Several Opinions of the State Council on Promoting the Healthy Development of Photovoltaic Industry
Guo Fa [2013] No. 24
July 4, 2013
People's governments of all provinces, autonomous regions and municipalities directly under the Central Government, all ministries and commissions of and departments directly under the State Council,
The photovoltaic industry is vital for adjusting energy structure, advancing energy production and consumer revolution and promoting the construction of ecological civilization. In view of this, the following opinions are hereby put forward so as to regulate and promote the healthy development of photovoltaic industry:
Article 1 Fully understand the significance of the healthy development of photovoltaic industry
In recent years, China's photovoltaic industry developed rapidly, the photovoltaic cell manufacturing sector of the country has undergone tremendous expansion, China becomes one of the leading nations of the world in terms of its share of the world with advanced photovoltaic cell manufacturing around the world, the smelting technology of polysilicon is more and more mature, China has developed a complete photovoltaic manufacturing industry, which consists of the manufacturing of silicon and wafers, photovoltaic cells and modules, inverters and control equipments. In addition, with the steady increase in the application of photovoltaic technology in domestic power generation, the cost of power generation has been dramatically lowered and the competitiveness of photovoltaic power generation on the power market has been greatly enhanced.
However, due to the combined impact of a number of adverse factors, including the slowing increase of demand on the world photovoltaic market and rising barriers against photovoltaic product exports of China and inadequate coordination in the development of the photovoltaic industry of China, many of the photovoltaic enterprises of China are facing difficulties in their operations. In addition, the photovoltaic industry of China is currently in a dire a condition due to such severe problems as serious redundancy in production capacity, disorder in competition on the market, over-dependence on overseas markets, inadequate development of the domestic market, insufficiency in technical innovation, slowness in the development of crucial technical equipment and materials, absence of strong fiscal support from the government, the imperfect subsidy mechanism, weakness in the regulation of the industry and less-than-perfect application market for the photovoltaic technology, on the market.
The photovoltaic industry, which represents enormous development prospects for global energy technology and industry, is a sunrise industry with huge development potential and an emerging strategic industry with international competitive advantage in China. The current problems and difficulties faced by the photovoltaic industry of China are not only challenges to the industrial development, but also represent potential opportunities for the industry to upgrade and update itself, in particular, the dramatic lowering of the cost of photovoltaic power generation provides a highly favorable condition for expanding the domestic photovoltaic market of China. In view of this, we must reaffirm our confidence in the industry, seize the opportunities, seek innovations and unswervingly promote the sustainable and healthy development of the photovoltaic industry of China.
Article 2 Overall requirements
1. Guiding principles
Thoroughly implement the spirit of the 18th National Congress of the Communist Party of China; innovate on industrial institutions and mechanisms and improve the support policies for the industry under the guidance of Deng Xiaoping Theory, the important thought of the "Three Represents" and the Scientific Outlook on Development; strive to explore effective demand on the domestic market and consolidate the photovoltaic industry' share of the global market through the market mechanism; improve the system of industry standards, regulate the development order of the industry and endeavor to promote the restructuring, upgrading and transformation of the industry; improve the market mechanism, accelerate progress in technology and improve the quality and profitability of the industry, so that the industry will make its due contribution to boosting the economic vitality and competitiveness of the country.
2. General principles
Combine long-term and short-term strategies for the industry and addressing both the symptoms and root causes of the industry's problems. On one hand, the application of photovoltaic power generation must be expanded; on the other hand, the total photovoltaic production capacity must be controlled, efforts must be stepped up to eliminate outdated production capacities, and push for the structural adjustment of the industry and technological progress.
Properly coordinate all parties and comprehensive consideration of all factors involved. Comprehensive measures must be adopted to address acute issues in the development of China's photovoltaic industry on the basis of proper consideration and coordination of such factors as demand on both the domestic and overseas markets, balance between supply and demand and higher-stream and lower-stream industries of the photovoltaic industry.
Give priority to the market mechanism and optimal allocation of support. Proper play must be given to the fundamental role of the market mechanism in promoting the structural adjustment of the photovoltaic industry, intra-industry competition, structural optimization of the industry and development and application of the industry. Support shall be allocated among photovoltaic enterprises on a differentiated basis, with support to be focused on key strong enterprises that are technologically advanced and competitive on the market and poor-performance enterprises to be eliminated.
