〔2020〕No. 39
People's Governments of all provinces, autonomous regions, and municipalities directly under the Central Government; all ministries and commissions of the State Council; and all directly affiliated institutions of the State Council:
The Development Plan for the New Energy Vehicle Industry (2021-2035) has been approved by the State Council and is hereby printed and distributed to you for earnest implementation.
General Office of the State Council
October 20, 2020
(This document is publicly released)
Chapter I: Development Trends
Section 1: NEVs Inject New Momentum into Global Economic Development
Currently, a new round of global technological revolution and industrial transformation is booming. Technologies in the automobile, energy, transportation, information and communication sectors are converging at an accelerated pace, with electrification, connectivity, and intelligence becoming the dominant trends in the automobile industry. Integrating new energy, new materials, the Internet, big data, artificial intelligence (AI) and other transformative technologies, NEVs are evolving from mere means of transportation into mobile smart terminals, energy storage units, and digital spaces. They drive the upgrading of energy, transportation, and information and communication infrastructure, optimize the energy consumption structure, and enhance the intelligence level of transportation systems and urban operations. This is of great significance for building a clean and beautiful world and fostering a community with a shared future for mankind. In recent years, major global automobile-producing countries have strengthened strategic planning and policy support, while multinational automobile enterprises have increased R&D investment and improved industrial layout. NEVs have become the main direction of the global automobile industry transformation and an important engine for sustained global economic growth.
Profound changes are taking place in automobile product forms, transportation modes, energy consumption structures, and social operation methods, providing unprecedented development opportunities for the NEV industry. Through years of continuous efforts, China's NEV industry has achieved significant technological progress, improved industrial systems, and enhanced enterprise competitiveness. Since 2015, its production, sales, and ownership have ranked first in the world for five consecutive years, entering a new stage of integrated and converged development. It is imperative to seize strategic opportunities, consolidate the sound development momentum, give full play to advantages in infrastructure, information and communication, continuously enhance industrial core competitiveness, and promote the high-quality and sustainable development of the NEV industry.
With the comprehensive transformation of automobile power sources, production and operation methods, and consumption patterns, the NEV industrial ecosystem is gradually evolving from a "chain relationship" among component suppliers, vehicle R&D and manufacturing enterprises, and marketing service providers into a "networked ecosystem" involving multiple fields and subjects such as automobiles, energy, transportation, and information and communication. Mutual empowerment and coordinated development have become inherent needs for the growth of various market entities. Cross-industry and cross-field integrated innovation, as well as more open and inclusive international cooperation, have become the era characteristics of NEV industry development, greatly enhancing industrial momentum, stimulating market vitality, and promoting the formation of a new industrial development pattern of mutual integration, symbiosis, and win-win cooperation.
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, adhering to the development concept of innovation, coordination, green development, openness, and sharing, taking deepening supply-side structural reform as the main line, and adhering to the development direction of electrification, connectivity, and intelligence, we will thoroughly implement the national strategy for developing NEVs. Focusing on integrated innovation, we will break through key core technologies, enhance industrial foundation capacity, build a new industrial ecosystem, improve the infrastructure system, optimize the industrial development environment, promote the high-quality and sustainable development of China's NEV industry, and accelerate the building of an automobile power.
1. Market Leadership: Give full play to the decisive role of the market in resource allocation, and strengthen enterprises' dominant position in technological route selection and the construction of production and service systems. Better leverage the government's role in strategic planning and guidance, standard and regulatory formulation, quality and safety supervision, market order maintenance, and green consumption guidance to create a sound environment for industrial development.
2. Innovation-Driven: Thoroughly implement the innovation-driven development strategy, establish a technology innovation system with enterprises as the main body, the market as the guide, and the integration of production, education, research, and application. Improve the institutional environment for encouraging and protecting innovation, encourage the parallel development of multiple technological routes, support various entities to jointly tackle key core technologies, intensify business model innovation, and form a new industrial innovation ecosystem.
3. Coordinated Promotion: Improve the horizontal coordination and vertical connection mechanism, promote the in-depth integration of NEVs with energy, transportation, and information and communication. Coordinate the advancement of technology R&D, standard formulation, promotion and application, and infrastructure construction, and transform the advantage of a super-large-scale market into an industrial advantage.
