried out in an orderly manner. Underground coal mines are encouraged to adopt electric, trackless, rubber-tired vehicles. An initiative to replace aging boilers in mining areas will be implemented, promoting electric boilers, gas oxidation heating boilers, and clean, highly efficient pulverized coal boilers based on local conditions to reduce on-site coal consumption. Where conditions permit, charging and battery-swapping stations as well as hydrogen refueling stations will be strategically deployed, and pilot projects will be launched to upgrade green transportation infrastructure in mining areas.
Integration of Clean Energy Industries in Mining Areas
Open-pit mines with suitable conditions will be encouraged to develop supporting wind and solar power generation, along with electrochemical energy storage. A number of model low-carbon industrial parks and facilities will be built, focusing on key sites such as electromechanical maintenance workshops, transportation and logistics centers, and coal preparation plants. Coal-to-oil/gas and coal chemical projects are encouraged to scale up the use of green electricity and green hydrogen as substitutes, as well as to apply Carbon Capture, Utilization, and Storage (CCUS) technologies.
The original text is as follows
15th Five-Year Plan for the Development of the Coal Industry
Coal serves as China's fundamental energy source, playing a pivotal role in safeguarding the national economy, people's livelihoods, and national energy security, while fulfilling critical functions of foundational guarantee and systemic regulation within the energy supply system. The "15th Five-Year Plan" period represents a crucial phase for China to lay a solid foundation for basically achieving socialist modernization and to exert comprehensive efforts across all fronts, as well as a pivotal transition period for the transformation and development of the coal industry. This plan is formulated in accordance with the "Outline of the 15th Five-Year Plan for National Economic and Social Development of the People's Republic of China" and the "15th Five-Year Plan for Building a New Energy System," serving as an action guide for the high-quality development of China's coal industry.
I. General Requirements
We shall adhere to Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era as our guiding principle, thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, earnestly carry out the arrangements made at the Fourth Plenary Session, fully, accurately, and comprehensively implement the new development philosophy, accelerate the establishment of a new development paradigm, uphold the general principle of pursuing progress while maintaining stability, better coordinate development and security, deeply implement the new energy security strategy, take promoting high-quality development as our central theme, leverage scientific and technological innovation as our driving force, and strengthen governance capabilities as our safeguard; we will continue to deepen supply-side structural reforms, enhance the construction of production, supply, storage, and sales systems, comprehensively improve the energy efficiency and carbon efficiency levels within the industry, promote industrial transformation and upgrading, facilitate the peak reduction of coal consumption, and accelerate the establishment of a modern coal industry system characterized by coordinated layout optimization, secure and stable supply, green and intelligent development, clean and efficient utilization, and scientific and standardized governance—thereby providing strong support for building a leading energy nation and constructing a new energy system.
The planning adheres to the principles of bottom-line thinking and prioritizing safety; clean and efficient operations with a focus on green and low-carbon development; innovation-driven growth and industrial upgrading; market-oriented approaches aimed at enhancing operational efficiency; prioritizing people's well-being and promoting integrated development. By 2030, the fundamental safeguard capacity for coal supply will be further strengthened; the layout for coal production and exploration will continue to be optimized; the proportion of high-quality, advanced production capacity will increase further; the production–supply–storage–distribution system will become more comprehensive; and the share of large-scale modern coal mines across the country will rise to 87%; the level of safe, green development and clean, efficient utilization of coal will improve significantly; the implementation of intelligent transformation throughout the entire system will advance substantially, raising the proportion of intelligent coal mines to 75%; the formation of a diversified coal-based industrial structure will accelerate; coal consumption will peak; the mechanism for ensuring dynamic supply-demand balance will be further refined; the industry's capacity for modern governance will be markedly enhanced; a modern coal industry system will be basically established; and high-quality coal development will reach a new milestone.
II. Optimizing the spatial layout of coal development
(1) Consolidating and optimizing the tiered development framework across the eastern, central, and western regions
By coordinating factors such as resource development conditions, market demand, transportation corridors, and environmental constraints, coal resource development shall be advanced in an orderly manner. In resource-rich western regions, efforts will be made to strengthen overall development planning, improve the upstream and downstream development and utilization system, and enhance cross-regional collaborative support capabilities. The construction of coal supply guarantee bases in Shanxi, Western Inner Mongolia, Eastern Inner Mongolia, Northern Shaanxi, and Xinjiang will continue to advance; a number of large-scale modern coal mines will be planned and constructed according to high standards; and the level of large-scale intensive development will be elevated. By 2030, the output of these five major coal supply guarantee bases is expected to account for over 80% of the national total. In the eastern and central regions, local energy consumption demands will be coordinated, the pace of development will be reasonably controlled, assessments and feasibility studies will be strengthened based on local resource conditions, and appropriately, supplementary coal mines will be constructed.
(2) Gradually advance the development of follow-up production capacity
We will continue to advance coal resource exploration, strengthen comprehensive resource evaluation, expand the scale of resource reserves, and ensure the sustainable follow-up development of coal resources. Efforts will be made to enhance overall capacity regulation by coordinating factors such as resource development potential and regional supply-demand balance to rationally determine the scale of follow-up production capacity, with particular emphasis on strategic placement within the five major coal supply guarantee bases, while prioritizing support for integrated upstream–downstream industrial development and cross-regional coal supply guarantee projects. During the "15th Five-Year Plan" period, all new production capacity must be incorporated into the centralized capacity management system before being implemented. For all types of coal mines, the addition of new production capacity shall strictly adhere to the capacity replacement policy.