Proper coordination and concerted efforts. Enhance the coordination and consistency between support policies for the industry as well as self-discipline of the industry, support local efforts to innovate on development approaches, fully tap the enthusiasm and initiative of local governments, enterprises and consumers, so as to pool the efforts of all sides concerned to push forward the development of the photovoltaic industry.
(CONTENT BELOW IS BASED ON GOOGLE TRANSLATION. NO RESPONSIBILITY ACCEPTED FOR THE ACCURACY OF CONTENTS)
(C) Development goals
To expand the domestic market, improve the technical level, speed up industrial restructuring and upgrading, as the promotion of sustainable and healthy development of the PV industry and basic foothold fundamental way, and establishing domestic market of photovoltaic production, sales and service system, the formation is conducive to sustained and healthy development of the industry regulations, policies, standards and market environment. For the period 2013-2015, average annual new photovoltaic power generation capacity will be about 10 million kilowatts; by 2015, the total new installed capacity will reach 35 million kilowatts or more. Accelerate the pace of mergers and acquisitions, eliminate poor quality products, backward technology and manufacturing enterprises, cultivating a group of enterprises with strong R & D capabilities and market competitiveness. Accelerate technological innovation and industrial upgrading, improve self-sufficiency of raw materials such as polysilicon and photovoltaic cell manufacturing technology level, significantly reducing the cost of photovoltaic power generation, and improve the competitiveness of the photovoltaic industry. Maintain photovoltaic products at a reasonable share of the international market, and make new progress in foreign trade and investment and financing cooperation.
Third, actively explore PV application markets
(A) Vigorously develop distributed photovoltaic power generation markets. Encouraging all kinds of power users in accordance with the "self-generate self-utilize, excess grid feed, grid modification" approach to building distributed PV systems. Prioritize support for industrial and commercial enterprises with high electricity costs, industrial park large scale construction of distributed PV systems. Support schools, hospitals, government agencies, institutions, residents and other community buildings and structures for the promotion of small-scale distributed PV systems. In the development process of urbanization, fully utilizd solar energy, combined with building energy strengthening, photovoltaic applications, promote BIPV building in support of photovoltaic applications in new rural construction. Rely on new energy demonstration city, green energy demonstration counties, renewable energy demonstration cities (counties), expanding distributed photovoltaic applications, the construction of 100 large-scale application of distributed PV Demonstration Zone, 1000 PV demonstration town and a model village. Development of new energy smart microgrids for distributed PV pilot operating characteristics and large-scale applications, demonstration projects, and explore the appropriate power management system and operational mechanism, the formation of distributed PV development to adapt to the construction, operation and consumption of new systems. Support the use of photovoltaic power generation in remote areas and islands without electricity to solve the power shortage problem. Encourage city street lighting, urban landscape as well as communications base stations, traffic lights and other areas to promote distributed photovoltaic power.
(B) Orderly photovoltaic power station construction. Power plant construction of various types of PV will be orderly according to "rational distribution, nearest access, local consumption, in an orderly way," general idea, according to the local electricity market development, and structural adjustment of energy needs, in the context of the implementation of market demand conditions. Encourage the use of existing power grid facilities in a complementary manner in construction of photovoltaic power plants. Coordinate and support grid PV power plant planning and construction, ensure photovoltaic power plants timely generation and efficinet use of grid networks.
(C) Consolidate and expand the international market. Actively and properly handle international trade friction, promote the establishment of a fair and rational international trade order. Strengthen dialogue and consultation, and promote global industrial cooperation, and norms for photovoltaic products export order. Encourage photovoltaic enterprise innovation and international trade, optimize manufacturing origin distribution, carry out overseas production investment cooperation. Encourage enterprises to implement "bringing in" and "going out" strategy, gathering global innovation resources and promoting international development of the photovoltaic industry.
Fourth, accelerate industrial restructuring and technological progress
(A) Inhibit blind expansion of PV production capacity. Strictly control simple expansion of new projects soley for polysilicon, solar cell and module production capacity. PV manufacturing enterprises should have advanced technology and strong R & D capabilities, the new photovoltaic manufacturing monocrystalline silicon photovoltaic cells projects shall meet not less than 20% conversion efficiency, polycrystalline silicon PV cell conversion efficiency of not less than 18%, thin-film photovoltaic cell conversion efficiency of not less than 12%, polysilicon production integrated power consumption is not more than 100 kwh / kg. Accelerate the elimination of high energy consuming, imperfect material recycling, environmentally non-compliant polysilicon production capacity. In the power net input areas, strictly control the construction of polysilicon projects.