4. Open Development: Adhere to the concept of open, interconnected, and mutually beneficial cooperation, expand high-standard opening-up, and promote reform, development, and innovation through opening-up. Combine "bringing in" with "going out", strengthen international cooperation, actively participate in international competition, foster new advantages in the NEV industry, and deeply integrate into the global industrial chain and value chain system.
By 2025, China's NEV market competitiveness will be significantly enhanced, major breakthroughs will be made in key technologies such as power batteries, drive motors, and vehicle operating systems, and the overall safety level will be comprehensively improved. The average power consumption of new pure electric passenger vehicles will drop to 12.0 kWh per 100 kilometers, and the sales volume of new NEVs will account for about 20% of the total sales of new automobiles. Highly autonomous driving vehicles will realize commercial application in restricted areas and specific scenarios, and the convenience of charging and swapping services will be significantly improved.
Through 15 years of continuous efforts, China's NEV core technologies will reach the international advanced level, and its quality and brands will have strong international competitiveness. Pure electric vehicles will become the mainstream of new vehicle sales, all vehicles in public sectors will be electrified, fuel cell vehicles will realize commercial application, and highly autonomous driving vehicles will be applied on a large scale. The charging and swapping service network will be convenient and efficient, the construction of the hydrogen fuel supply system will advance steadily, effectively promoting the improvement of energy conservation and emission reduction levels and social operation efficiency.
Strengthen integrated vehicle technology innovation. Take pure electric vehicles, plug-in hybrid electric vehicles (including extended-range electric vehicles), and fuel cell vehicles as the "Three Verticals" to layout the vehicle technology innovation chain. Develop a new generation of modular high-performance vehicle platforms, tackle key technologies such as integrated design of pure electric vehicle chassis and multi-energy power system integration, break through common energy-saving technologies such as intelligent energy management and control, lightweight, and low friction, improve the safety technology level of battery management, charging connection, and structural design, and enhance the comprehensive performance of NEVs.
Improve industrial foundation capacity. Take power batteries and management systems, drive motors and power electronics, and connectivity and intelligent technologies as the "Three Horizontals" to build a key component technology supply system. Conduct R&D on advanced modular power battery and fuel cell system technologies, explore new generation vehicle motor drive system solutions, strengthen the development of key components and systems for intelligent connected vehicles, break through bottlenecks such as computing and control basic platform technologies and hydrogen fuel cell vehicle application support technologies, and enhance the R&D capacity of basic key technologies, advanced basic processes, basic core components, and key basic materials.
Section 2: Accelerating the Construction of Common Technology Innovation Platforms
Establish and improve a joint R&D mechanism among leading enterprises, national key laboratories, and national manufacturing innovation centers. Focus on short-board areas such as core processes, special materials, key components, and manufacturing equipment, actively explore different technological paths, and improve the supply capacity of key common technologies. Guide cross-field cooperation among automobile, energy, transportation, and information and communication industries, establish an integrated innovation platform for NEVs, smart energy, and intelligent transportation oriented to future mobility, jointly tackle basic interdisciplinary key technologies, and enhance the integrated innovation capacity of NEVs and related industries.
Section 3: Improving Industry Public Service Capacity
Relying on industry associations, innovation centers and other institutions, coordinate the construction and sharing of various innovation service platforms, and improve the support capacity of public services such as technology transfer, information services, talent training, project financing, and international exchanges. Apply technologies such as virtual reality, big data, and AI to establish virtual simulation and testing platforms for vehicle electrification, connectivity, and intelligence, and enhance the measurement, testing, performance evaluation, and certification capacity of vehicles and key components.
Encourage cross-border collaboration among enterprises in new energy vehicles, energy, transportation, information and communications, and other fields. Centering on the needs of diversified production and varied applications, foster ecosystem-leading enterprises covering key industrial chain links such as solutions, R&D and production, usage support, and operational services through open cooperation and benefit sharing. In regions with solid industrial foundations and concentrated innovation elements, leverage the driving role of leading enterprises to cultivate several internationally influential and competitive new energy vehicle industrial clusters featuring upstream-downstream collaborative innovation and integrated development of large, medium, and small enterprises, thereby enhancing the modernization level of the industrial chain.