(3) Coordinating and promoting resource development in key regions
We shall adhere to the principle of ecological priority and green development, and promote high-standard coal development in key regions. In the upper reaches of the Yellow River Basin, we will strengthen ecological protection and impose rigid constraints on water resources, while enhancing green coal development; in the middle reaches, we will reinforce clean production and ecological restoration, and advance the comprehensive utilization of mine effluent and coal gangue; in the lower reaches, while ensuring a stable energy supply, we will reasonably reduce the development intensity. In coal-producing areas within the Yangtze River Economic Belt, we will actively advance the comprehensive remediation of coal mining subsidence zones, encourage the development of new energy sources and forest and grassland carbon sinks, and promote the integrated development of coal and clean energy.
(4) Refine the cross-regional coal transportation framework
Continuously optimize the "West-to-East Coal Transport" and "North-to-South Coal Transport" transportation systems to enhance cross-regional coal logistics capacity. For the domestic supply in the southeastern coastal regions, shipments are primarily sourced from the Shanxi, Western Inner Mongolia, and Northern Shaanxi baselines and transported via corridors such as the Daqin, Shuohuang, and Wari routes to northern ports for further distribution; imported coal is utilized rationally to ensure supply stability. The "Two Lakes and One River" region (Hubei, Hunan, and Jiangxi) relies mainly on transport corridors including the Haoji and Jiaoli routes, as well as integrated rail-water transport networks, to receive coal supplies from the Western Inner Mongolia, Northern Shaanxi, and Shanxi baselines. The Northeastern region depends primarily on the Eastern Inner Mongolia baseline for supply, with a small portion sourced from the Western Inner Mongolia and Shanxi baselines. The Southwest region relies on its own regional supply base; a portion of its coal supply is received from the Northern Shaanxi and Western Inner Mongolia baselines via corridors such as the Xikang and Lanyu routes, while steadily increasing the proportion of coal supplied from the Xinjiang baseline.
III. Accelerating the optimization and upgrading of the coal industry structure
(5) Enhancing the entry standards for resource development
Refine and strengthen coal industry policies, strictly enforce industrial access requirements, and enhance negative list-based management. In principle, the construction or expansion of new coal mines meeting the following criteria shall be halted: coal mines in Shanxi, Inner Mongolia, Shaanxi, and Xinjiang (excluding southern Xinjiang) with an annual production capacity below 1.2 million tons; coal mines in Ningxia with an annual production capacity below 600,000 tons; and coal mines in other regions with an annual production capacity below 300,000 tons. The construction of new coal mines with an annual production capacity below 900,000 tons, or those located in areas prone to coal and gas outbursts, rock burst hazards, or with extremely complex hydrogeological conditions, shall be prohibited. The construction of new coal mines with a first-level mining depth exceeding 1,000 meters, or the expansion or renovation of existing coal mines with a mining depth exceeding 1,200 meters, as well as the construction or expansion of small-scale coal mines with a mining depth exceeding 600 meters, shall be prohibited. The planning of new coal mines within ecologically sensitive areas—such as ecological protection redlines, natural protected areas, and drinking water source protection zones—shall be prohibited.
(6) Actively develop high-quality, advanced production capacity
We will continue to deepen supply-side structural reforms, prioritizing the five major coal supply guarantee bases, and rationally plan and construct coal mining clusters featuring advanced technology and equipment, reliable safety guarantees, and higher environmental protection standards, thereby increasing the proportion of advanced production capacity. For new coal mine projects, in principle, planning, design, and construction shall be completed in a single phase; projects meeting the required criteria should be designed and constructed according to intelligent mining standards. New coal mines, as well as those undergoing renovation or expansion, shall be equipped with corresponding-scale coal preparation plants (coal preparation facilities); in principle, new coal preparation plants shall be constructed according to intelligent mining standards. We will promote the construction of coal mines under the "one shaft, one processing area" or "one shaft, two processing areas" models, optimize the production and development layout, and achieve workforce reduction and efficiency improvement.
(7) Promoting the phase-out of outdated and inefficient production capacity
We shall adhere to the principle of "establishing new before abolishing old," coordinate the closure and phase-out of coal mines with regional supply security, and promote the orderly exit of coal mines with outdated production capacities in accordance with market-oriented and rule-of-law-based principles. In the western region, we will optimize the production structure and accelerate the elimination of coal mines with inferior technological equipment or those located within ecologically sensitive areas. In the eastern and central regions, we will steadily advance the exit of coal mines that suffer from severe disasters and cannot be effectively remediated, as well as those with depleted resources, while properly addressing residual issues and ensuring the resettlement of affected workers. In southwestern and northeastern regions, we will establish policy standards tailored to local conditions to rationally guide small and medium-sized coal mines with poor resource conditions and low safety assurance levels to exit the industry, and utilize policy incentives and market mechanisms to expedite the complete exit of coal mines that have been suspended in production or construction for an extended period.