(B) Accelerate corporate mergers and acquisitions. Use "market force" mechanisms to encourage corporate mergers and acquisitions. Strengthen policy guidance to promote, establish and improve the long-term mechanism to eliminate backward production capacity, speed up the elimination of backward production capacity of PV. Focus on supporting high level of technology, polysilicon and photovoltaic cell manufacturing enterprise development and strong market competition; foster the formation of a low overall energy consumption, lower material consumption, internationally competitive polysilicon manufacturers, and technology research and development ability, with independent intellectual property rights and brand photovoltaic cell manufacturing companies. Guide polysilicon production capacity in the Midwest region, encourage crystalline silicon manufacturing enterprises with advanced chemical enterprises or restructuring, reduce overall power consumption, improve the comprehensive utilization of by-products.
(C) Accelerate the advancement of technology and equipment levels. Implement new energy integration applications engineering supporting high-efficiency crystalline silicon cells and new thin film batteries, electronic grade polysilicon, silicon tetrachloride closed-loop circulation system, the key high-end cutting machines, automatic screen printing machine, flat-coating process, high purity materials, such as R & D and industrialization. Improve the photovoltaic inverter, technology and equipment tracking system, power prediction, centralized monitoring and smart grid, improve system integration technology of photovoltaic power generation capacity. Support companies to develop new technology and silicon photovoltaic material production of new products, new technologies and support backbone enterprises to build photovoltaic power engineering research and development and testing platform. Universities and corporate culture to support the PV industry-related professionals.
(D) Actively engage in international cooperation. Encourage enterprises to strengthen international development cooperation, carry out cutting-edge photovoltaic industry, joint research and development of common technology. Encourage qualified domestic photovoltaic companies and base established strategic partnerships with foreign research institutions, industry clusters. Support related research institutes and enterprises to establish an international mechanism to introduce and cultivate talent, innovation and strong focus on training high-end professional and technical personnel and general management personnel. Actively participate in the international photovoltaic industry standards, intellectual property rights standards to increase overseas promotion, promote international mutual recognition of testing and certification.
Fifth, regulate industrial development order
(A) Strengthen planning and industrial policy guidance. According to the photovoltaic industry development needs, implement the photovoltaic industry development plan. According to various regions of the country and regional development needs, develop photovoltaic industry planning, implement in the region related to planning and implementation. Strengthen national planning and local planning, manufacturing industry and power generation applications, PV power grid construction and supporting convergence and coordination. Strengthening PV plans and annual implementation guidance. Complete photovoltaic power plants and distributed PV project construction management system, and promote the orderly development of photovoltaic power generation.
(B) Promote the standardization system and testing and certification system. Establish and improve standards of photovoltaic materials, cells and modules, systems and components, etc., to improve the power grid PV systems and related technical standards. Perfect building photovoltaic applications standards for different climate zones and types of buildings, and consider photovoltaic applications in urban planning, architectural design and renovation of old buildings. Strengthen testing and certification platform for building materials and silicon wafers, photovoltaic cells and modules, inverters and control equipment and other products, improve product testing and certification of photovoltaic systems, timely release of photovoltaic standard product catalog. Carry out monitoring and evaluation of solar energy resources, solar energy information to establish a database.
(C) Strengthen market supervision and industry management. Formulate, improve and strictly implement the photovoltaic manufacturing industry norms conditions, regulate the PV market order, promote elimination of backward production capacity and improve the level of industrial development. The implementation of photovoltaic modules, inverters, control equipment and other key product testing and certification system, untested or uncertified products are not allowed to enter the market. Strict implementation of the photovoltaic power plant equipment procurement, design and construction supervision of bidding, guard against unfair competition and prohibit local protectionism. Complete photovoltaic construction, operation and technical posts qualification management. Strengthen PV grid access and operational supervision. Establish a monitoring system of photovoltaic industry development, the timely release of industry development information. Strengthen the "People's Republic of China Renewable Energy Law" and supporting policy enforcement scrutiny. Local governments may not impose a fee on behalf of resource use fees outside the laws and regulations to solar power companies.