Driven by the needs of vehicle manufacturers, give play to the role of innovation platforms such as leading enterprises and national manufacturing innovation centers. Adhere to the collaborative research of hardware and software to centrally develop vehicle operating systems. Centering on vehicle operating systems, build a development and application ecosystem with in-depth cooperation among market entities in whole vehicles, key components, basic data, software, and other fields. Accelerate the industrial application of vehicle operating systems through rapid product iteration and user scale expansion.
To meet the intelligent application needs of new energy vehicles, encourage enterprises in whole vehicles and components, internet, electronic information, communications, and other fields to form alliances. With the development and application of vehicle operating systems as the core, improve the safety, reliability, and convenience of operating systems and applications through iterative upgrades, expand the application scale, and form a sound ecosystem of open sharing and collaborative evolution.
Encourage enterprises to enhance the guarantee capacity of key resources such as lithium, nickel, cobalt, and platinum. Establish and improve the modular standard system for power batteries, accelerate breakthroughs in key manufacturing equipment, and improve process levels and production efficiency. Improve the circular utilization system for power battery recycling, echelon utilization, and remanufacturing, and encourage the joint construction and sharing of recycling channels. Establish and improve management systems for power battery transportation and storage, maintenance, safety inspection, retirement, recycling, and other links, and strengthen the whole-life-cycle supervision.
Based on the sustainable development of new energy vehicles, implement the extended producer responsibility system, strengthen the construction of the new energy vehicle power battery traceability management platform, and realize the whole-life-cycle traceability of power batteries. Support the innovative application of echelon power battery products in energy storage, backup power, battery swapping, and other fields, and strengthen the R&D of technologies such as residual energy detection, residual value assessment, recombination and utilization, and safety management. Optimize the layout of the recycling industry, promote the efficient extraction of valuable elements from scrapped power batteries, and facilitate the resource-oriented, high-value, and green development of the industry.
Promote the in-depth application of intelligent technologies in key links of new energy vehicles, including R&D and design, production and manufacturing, warehousing and logistics, operation and management, and after-sales services. Accelerate the development and integration of core industrial software for intelligent manufacturing simulation, management, and control of new energy vehicles, and carry out application demonstrations of smart factories and digital workshops. Expedite the promotion and application of the whole-product-life-cycle collaborative management system, support the construction of integrated demonstration platforms for design, manufacturing, and services, and enhance the intelligence level of the entire new energy vehicle industrial chain.
Launch initiatives to improve the quality of new energy vehicle products. Guide enterprises to strengthen the development and application of whole-process reliability technologies such as design, manufacturing, testing, and verification. Fully leverage advanced technologies including the internet, big data, and blockchain to improve the whole-product-life-cycle quality control and traceability mechanism. Encourage enterprises to emphasize brand development strategies, focusing on enhancing quality and service levels to build strong brands.
Implement the safe production mechanism integrating enterprise responsibility, government supervision, industry self-regulation, and social supervision. Strengthen enterprises' primary responsibility for product safety, enforce the extended producer responsibility system, and enhance quality and safety management, safety status monitoring, and maintenance inspection for whole vehicles and key systems such as power batteries and electronic control units. Improve safety standards and regulatory systems for new energy vehicles, components, maintenance and inspection, and battery swapping services. Strengthen the supervision of safe production and the safety recall management of new energy vehicles. Encourage industry organizations to intensify technical exchanges, summarize experience, and guide enterprises to continuously improve their safety performance.
Chapter 5: Promoting Industrial Integration and Development
Section 1: Promoting the Integration of New Energy Vehicles and Energy
Strengthen Energy Interaction Between New Energy Vehicles and Power Grids (V2G). Intensify R&D efforts on high-cycle-life power battery technologies and promote the application of low-power DC technologies. Encourage local governments to carry out V2G demonstration projects, coordinate the charging and discharging needs of new energy vehicles with power dispatch requirements, and comprehensively apply policies such as time-of-use electricity prices and new energy vehicle charging incentives. This will realize efficient energy interaction between new energy vehicles and power grids, reduce electricity costs for new energy vehicle users, and enhance the power grid's capacity for peak shaving, frequency regulation, and safety emergency response.