(8) Steadily and prudently advance deep resource extraction
Conduct in-depth surveys and assessments of deep coal resources, optimize the layout of resource exploration activities, reasonably control mine mining depths, and implement categorized strategies for deep resource development. For coal mines with mining depths ranging from 600 to 1,000 meters, enhance detailed exploration efforts, strictly limit the number of working faces, strengthen disaster mitigation measures, and promote deep resource extraction technologies such as backfilling mining and layer-breaking backfilling. For coal mines with mining depths ranging from 1,000 to 1,200 meters, intensify supplementary exploration, conduct research on major deep-seated disaster mitigation, and advance the safe and green development of deep resources. Organize pilot trials for deep resource development in an orderly manner, thoroughly evaluate the technical and economic feasibility of proposed projects, and, in principle, restrict mining depths to below 1,200 meters, with the maximum depth not exceeding 1,500 meters.
IV. Strengthening the development of the coal production–supply–storage–marketing system
(9) Continuously strengthening efforts to ensure stable coal production and supply
Optimize coal production organization, scientifically plan mining and extraction sequences, and orderly release advanced production capacity. Research the establishment of a collaborative production mechanism among key coal-producing provinces and regions to promote stable market operations. Strengthen supply-demand monitoring and production scheduling; reinforce the signing and fulfillment of medium-and long-term contracts for guaranteed coal supply; efficiently implement regional mutual support and multi-energy complementarity; and enhance peak-load supply capabilities during critical periods such as summer peak demand and winter peak demand. Stabilize coal supplies in key regions including the "Two Lakes and One River" area, Northeast China, and Southwest China; deepen supply-demand coordination and strategic cooperation between coal-importing regions and major coal-producing areas; optimize the layout of coal storage bases; increase coal stockpiles at power plants; and prioritize the guarantee of coal requirements for people's livelihoods.
(10) Optimizing and improving the coal transportation system
Strengthen the construction of key coal rail transport corridors, improve the multimodal transport systems for "West-to-East Coal Transport" and "North-to-South Coal Transport," and reinforce the supporting collection and distribution infrastructure along major transport corridors. Accelerate the capacity expansion of the "Xinjiang Coal External Transport" corridor to establish a railway transport network system for Xinjiang coal exiting the region characterized by "one central axis, two wings, and multiple interconnections." Promote the transition from road to rail and from road to water transport for medium-and long-distance coal transportation; actively develop transport organization models such as "water-to-water transshipment" and "heavy-load outbound followed by heavy-load return via rail"; promote clean alternatives for short-distance transportation, including coal transport corridors and new energy heavy-duty trucks; and increase the proportion of green transportation modes.
(11) Accelerate the development of coal reserve capacity
Improve the coal reserve system by coordinating efforts to strengthen reserves of coal products, production capacity, and mining areas; advance the development of reserve capacity in an orderly manner; and enhance emergency supply assurance capabilities. Support eligible enterprises in establishing coal product reserves. Solidly implement the production capacity reserve system, encourage large-scale coal mines to actively build production capacity reserves, continuously expand the scale of these reserves, strengthen the dispatch and supervision of reserved coal mines, and gradually establish a production capacity reserve framework characterized by appropriate scale, effective regulation, and robust support; by 2030, the total coal production capacity reserve shall reach at least 100 million tons. Coordinate coal resource conditions to carry out mining area reserves in an orderly fashion. Improve the inventory management system for key coal mines and coal-consuming enterprises, and enhance the coal adjustment capacity within the distribution chain.
(12) Enhance coal emergency response and supply assurance capabilities
Establish and refine a coal supply safety risk assessment system and an emergency response mechanism; strengthen risk monitoring and early warning systems; improve emergency contingency plans to ensure energy security; and guarantee coal demand during emergency situations. Enhance the coordination and linkage between product reserves and production capacity reserves; strengthen the management and unified dispatch of production capacity reserves; conduct flexible production drills at reserve coal mines when appropriate; and enhance the capability for "normal-to-emergency transition."
V. Promoting the intelligent iterative upgrading of coal mines
(13) Promoting intelligent construction through categorized and tiered approaches
Focus on key production processes such as intelligent mining and excavation in coal mines, implement classified intelligent upgrading and transformation initiatives, and conduct pilot projects for technical applications; strengthen the integrated application of technological innovations to enhance the intelligent control capabilities of complete sets of equipment and the autonomous operation capabilities of the systems. Accelerate the development of fully intelligent coal mines across the entire system, and strengthen the interconnection, coupling, and coordinated operation among multiple subsystems. Coordinate the joint intelligent upgrading of multiple coal mines, leverage the industrial agglomeration advantages of key enterprises, promote an overall planning and phased advancement model for mining areas, and accelerate the high-level development of clusters of intelligent coal mines.
(14) Accelerating the scenario-based application of artificial intelligence
Deeply implement the "AI+" initiative, strengthen the collection of AI-related data in the coal sector, and promote the systematic application of artificial intelligence in key scenarios such as exploration and design, construction and production, operation and maintenance, and safety management. Accelerate the research, development, and promotion of specialized large language models for the coal sector, with a focus on
Break through key technological bottlenecks in intelligent perception, autonomous decision-making, and intelligent control; cultivate and establish a number of pilot coal mines for AI-integrated applications to enhance safety standards in coal mining operations; vigorously implement intelligent transformation initiatives for mines with severe disaster risks or those that have experienced major or more serious accidents; and promote the replacement of hazardous and labor-intensive tasks with robotic operations.