Sixth, improve network management and services
(a) Strengthen the support for grid construction. Power grid enterprises should strengthen photovoltaic power generation adaptable power grid construction and transformation, safeguarding synchronous grid andpower generation projects put into operation. Actively develop the integration of advanced energy storage technologies, information technology, micro-grid and smart grid technology, improve grid system ability to accept PV. Photovoltaic power generation projects requiring modifications to the power grid for accessing the public grid will investment in construction of these modifications. Grid companies that require grid modifications to access to the user's side of distributed photovoltaic power generation, will investment in construction of these modifications.
(B) Improve the photovoltaic power generation and network operation services. Each grid enterprise should, in order to provide for photovoltaic power generation and network services, optimize system operation scheduling, prioritize the protection of photovoltaic power generation operation, ensure timely grid photovoltaic power generation projects, and purchase all the electricity. Simplify distributed PV grid access methods and management procedures, publish distributed PV grid-service processes, and establish simple and efficient network service systems. Distributed photovoltaic power generation projects spare capacity fee waived for system and related services costs. Strengthening PV grid access and grid operation supervision.
Seven, improve support policies
(A) Support the user side of photovoltaic applications. Open the user side of distributed power construction, support and encourage enterprises, institutions, communities and families to install and use photovoltaic power generation systems. Promote professional energy services company among users, invest in the construction and management of user-powered photovoltaic power generation and related facilities. Implement record management for distributed photovoltaic power generation projects, exempt distributed photovoltaic power generation from business license application. Distributed photovoltaic power generation projects that do not need not need State funds subsidization that have access to the grid, can increase the size of construction. All of distributed PV power generating capacity will incorporate the whole of society consumption statistics, to enable local government and the power grid enterprise performance assessment indicators. Self-generated self-consumed capacity is not included in the scope of the price ladder, but included in the local governments and users energy section.
(B) Improve the tariff and subsidy policies. Implement distributed PV in accordance with power subsidy policies. According to resource conditions and construction costs, the development of photovoltaic power plants subregional benchmark feed in tariff should be determined by way of competitive bidding to determine price and subsidy allowances. Based on such factors as changes in the cost of photovoltaic power generation, reasonably lower photovoltaic power plant feed in tariffs and distributed PV subsidy standards. 20-year implementation period principle for tariff and subsidy. According to photovoltaic power generation development needs, make additional renewable energy tariff adjustments, impose standards, expand renewable energy development fund size. PV scale and national Renewable Energy Development Fund size will be coordinated.
(C) Improve management of subsidy funds. Increase strict renewable energy tariff collection and management, Strictly manage additional renewable energy tariff additions, guarantee collection of additional funds. Improve the subsidy funds payment modalities and procedures for photovoltaic power plants, through grid companies bidding to determine, in accordance with national regulations or photovoltaic power generation business, monthly tariff and full settlement; distributed photovoltaic power generation, established by the grid companies transfer monthly subsidy funds. To ensure full and timely subsidies are in place, the central government on a quarterly basis will earmark subsidy funds to the power grid enterprises. Encourage local governments to use fiscal funds to support photovoltaic applications.
(D) Increase the fiscal policy support. To improve the photovoltaic industry development, the central government will increase financial support mechanisms for solar energy resource measurement, evaluation and information systems, key technology and equipment R & D and industrialization of materials, standards and testing and certification system, application and demonstration of new technologies, rural and pastoral areas of photovoltaic power generation applications as well as areas without electricity photovoltaic power generation project support. Additional renewable energy tariff for the electricity levy and other government funds self-generated self-used distributed PV power are waived. R & D expenses will be in line with the relevant conditions, in accordance with the tax law in the calculation of taxable income deduction. Merger and reorganization of qualified enterprises enjoy preferential tax policies in accordance with current tax policy.
(E) Improve financial support policies. Financial institutions should continue to implement the "maintain pressure" credit policies to support proprietary, advanced technology and large enterprise optimization and development potential of the market, orders that are profitable, and reputable PV manufacturing enterprises with credit support. According to the characteristics of the photovoltaic industry and enterprise funds operating cycle, in accordance with risk control, sustainable business principles of access to credit standards, adopt flexible credit policies to support normal production and quality management, support technological innovation, mergers and acquisitions and foreign investments in projects with a competitive advantage. Innovative financial products and services to support SMEs and family self-use distributed PV systems. Eliminate capital flows for blind expansion of production capacity projects and backward production capacity projects, provide no credit support for the construction of industrial policy photovoltaic manufacturing projects banned by the state.