Promote Efficient Coordination Between New Energy Vehicles and Renewable Energy. Facilitate information sharing and integration between new energy vehicles, meteorological systems, and renewable energy power forecasting systems. Coordinate the energy utilization of new energy vehicles with the dispatch of wind and photovoltaic power to increase the proportion of renewable energy application. Encourage the construction of multi-functional integrated "PV-storage-charge-discharge" stations (distributed photovoltaic power generation - energy storage systems - charging and discharging). Support qualified regions in conducting commercial demonstration operations of fuel cell vehicles.
Section 2: Promoting the Integration of New Energy Vehicles and Transportation
Develop Integrated Intelligent Mobility Services. Accelerate the construction of a new type of intelligent transportation management and control system covering front-end information collection, edge distributed computing, and cloud collaborative control. Promote the application of new energy vehicles in time-sharing rental, urban public transport, taxis, and on-site transportation, and optimize the operating environment for new energy vehicles in public service sectors. Guide automobile manufacturers and mobility service providers to jointly build "one-stop" service platforms and advance the development and application of automated valet parking technology.
Build an Intelligent and Green Logistics and Transportation System. Promote the application of new energy vehicles in urban distribution, port operations, and other fields, and facilitate the passage of new energy trucks. Develop "Internet +" efficient logistics, innovate intelligent logistics operation models, promote the application of new models such as online freight and trailer sharing, and create a safe and efficient new format of logistics and transportation services.
Section 3: Promoting the Integration of New Energy Vehicles and Information and Communications
Advance Efficient "Human-Vehicle-Road-Cloud" Collaboration Linked by Data. Based on information from vehicle perception, traffic management, and urban governance, build a multi-layered data integration and computing platform for "Human-Vehicle-Road-Cloud". Conduct demonstration applications in specific scenarios, regions, and roads to promote innovative integrated application services of new energy vehicles and information and communications.
Establish a Cybersecurity Assurance System. Improve cybersecurity management systems for new energy vehicles and build a unified vehicle identity authentication and security trust system. Promote the in-depth application of cryptographic technologies, strengthen security testing of on-board information systems, service platforms, and key electronic components. Intensify the classified management and compliant application of new energy vehicle data, and improve risk assessment, early warning monitoring, and emergency response mechanisms to ensure information security across all links of "vehicle terminal - transmission network - cloud terminal".
Section 4: Strengthening Standard Alignment and Data Sharing
Establish a comprehensive standard system for the integrated development of new energy vehicles and related industries, specifying technical interface standards for vehicle operating systems, vehicle basic maps, vehicle-pile information sharing, and cloud control basic platforms. Build a cross-industry and cross-field comprehensive big data platform to promote the co-construction, sharing, and interconnection of various types of data.
Column 4: Smart City New Energy Vehicle Application Demonstration Action
Carry out comprehensive demonstrations including intelligent and orderly charging, integrated development of new energy vehicles and renewable energy, integration of urban infrastructure with intercity intelligent transportation, and integration of heterogeneous multi-mode communication networks. Support the demonstration application of autonomous driving in urban scenarios such as logistics and distribution, municipal sanitation, Bus Rapid Transit (BRT), automated valet parking, and other specific scenarios with intelligent connected vehicles as the carrier.
Chapter 6: Improving the Infrastructure System
Section 1: Vigorously Promoting the Construction of Charging and Swapping Network
Accelerate the Construction of Charging and Swapping Infrastructure. Scientifically layout charging and swapping infrastructure, and strengthen overall coordination with urban and rural construction planning, power grid planning, property management, and urban parking. Relying on "Internet +" smart energy, improve the intelligence level. Actively promote the residential area charging service model featuring intelligent and orderly slow charging as the mainstay and emergency fast charging as a supplement. Accelerate the formation of an appropriately advanced expressway and urban-rural public charging network with fast charging as the mainstay and slow charging as a supplement. Encourage the application of battery swapping models, strengthen the R&D of new charging technologies such as intelligent and orderly charging, high-power charging, and wireless charging, and improve charging convenience and product reliability.