(15) Enhancing the intelligent operational efficiency of coal mines
Fully leverage the functional potential of intelligent systems, enhance their scenario-based applications and on-site adaptability, and prioritize ensuring the routine and reliable operation of intelligent systems—including automatic coal mining cutting and machine-following roof shifting, remote-controlled cutting for tunneling, and unmanned coordinated operations for open-pit mines. Coal mining enterprises are encouraged to establish specialized intelligent operation and maintenance (O&M) departments and strengthen O&M skills training. Research should be conducted to formulate evaluation methods for the routine operational management of intelligent systems, thereby improving O&M quality and management standards. Additionally, efforts should be made to establish an Intelligent Coal Mining Industry Standardization Technical Committee and accelerate the refinement of the standardization framework for intelligent coal mines.
VI. Accelerating the green and low-carbon transition of coal sector
(16) Enhancing the level of green resource extraction
Further advance the construction of an ecological civilization by improving standards and specifications for green coal exploration, design, construction, and production, and by refining long-term mechanisms for green development. Promote green mining technologies—such as backfilling mining, layer-separation backfilling, and water-retaining mining—in accordance with local conditions. Strictly implement water abstraction permit management requirements, strengthen the protection of mine water at its source, and promote tiered treatment and diversified utilization of mine water. Promote circular economy models in mining areas, advance the reduction, resource recovery, and harmless disposal and utilization of coal gangue, and enhance the comprehensive utilization rate of co-occurring resources within coal-forming sequences.
(17) Strengthening whole-process energy conservation and carbon reduction
Optimize mining district designs and system layouts, scientifically select mining processes, and enhance coal resource recovery rates; align practices with benchmark and advanced standards to accelerate the replacement of key energy-consuming equipment in mining areas, promote the adoption of advanced and applicable energy-saving technologies—such as intelligent variable-frequency speed control for high-load electromechanical equipment and energy consumption monitoring—to improve the energy efficiency of equipment and facilities; strengthen the comprehensive utilization of waste heat and waste pressure within mining areas, and explore integrated heating systems utilizing multiple heat sources; research the establishment of a carbon emission and carbon footprint monitoring system and corresponding measurement methods for coal production to advance the development of low-carbon and zero-carbon mining zones; optimize the production and transportation organization of coal mines to reduce transportation and transfer operations as well as unnecessary re-trips; encourage mining areas to prioritize the use of clean transportation modes, such as electric heavy-duty trucks; thereby reducing carbon emissions during the coal mining process and increasing the proportion of green energy usage.
(18) Strengthen the large-scale development and utilization of coalbed methane (coal mine gas).
Consolidate and expand the achievements in establishing two major coalbed methane (CBM) industrial bases within the Qinshui Basin and the eastern Ordos Basin; implement a work plan for increasing CBM reserves and production in key regions; stabilize production levels in shallow and middle-maturity blocks; and accelerate the ramp-up of production from deep CBM blocks; promote integrated surface–underground CBM extraction at coal mines; intensify surface pre-extraction efforts to enhance the concentration and stability of extracted gas underground; strengthen the utilization of total gas concentrations; and develop localized utilization methods such as power generation and heating based on local conditions; and steadily advance methane emission control measures within the coal industry.
(19) Promoting the integrated development of coal and new energy
Effectively revitalizing factor resources such as mining area land, and making full use of subsidence zones and industrial sites to promote the development of the photovoltaic and wind power industries. Efforts should be made to enhance the production load regulation capabilities of mining areas, systematically implement direct grid integration for green electricity, encourage participation in green certificate and green electricity trading, and strive to increase the proportion of green electricity usage. Based on local conditions, intelligent microgrids featuring coordinated control of "generation–grid–load–storage" systems should be constructed within mining areas, facilitating the integrated development and operation of photovoltaic and wind power generation, gas-fired power generation, diversified energy storage solutions, and intelligent control systems. Support should be provided to coal enterprises to coordinate the spatial layout of coal-fired power generation and new energy sectors, thereby enhancing the benefits of synergistic integrated development.
VII. Strengthen the clean and efficient utilization of coal
(20) Actively promote the clean substitution of coal
Guided by the goals of carbon peaking and carbon neutrality, while ensuring energy security, we will promote the smooth peaking of coal consumption. We will advance the transformation and upgrading of coal consumption, with a focus on meeting the coal requirements for major national strategies and key projects, and effectively satisfying the reasonable incremental demand for thermal coal. We will accelerate energy conservation and reduction efforts in key coal-consuming industries, promote the shutdown, consolidation, or replacement of coal-fired boilers and industrial kilns with clean energy alternatives, expedite the widespread adoption of waste heat and waste pressure heating systems, and promote the use of renewable energy for heating. We will enhance the level of centralized coal utilization and reduce the use of decentralized coal. We will drive the substitution and reduction of coal usage as raw materials and fuels, promoting technologies such as electric steelmaking furnaces, electric boilers, electric kilns, and electric heating systems in industries such as steel production and building materials, thereby increasing the proportion of electricity-based alternatives to coal.