(F) Supporting policies to improve land and construction management. On the utilization of desert wasteland and other unused land to construct photovoltaic power generation projects, use planning, scheduling time to be moderately sloped, avoid diversion, and do not occupy the land of the annual plan targets. Explore the use of state-owned unused land through leases, reducing the initial investment cost of the project. Photovoltaic power generation projects using unused land can be received land allocation after land use approval procedures according to law. Photovoltaic power generation projects to improve management and simplify procedures.
Eight, strengthen organizational leadership.
Various departments according to the requirements of this opinion, in accordance with the division of responsibilities shall promptly formulate relevant supporting documents, complete PV prices, taxes, financial credit and construction land and other supporting policies to ensure that the measures to implement the tasks are implemented. The provincial government should strengthen the management of the PV industry development in the region, combined with the actual development of specific embodiments, the implementation of policies to guide the region to coordinate the orderly development of the photovoltaic industry. Sound industry organization, give full play to the role of industry organizations in strengthening self-discipline, promote advanced technology and management experience, to carry out statistical monitoring and research to develop standards and other aspects. Strengthen industrial services, the establishment of a monitoring system of photovoltaic industry, the timely release of information industry, to build a communication platform between banks and enterprises, and guide the healthy development of industry.
State Department July 4, 2013 (Attachements deleted)
国务院关于促进光伏产业健康发展的若干意见
国发〔2013〕24号
各省、自治区、直辖市人民政府，国务院各部委、各直属机构：
发展光伏产业对调整能源结构、推进能源生产和消费革命、促进生态文明建设具有重要意义。为规范和促进光伏产业健康发展，现提出以下意见：