Improve the Service Level of Charging Infrastructure. Guide enterprises to jointly establish an operation and service platform for charging facilities to achieve interconnection, information sharing, and unified settlement. Strengthen the R&D of technologies such as safety monitoring and early warning for charging equipment and power distribution systems, standardize the electromagnetic spectrum use of wireless charging facilities, improve the safety, consistency, and reliability of charging facilities, and enhance service guarantee capabilities.
Encourage Business Model Innovation. Combine the renovation of old residential areas and urban renewal to guide multi-party joint construction and operation of charging facilities. Support the development of cooperative models such as multiple vehicles sharing one charging pile and adjacent parking space sharing in residential areas. Encourage the integration of charging stations with commercial real estate to build integrated parking and charging service facilities, improve charging service capabilities in public places, and expand value-added services. Improve the insurance system for charging facilities to reduce operational risks for enterprises and usage risks for users.
Section 2: Coordinately Promoting the Construction of Intelligent Road Network Infrastructure
Promote the construction of a new generation of wireless communication networks, and accelerate the formulation and technological upgrading of Cellular Vehicle-to-Everything (C-V2X) standards based on cellular communication technology. Promote the digital transformation and upgrading of road infrastructure such as traffic signs and markings. Strengthen the intelligent interconnection between traffic lights, traffic signs and markings, communication facilities, intelligent roadside equipment, and on-board terminals. Advance the formulation of standards and the construction of management platforms related to the intelligent construction and transformation of urban road infrastructure. Accelerate the construction of differential base stations and promote the application of Beidou and other satellite navigation systems in high-precision positioning fields.
Section 3: Steadily Promoting the Construction of Hydrogen Fuel Supply System
Improve the Economy of Hydrogen Fuel Production, Storage, and Transportation. Promote the application of industrial by-product hydrogen and renewable energy hydrogen production technologies according to local conditions, and accelerate the industrialization of advanced and applicable hydrogen storage materials. Carry out demonstration applications of various storage and transportation technologies such as high-pressure gaseous, cryogenic gaseous, low-temperature liquid, and solid-state hydrogen storage. Explore the construction of hydrogen fuel transportation pipelines to gradually reduce the cost of hydrogen fuel storage and transportation. Improve the standard system for hydrogen fuel production, storage, transportation, and refueling. Strengthen hydrogen fuel safety research and intensify whole-chain safety supervision.
Promote the Construction of Hydrogen Refueling Infrastructure. Establish and improve management specifications for hydrogen refueling infrastructure. Guide enterprises to reasonably layout hydrogen refueling infrastructure based on hydrogen fuel supply and consumption demand, and improve the level of safe operation. Support the use of existing venues and facilities to provide integrated supply services of oil, gas, hydrogen, and electricity.
Chapter 7: Deepening Opening-Up and Cooperation
Section 1: Expanding Opening-Up and Exchanges and Cooperation
Strengthen alignment with international prevailing economic and trade rules, fully implement the pre-establishment national treatment plus negative list management system, treat all market entities in the new energy sector equally, and build a market-oriented, law-based, and international business environment. Give play to the role of multilateral and bilateral cooperation mechanisms and high-level dialogue mechanisms to support domestic and foreign enterprises, scientific research institutions, and industry organizations in carrying out exchanges and cooperation in R&D and design, trade and investment, infrastructure, technical standards, talent training, and other fields. Actively participate in the formulation of international rules and standards, promote the formation of an open, transparent, and inclusive international market environment for new energy vehicles, build new platforms for international cooperation, and add new impetus for common development.
Section 2: Accelerating Integration into the Global Value Chain
Guide enterprises to formulate international development strategies, continuously enhance their international competitiveness, intensify efforts in exploring the international market, and promote industrial cooperation to extend from the production and manufacturing link to the entire chain including technology R&D and marketing. Encourage enterprises to make full use of domestic and foreign funds to establish an international consumer credit system. Support enterprises in building an international marketing and service network and co-constructing service platforms such as overseas warehouses and after-sales service centers in key markets. Improve the service guarantee system covering legal consultation, testing and certification, and talent training, guide enterprises to standardize their overseas business operations, and enhance their compliance management capabilities.