(21) Vigorously improving the quality of commercial coal
Promote the optimization of coal washing and screening capacities by phasing out inefficient facilities, accelerate the retrofitting and upgrading of existing facilities, strengthen clean and standardized production management, enhance the customization level of washing and processing services as well as the degree of fine and deep sorting, and steadily improve the raw coal screening efficiency. Additionally, refine the quality management system for commercial coal, establish a comprehensive quality standard system for commercial coal, and strengthen quality tracking, testing, and supervisory management throughout the entire process encompassing production, distribution, and utilization.
(22) Accelerate the implementation of the transformation and upgrading of coal-fired power generation
We will continue to advance the Special Campaign for Upgrading New-Generation Coal-fired Power Plants, actively and systematically promoting the retrofitting and construction of both existing and newly built power units to adopt new-generation coal-fired power technologies. We will vigorously promote energy-saving and carbon-reduction retrofits for coal-fired power plants by promoting technologies such as high-efficiency combustion, waste heat utilization, and intelligent control systems, while accelerating the replacement and upgrading of energy-consuming equipment—including wind turbines, heat pumps, boilers, steam turbines, and transformers. We will encourage existing coal-fired power units to undergo low-carbon transformation through methods such as integrating with new energy sources, incorporating biomass co-firing, and constructing energy storage (thermal storage) facilities, thereby reducing their carbon emission levels. Additionally, we will encourage the integrated development of coal-fired power and new energy sources to achieve complementary advantages between new energy and coal-fired power generation.
(23) Orderly expansion of the utilization of coal as a raw material
Strengthen the classified management of coal types, promote the differentiated utilization of coking coal, oil-rich coal, and other coal varieties according to local conditions, and facilitate the transition of coal toward equal emphasis on both fuel and raw material applications. Scientifically plan the production capacity and layout of coal-to-gas and coal-to-liquid projects, orderly advance the construction of strategic coal-to-liquids and coal-to-gas bases in Ordos (Inner Mongolia), Yulin (Shaanxi), Zhundong (Xinjiang), and Hami (Xinjiang), and enhance the production capacity and technological reserves for coal-to-gas and coal-to-liquid processes. Promote industrial breakthroughs in coal-to-aromatic hydrocarbons and coal-based biodegradable materials.
VIII. Enhancing Coal Industry Scientific and Technological Innovation Capabilities
(24) Strengthen basic research in industrial applications
We will further implement the innovation-driven development strategy, strengthen original explorations in applied fundamental theories, facilitate effective integration between theoretical advancements in fields such as artificial intelligence, communications and information technology, and materials science with coal-based application scenarios, tackle a number of disruptive and pioneering fundamental scientific challenges, and enhance original innovation capabilities. Priority will be given to supporting fundamental theoretical research in areas including unmanned coal mining, utilization of coal-derived solid waste and associated resources, and multi-energy coupling based on coal, thereby elevating the overall level of basic research in the coal sector.
(25) Promote the research, development, and application of advanced technological equipment
Implement the National Major Science and Technology Projects in the coal sector with high standards and quality. Strengthen the research and development of key coal-related technologies and equipment, and intensify efforts to overcome technical challenges in areas such as rapid tunneling for coal and rock mines and efficient mining in ultra-large open-pit coal mines. Accelerate the independent R&D and domestic substitution of industrial software and critical components for coal mining machinery and equipment, and facilitate the deployment and application of first-of-its-kind major technological equipment in the energy sector. Encourage and support the development of cutting-edge green and low-carbon technologies, including large-scale, low-energy-consumption carbon dioxide capture, mineralization-based conversion and utilization, high-efficiency catalytic reduction, and reliable carbon storage.
(26) Enhancing the coal industry's scientific and technological innovation system
Optimize the allocation of scientific research tasks within the coal sector, and refine mechanisms for rewarding scientific and technological achievements, as well as for protecting and leveraging intellectual property rights. Strengthen the cultivation of innovative talent, enhance the development of coal-related disciplines in higher education institutions, and build a cross-disciplinary cohort of versatile professionals. Reinforce the leading role of enterprises in scientific and technological innovation, and support coal enterprises in collaborating with research institutions to establish original technology "innovation hubs" and "chain leaders" for modern industrial chains. Improve diversified investment mechanisms, guide financial institutions to support and serve scientific and technological innovation in the coal industry, and stimulate the innovation vitality of the sector.
IX. Strengthening Coal Production Safety Management
(27) Strengthening the foundation of coal mine work safety
We shall adhere to the principle of putting people and their lives first, promote a shift in the safety governance model for coal mines toward proactive prevention, and effectively prevent the occurrence of major and catastrophic accidents. We will strictly implement the primary responsibilities of coal mine enterprises, refine long-term mechanisms for work safety, strengthen work safety education and training, and ensure adequate investment in work safety. We will rigorously enforce entry requirements for work safety, enhance the review of safety facility designs, and strengthen control at the source. We will improve and refine the dual-prevention mechanism comprising hierarchical safety risk management and the identification and rectification of potential hazards, thereby enhancing the overall level of safety prevention and control. We will implement the "Three Managements and Three Musts" requirement, strengthen work safety supervision and inspection, improve emergency response plans, conduct realistic drills, and enhance material reserves, thereby strengthening emergency response and rescue capabilities.