一、充分认识促进光伏产业健康发展的重要性
近年来，我国光伏产业快速发展，光伏电池制造产业规模迅速扩大，市场占有率位居世界前列，光伏电池制造达到世界先进水平，多晶硅冶炼技术日趋成熟，形成了包括硅材料及硅片、光伏电池及组件、逆变器及控制设备的完整制造产业体系。光伏发电国内应用市场逐步扩大，发电成本显著降低，市场竞争力明显提高。
当前，在全球光伏市场需求增速减缓、产品出口阻力增大、光伏产业发展不协调等多重因素作用下，我国光伏企业普遍经营困难。同时，我国光伏产业存在产能严重过剩、市场无序竞争，产品市场过度依赖外需、国内应用市场开发不足，技术创新能力不强、关键技术装备和材料发展缓慢，财政资金支持需要加强、补贴机制有待完善，行业管理比较薄弱、应用市场环境亟待改善等突出问题，光伏产业发展面临严峻形势。
光伏产业是全球能源科技和产业的重要发展方向，是具有巨大发展潜力的朝阳产业，也是我国具有国际竞争优势的战略性新兴产业。我国光伏产业当前遇到的问题和困难，既是对产业发展的挑战，也是促进产业调整升级的契机，特别是光伏发电成本大幅下降，为扩大国内市场提供了有利条件。要坚定信心，抓住机遇，开拓创新，毫不动摇地推进光伏产业持续健康发展。
二、总体要求
（一）指导思想。
深入贯彻党的十八大精神，以邓小平理论、"三个代表"重要思想、科学发展观为指导，创新体制机制，完善支持政策，通过市场机制激发国内市场有效需求，努力巩固国际市场；健全标准体系，规范产业发展秩序，着力推进产业重组和转型升级；完善市场机制，加快技术进步，着力提高光伏产业发展质量和效益，为提升经济发展活力和竞争力作出贡献。
（二）基本原则。
远近结合，标本兼治。在扩大光伏发电应用的同时，控制光伏制造总产能，加快淘汰落后产能，着力推进产业结构调整和技术进步。
统筹兼顾，综合施策。统筹考虑国内外市场需求、产业供需平衡、上下游协调等因素，采取综合措施解决产业发展面临的突出问题。
市场为主，重点扶持。发挥市场机制在推动光伏产业结构调整、优胜劣汰、优化布局以及开发利用方面的基础性作用。对不同光伏企业实行区别对待，重点支持技术水平高、市场竞争力强的骨干优势企业发展，淘汰劣质企业。
协调配合，形成合力。加强政策的协调配合和行业自律，支持地方创新发展方式，调动地方、企业和消费者的积极性，共同推动光伏产业发展。
（三）发展目标。
把扩大国内市场、提高技术水平、加快产业转型升级作为促进光伏产业持续健康发展的根本出路和基本立足点，建立适应国内市场的光伏产品生产、销售和服务体系，形成有利于产业持续健康发展的法规、政策、标准体系和市场环境。2013—2015年，年均新增光伏发电装机容量1000万千瓦左右，到2015年总装机容量达到3500万千瓦以上。加快企业兼并重组，淘汰产品质量差、技术落后的生产企业，培育一批具有较强技术研发能力和市场竞争力的龙头企业。加快技术创新和产业升级，提高多晶硅等原材料自给能力和光伏电池制造技术水平，显著降低光伏发电成本，提高光伏产业竞争力。保持光伏产品在国际市场的合理份额，对外贸易和投融资合作取得新进展。
三、积极开拓光伏应用市场
（一）大力开拓分布式光伏发电市场。鼓励各类电力用户按照"自发自用，余量上网，电网调节"的方式建设分布式光伏发电系统。优先支持在用电价格较高的工商业企业、工业园区建设规模化的分布式光伏发电系统。支持在学校、医院、党政机关、事业单位、居民社区建筑和构筑物等推广小型分布式光伏发电系统。在城镇化发展过程中充分利用太阳能，结合建筑节能加强光伏发电应用，推进光伏建筑一体化建设，在新农村建设中支持光伏发电应用。依托新能源示范城市、绿色能源示范县、可再生能源建筑应用示范市（县），扩大分布式光伏发电应用，建设100个分布式光伏发电规模化应用示范区、1000个光伏发电应用示范小镇及示范村。开展适合分布式光伏发电运行特点和规模化应用的新能源智能微电网试点、示范项目建设，探索相应的电力管理体制和运行机制，形成适应分布式光伏发电发展的建设、运行和消费新体系。支持偏远地区及海岛利用光伏发电解决无电和缺电问题。鼓励在城市路灯照明、城市景观以及通讯基站、交通信号灯等领域推广分布式光伏电源。
（二）有序推进光伏电站建设。按照"合理布局、就近接入、当地消纳、有序推进"的总体思路，根据当地电力市场发展和能源结构调整需要，在落实市场消纳条件的前提下，有序推进各种类型的光伏电站建设。鼓励利用既有电网设施按多能互补方式建设光伏电站。协调光伏电站与配套电网规划和建设，保证光伏电站发电及时并网和高效利用。
（三）巩固和拓展国际市场。积极妥善应对国际贸易摩擦，推动建立公平合理的国际贸易秩序。加强对话协商，推动全球产业合作，规范光伏产品进出口秩序。鼓励光伏企业创新国际贸易方式，优化制造产地分布，在境外开展投资生产合作。鼓励企业实施"引进来"和"走出去"战略，集聚全球创新资源，促进光伏企业国际化发展。