Chapter 8: Safeguard Measures
Section 1: Deepening Industry Management Reform
Further advance the reform of streamlining administration, delegating powers, improving regulation, and optimizing services, further relax market access, implement inclusive and prudent supervision, and promote the healthy and orderly development of new formats and models. Improve the parallel management measures for corporate average fuel consumption and new energy vehicle credits, effectively succeed the fiscal subsidy policy, and study the establishment of a connection mechanism with the carbon trading market. Strengthen in-process and ex-post supervision, consolidate the main responsibilities of local governments, and curb chaotic phenomena such as the blind launch of new energy vehicle whole-vehicle manufacturing projects. Promote the improvement of relevant laws and regulations on road motor vehicle production management, establish and improve the exit mechanism for zombie enterprises, strengthen the supervision and inspection of enterprises' maintenance of access conditions, and promote the survival of the fittest. Give full play to the role of the market mechanism, support advantageous enterprises in merger and reorganization, expand scale and strengthen strength, and further improve industrial concentration.
Section 2: Improving the Policy and Legal System
Implement relevant preferential tax policies for new energy vehicles, and optimize measures such as classified transportation management and financial services. Promote the scientific layout and accelerated construction of charging and swapping, hydrogen refueling, and other infrastructure, and provide fiscal support for the construction of charging piles as public facilities. Eliminate local protectionism and establish a unified, open, and fair market system. Encourage local governments to increase support for vehicle operations in public services, shared mobility, and other fields, and provide preferential policies for new energy vehicles in parking, charging, and other aspects. Starting from 2021, the proportion of new energy vehicles among new or updated vehicles such as public transport, taxis, and logistics and distribution vehicles in the public sector of national ecological civilization pilot zones and key areas for air pollution prevention and control shall not be less than 80%. Formulate specific measures for incorporating new energy vehicle R&D investment into the assessment system of state-owned enterprises. Accelerate the improvement of policies and regulations such as road traffic, accident liability, and data use that meet the development requirements of intelligent connected vehicles. Accelerate the legislation on the recycling and utilization of power batteries.
Section 3: Strengthening Talent Team Building
Accelerate the establishment of a talent training mechanism adapting to the integrated development of new energy vehicles and related industries, compile a catalog of industry shortage talents, optimize the discipline layout in the fields of automotive electrification, connectivity, and intelligence, and guide institutions of higher learning, scientific research institutes, and enterprises to increase the introduction and training of international talents. Promote the spirit of entrepreneurs and craftsmen, establish a positive incentive orientation, and implement diversified incentive measures such as equity and stock options.
Section 4: Strengthening Intellectual Property Protection
Further implement the national intellectual property strategy, and encourage researchers to develop high-value core intellectual property achievements in the field of new energy vehicles. Strictly implement the intellectual property protection system and intensify law enforcement against infringements. Build an intellectual property operation and service system for new energy vehicles, strengthen the construction of patent application and transformation platforms, and establish a mutually beneficial, shared, and win-win patent operation model.
Section 5: Strengthening Organizational Coordination
Give full play to the role of the Inter-Ministerial Joint Conference on the Development of Energy-Saving and New Energy Vehicle Industry and local coordination mechanisms, strengthen inter-departmental coordination and vertical linkage, formulate annual work plans and departmental task divisions, strengthen the coordination of policies and plans, standards and regulations between the new energy vehicle industry and energy, transportation, information and communications industries, and earnestly implement the major tasks and key work determined in the plan. All relevant departments shall formulate their own work plans and supporting policies and measures according to their functional divisions around the plan's objectives and tasks. All regions shall effectively implement the plan in light of local conditions, optimize the industrial layout, and avoid redundant construction. Industry organizations shall give full play to the role of a bridge between enterprises and the government and coordinate the establishment of cross-industry exchange and cooperation platforms. The Ministry of Industry and Information Technology, together with relevant departments, shall conduct in-depth investigations and research, strengthen follow-up guidance, and promote the smooth implementation of the plan.