(28) Further strengthening the prevention and control of major hazards in coal mines
Strengthen the dynamic survey of concealed hazard factors in coal mines; implement specialized designs for major disasters, regional-based remediation measures, and proactive control strategies to enhance the level of risk prevention and control for work safety. Further advance the management of major disasters by accelerating the phase-out of high-risk technological processes and outdated technical equipment, promoting the application of intelligent prevention and control systems as well as advanced disaster mitigation technologies, strengthening slope stability monitoring and landslide prevention measures at open-pit coal mines, and enhancing source-level prevention capabilities. Conduct research on the mechanisms of coal mine impact pressure to refine and improve the technical framework for impact pressure prevention and control. Promote the coordinated management of multiple types of disasters to comprehensively elevate the overall capacity for preventing and mitigating major disasters.
(29) Strengthen occupational health protection in coal mines
Improve the occupational disease prevention and control system in coal mines by focusing on key processes, key positions, and key personnel within coal mining enterprises; strengthen source-level prevention and control of occupational health hazards; fully implement the occupational health monitoring system; promote enterprises to fulfill their primary responsibility for dust prevention; improve the working environment in coal mines; establish and refine occupational health records for employees; ensure the entitlements of employees under work-related injury insurance; and enhance the occupational health management institutions and institutional framework to effectively safeguard the safety and health rights of coal mine workers.
X. Enhancing the modernization of industry governance
(30) Continuously advance the development of a modern coal market
Actively develop a unified national coal trading market, refine its foundational systems and rules, strengthen information-sharing mechanisms, and further leverage the role of the National Coal Trading Center. Improve the medium-and long-term contract system for ensuring the supply of thermal coal, promote the standardization and normalization of coal trading contracts, and enhance supervision over the signing and performance of these contracts. Enhance the coal price formation mechanism; in light of market conditions and cost fluctuations, timely adjust the coal price range control policy and regulate the operation of price indices.
(31) Improve the industry management system
Actively advance the revision of the Coal Law and improve the coal industry standard (MT) system. Strengthen the management of overall planning for coal mining areas, strictly implement the development plans specified in these overall plans, and enhance the level of intensive and efficient resource utilization. Enhance the "single ledger" management of production capacity, adjust and refine the capacity replacement policy at appropriate times, strengthen the management of capacity registration and public announcement procedures, and promote stable and orderly construction and production activities. Strengthen the management of coal mine closure and exit plans, guide enterprises toward a smooth transition, and ensure the prudent handling of personnel resettlement, debt resolution, and ecological restoration efforts. Improve the statistical system for coal production, supply, storage, and sales; strengthen information sharing and collaborative supervision among departments such as energy, work safety supervision, and taxation; enhance the supervision and management of coal production; severely crack down on coal mines exceeding their approved production capacities; and standardize the order of the coal market. Research and introduce long-term mechanisms to standardize coal production capacity management. Improve and refine the industry's education and training system, strengthen the cultivation of professional technical talent, and enhance the professional competence and quality of practitioners.
(32) Promoting the reform and development of coal enterprises
Deepen the reform of state-owned assets and state-owned enterprises within the coal industry. Support coal enterprises in leveraging their inherent advantages to restructure and integrate with enterprises in sectors such as power generation, new energy, and chemical industries; foster strategic emerging industries and future-oriented industries; and build world-class integrated energy enterprises.
A source production service provider that supports private enterprises in participating fairly in coal resource development and facilitates standardized equity partnerships and resource integration. It actively advances the cultivation of ethical and cultural excellence within the industry, builds distinctive cultural brands, and enriches the spiritual life of its employees.
Cultural Life.
(33) Actively promote international exchange and cooperation
Make full use of both international and domestic markets and resources to consolidate and enhance the import corridor framework; strengthen research on international coal production and trade trends; expand trade in technical consulting services; and establish platforms for international cooperation and exchanges.
Share experiences in the green and low-carbon transition of coal industries.
XI. Organizational Support
We shall conscientiously implement the requirements of the National Development Plan Law, strengthen the guiding and binding role of development plans, enhance overall coordination and support mechanisms, ensure that all relevant departments under the State Council work in close cooperation according to their respective responsibilities, formulate and refine relevant policy measures, and involve local governments and other stakeholders.
Relevant departments shall refine and break down the planning objectives and key tasks to ensure the smooth implementation of the plan; they shall guide financial institutions to support coal's safe, green, and low-carbon development in accordance with market-oriented and rule-of-law principles; and they shall accelerate the establishment of an industry credit system and strengthen relevant mechanisms.
Implement comprehensive full-process supervision and management: conduct environmental impact assessments in accordance with regulations, fulfill ecological and environmental protection requirements, adopt countermeasures to mitigate the environmental impacts of coal resource development, and enhance the level of green development in the coal sector; additionally, provide effective interpretation of planning documents.
Conduct publicity campaigns; refine the monitoring and dynamic evaluation mechanisms for plan implementation; and carry out mid-term and final evaluations.
Annex: Coalbed Methane (Coal Mine Gas) Development and Utilization Plan
The development and utilization of coalbed methane (coal mine gas) offer multiple benefits, including ensuring safe coal mining operations, increasing the supply of clean energy, and reducing greenhouse gas emissions. The "15th Five-Year Plan" period marks a phase of intensified efforts toward an energy transition toward green and low-carbon development.
During this critical period of coal industry transformation and transition, the development and utilization of coalbed methane (coal mine gas) are ushering in new and significant opportunities for growth. To accelerate the exploration and development of coalbed methane as well as the extraction and utilization of coal mine gas, this plan is hereby formulated.
I. General Requirements
We shall adhere to Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era as our guiding principle, thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, earnestly carry out the arrangements made at the Fourth Plenary Session, better coordinate development with security, and uphold the principle of fighting.
Strengthen strategic thinking and the systemic approach, coordinate efforts to ensure energy security and stable supply with the green and low-carbon transition, vigorously promote increased production and improved efficiency in coalbed methane industrial bases, continuously deepen innovations in coal mine gas management methods, and actively build a comprehensive gas management framework.
Leveraging the synergy between methane emission control and other measures to advance development will provide strong support for the high-quality growth of the coal industry, facilitate the establishment of a new energy system, and contribute to achieving the goal of building China into an energy powerhouse.
During the "15th Five-Year Plan" period, significant achievements were made in increasing coalbed methane reserves and production, while the gas extraction utilization rate in coal mines has steadily improved. By 2030, coalbed methane production is projected to reach 26 billion cubic meters, with gas utilization reaching 6.5 billion cubic meters.
II. Key Tasks
(1) Coalbed Methane Exploration and Development
1. Promoting stable production and increased output at the coalbed methane industry base in the Qinshui Basin
Implement comprehensive remediation of legacy areas within active mining blocks such as Jincheng Mining District, Zhengzhuang, and Panzhuang; conduct rolling evaluations and vertical potential tapping; increase the density of new wells; advance refined development; and stabilize coalbed methane production. Accelerate the development and construction of blocks including Qinnan, Mabidong, Mabidong Cooperation, and Shizhuangbei to facilitate a rapid increase in coalbed methane output. Intensify exploration efforts in blocks such as Heshun Hengling, Fazhong, Zhongyu, and Heshun Mafang East to expand production enhancement opportunities.
2. Accelerating the rapid production ramp-up of the coalbed methane industry base in the eastern Ordos Basin
Focus on deep coalbed methane resources and accelerate the exploitation of favorable areas across various blocks—including Daning–Jixian, Mizhi North, Shenfu, Shilou West, Linxing Central, Daniuodi, Yichuan, Jiaxian, and Yanchuan South—and vigorously advance the construction of new production capacity. Actively initiate preliminary production deployment and pilot extraction operations in the Sanjiao North, Linxing West, Linxing East, Anhe–Nanhegou, Shilou North, Liulin Shiwest, and Suide blocks to rapidly establish effective production capacity. Promote steady growth in production levels across the Baode, Sanjiao–Qikou, Liulin, and Hancheng blocks.
3. Accelerating the industrialization of coalbed methane in Xinjiang
Innovate cooperation models between central state-owned enterprises and local authorities, adhere to a coordinated planning approach at both shallow and deep levels, and promote the efficient development of coalbed methane resources in the Kubai area of the Tarim Basin. Thoroughly advance the exploration and development of boundary expansion projects in blocks such as Fukang within the Junggar Basin, striving to achieve new discoveries; accelerate the exploration for coalbed methane resources in regions including Shawan–Qigu, Heshiluohe–Wurenqu, Nilerke in the Ili Basin, and Naomaohu in the Santanghu Basin; and scientifically conduct resource assessments and trial extraction in favorable areas.
4. Actively expand into other resource development regions
Strengthen trial development in the Qianxi Basin and Sichuan Basin, and expand the scale of exploration and development; advance coalbed methane resource exploration in regions such as the South China Basin, North China Basin, Songliao Basin, Hailar Basin, Erenhot Basin, and Bohai Bay Basin, with the aim of discovering new proven resources.
(2) Coal Mine Gas Extraction and Utilization
1. Deepening the integrated extraction of coal and coal mine methane
Focus on coal mines with high methane concentrations or those prone to coal and gas outbursts, and promote integrated in-situ and surface-based methane extraction. Intensify methane pre-extraction efforts by prioritizing pre-extraction measures such as extraction and pressure relief using protective layers, surface wells, and cross-cutting boreholes through the roof and floor; these measures aim to reduce methane levels in coal mine production areas in advance. Establish an evaluation system for the effectiveness of surface well pre-extraction. Standardize methane extraction drilling operations, promote advanced sealing techniques and materials, and enhance both the quality of borehole sealing and the stability of methane extraction. Strengthen the management of geological data for abandoned mining areas and closed mines, and support surface-based methane extraction at eligible closed mines. Encourage coal enterprises to establish specialized surface-based methane extraction teams, thereby broadening employment transition channels for underground workers.
2. Strengthen the comprehensive utilization of coal mine methane
Steadily advance the purification and utilization of methane with concentrations exceeding 30%; support coal mining enterprises in adapting their operations to local conditions by transporting high-concentration methane via pipelines or Compressed Natural Gas (CNG), among other methods. Vigorously promote the generation and utilization of electricity from methane with concentrations ranging from 8% to 30%, supporting priority for self-generation and self-use, with surplus electricity fed into the grid. Encourage the adoption of methods such as regenerative oxidation and catalytic oxidation to utilize methane with concentrations below 8%. Actively explore utilization methods for waste flue gas methane, including blending with regenerative oxidation systems. Support coal mining enterprises in constructing decentralized methane utilization facilities based on their specific methane extraction conditions, thereby enhancing the flexibility of methane utilization. Encourage mining areas where conditions permit to establish interconnected methane transmission and distribution systems, utilizing centralized comprehensive utilization approaches to expand the scale of methane utilization.
3. Steadily advance methane emission control measures in the coal industry
Establish and strengthen a coordinated mechanism for methane emission control in the coal industry, and actively participate in the reduction of non-CO₂ greenhouse gas emissions. Promote the standardized installation of methane emission monitoring equipment in operational underground coal mines to enhance precise monitoring capabilities. Improve the statistical system for methane emissions associated with coal mining activities, and encourage coal enterprise groups to establish methane emission statistical analysis platforms. Strictly implement the "Coalbed Methane (Coal Mine Gas) Emission Standards," and rigorously control low-concentration gas emissions where the methane concentration is ≥ 8% and the extracted pure volume is ≥ 10 m³/min. Encourage the inclusion of gas utilization and methane emission control measures in corporate social responsibility reports, and promote exemplary practices in methane emission control. Facilitate international exchanges and cooperation on methane emission control to showcase the achievements made by China's coal industry in this area.
(3) Industrial Science and Technology Innovation
1. Strengthen R&D efforts in coalbed methane exploration and development technologies
In the Qinshui Basin, research will focus on high-efficiency drilling and completion of shallow and medium-depth horizontal wells, as well as advanced development of existing wells, reservoir modification, and supplementary injection into new strata, aiming to enhance reserve control accuracy and recovery efficiency. In the eastern Ordos Basin, research will prioritize the classification evaluation, occurrence characteristics, formation mechanisms, optimal zone selection, fast drilling completion, and high-efficiency production technologies for deep coalbed methane resources, thereby solidifying the foundation for sustained increases in deep coalbed methane reserves and production. In the Xinjiang region, research will concentrate on technical equipment for evaluating thick steeply dipping coal seams and low-rank coal seams, as well as for production enhancement and modification, to promote large-scale development. In the Sichuan Basin and Qianxi Basin, research will focus on evaluating marine–land transitional overlain multi-thin-layer reservoirs and advancing efficient development in complex structural areas, thereby driving regional coalbed methane production growth. In the Bohai Bay Basin, research will emphasize the classification evaluation of strongly modified basin low-to-medium rank coalbed methane resources, along with technical equipment for fast drilling and fracturing of thin coal seams, to achieve new breakthroughs in exploration and development.
2. Accelerate R&D efforts to advance coal mine methane extraction and utilization technologies
Conduct R&D on technical equipment such as surface-based gas extraction in coal seams with fragmented and soft conditions under high stress; surface-based unloading and permeability enhancement for low-permeability coal seams; underground safe and efficient permeability enhancement; high-flow-rate, high-efficiency sand-filling fracturing; remote centralized control systems for automated gas extraction drilling rigs; high-efficiency sealing of gas-extraction boreholes underground; and intelligent gas extraction systems to enhance gas extraction efficiency; conduct research on surface detection and extraction technologies and equipment for mined-out areas, as well as evaluation methods for the recoverability of coalbed methane resources in closed mines; accelerate the upgrading and promotion of gas purification, regenerative oxidation, and catalytic oxidation technologies in coal mines with gas concentrations below 8%; strengthen research on automatic blending technologies for gas of both high and low concentrations; and enhance the development and application of internal combustion engine power generation equipment capable of adapting to significant fluctuations in gas concentration and purity, thereby improving the operational adaptability of such power generation equipment.
3. Refine the collaborative mechanism for scientific and technological innovation advancement
Fully leverage the role of major national science and technology projects to strengthen the R&D of key technologies for coalbed methane (coal mine gas) exploration, development, and utilization. Focusing on key technical breakthrough areas, a new round of projects shall be launched for coalbed methane exploration and development, as well as for the promotion of high-efficiency coal mine gas extraction and utilization technologies. National innovation platforms, universities, and enterprises are encouraged to engage in deep collaboration, while cooperation between equipment developers and end-users in R&D shall be enhanced. Multi-domain and multi-level technical exchange activities shall be organized to promote advanced technologies, processes, and management practices.
(4) Construction of coalbed methane external transmission pipeline network
Implement the relevant requirements for the planning and construction of natural gas infrastructure; align with the planning layout of the "National Single Gas Network"; coordinate the planning and construction of coalbed methane (CBM) gas transmission pipelines across various regions; encourage priority access to local natural gas trunk or branch pipelines; and ensure the output and sales of CBM. Carry out the construction of projects such as the Yuncheng–Sanmenxia (CBM) gas transmission pipeline and the Jiangsu-Anhui-Henan trunk pipeline (Duanshi branch line), thereby supporting the external transportation of CBM from the Qinshui Basin; advance preliminary work on the connection project between West Line 1 and West Line 2, as well as the Fifth Phase of the West-to-East Natural Gas Transmission Project (Jingbian–Duanshi), to enhance the external transportation capacity of CBM from the Ordos Basin.
III. Safeguard Measures
Strengthen and refine support policies for coalbed methane and coal mine gas utilization, and enhance safeguards for key elements such as mining rights, land use, and water supply. Adhere to the target-based management approach for increasing coalbed methane reserves and production, as well as for the extraction and utilization of coal mine gas, while strengthening daily scheduling and monitoring efforts. Relevant local authorities and central enterprises shall research and formulate implementation measures to facilitate the effective execution of this plan.