四、加快产业结构调整和技术进步
（一）抑制光伏产能盲目扩张。严格控制新上单纯扩大产能的多晶硅、光伏电池及组件项目。光伏制造企业应拥有先进技术和较强的自主研发能力，新上光伏制造项目应满足单晶硅光伏电池转换效率不低于20%、多晶硅光伏电池转换效率不低于18%、薄膜光伏电池转换效率不低于12%，多晶硅生产综合电耗不高于100千瓦时/千克。加快淘汰能耗高、物料循环利用不完善、环保不达标的多晶硅产能，在电力净输入地区严格控制建设多晶硅项目。
（二）加快推进企业兼并重组。利用"市场倒逼"机制，鼓励企业兼并重组。加强政策引导和推动，建立健全淘汰落后产能长效机制，加快关停淘汰落后光伏产能。重点支持技术水平高、市场竞争力强的多晶硅和光伏电池制造企业发展，培育形成一批综合能耗低、物料消耗少、具有国际竞争力的多晶硅制造企业和技术研发能力强、具有自主知识产权和品牌优势的光伏电池制造企业。引导多晶硅产能向中西部能源资源优势地区聚集，鼓励多晶硅制造企业与先进化工企业合作或重组，降低综合电耗、提高副产品综合利用率。
（三）加快提高技术和装备水平。通过实施新能源集成应用工程，支持高效率晶硅电池及新型薄膜电池、电子级多晶硅、四氯化硅闭环循环装置、高端切割机、全自动丝网印刷机、平板式镀膜工艺、高纯度关键材料等的研发和产业化。提高光伏逆变器、跟踪系统、功率预测、集中监控以及智能电网等技术和装备水平，提高光伏发电的系统集成技术能力。支持企业开发硅材料生产新工艺和光伏新产品、新技术，支持骨干企业建设光伏发电工程技术研发和试验平台。支持高等院校和企业培养光伏产业相关专业人才。
（四）积极开展国际合作。鼓励企业加强国际研发合作，开展光伏产业前沿、共性技术联合研发。鼓励有条件的国内光伏企业和基地与国外研究机构、产业集群建立战略合作关系。支持有关科研院所和企业建立国际化人才引进和培养机制，重点培养创新能力强的高端专业技术人才和综合管理人才。积极参与光伏行业国际标准制定，加大自主知识产权标准体系海外推广，推动检测认证国际互认。
五、规范产业发展秩序
（一）加强规划和产业政策指导。根据光伏产业发展需要，编制实施光伏产业发展规划。各地区可根据国家光伏产业发展规划和本地区发展需要，编制实施本地区相关规划及实施方案。加强全国规划与地方规划、制造产业与发电应用、光伏发电与配套电网建设的衔接和协调。加强光伏发电规划和年度实施指导。完善光伏电站和分布式光伏发电项目建设管理制度，促进光伏发电有序发展。
（二）推进标准化体系和检测认证体系建设。建立健全光伏材料、电池及组件、系统及部件等标准体系，完善光伏发电系统及相关电网技术标准体系。制定完善适合不同气候区及建筑类型的建筑光伏应用标准体系，在城市规划、建筑设计和旧建筑改造中统筹考虑光伏发电应用。加强硅材料及硅片、光伏电池及组件、逆变器及控制设备等产品的检测和认证平台建设，健全光伏产品检测和认证体系，及时发布符合标准的光伏产品目录。开展太阳能资源观测与评价，建立太阳能信息数据库。
（三）加强市场监管和行业管理。制定完善并严格实施光伏制造行业规范条件，规范光伏市场秩序，促进落后产能退出市场，提高产业发展水平。实行光伏电池组件、逆变器、控制设备等关键产品检测认证制度，未通过检测认证的产品不准进入市场。严格执行光伏电站设备采购、设计监理和工程建设招投标制度，反对不正当竞争，禁止地方保护。完善光伏发电工程建设、运行技术岗位资质管理。加强光伏发电电网接入和运行监管。建立光伏产业发展监测体系，及时发布产业发展信息。加强对《中华人民共和国可再生能源法》及配套政策的执法监察。地方各级政府不得以征收资源使用费等名义向太阳能发电企业收取法律法规规定之外的费用。
六、完善并网管理和服务
（一）加强配套电网建设。电网企业要加强与光伏发电相适应的电网建设和改造，保障配套电网与光伏发电项目同步建成投产。积极发展融合先进储能技术、信息技术的微电网和智能电网技术，提高电网系统接纳光伏发电的能力。接入公共电网的光伏发电项目，其接网工程以及接入引起的公共电网改造部分由电网企业投资建设。接入用户侧的分布式光伏发电，接入引起的公共电网改造部分由电网企业投资建设。
（二）完善光伏发电并网运行服务。各电网企业要为光伏发电提供并网服务，优化系统调度运行，优先保障光伏发电运行，确保光伏发电项目及时并网，全额收购所发电量。简化分布式光伏发电的电网接入方式和管理程序，公布分布式光伏发电并网服务流程，建立简捷高效的并网服务体系。对分布式光伏发电项目免收系统备用容量费和相关服务费用。加强光伏发电电网接入和并网运行监管。
七、完善支持政策
（一）大力支持用户侧光伏应用。开放用户侧分布式电源建设，支持和鼓励企业、机构、社区和家庭安装、使用光伏发电系统。鼓励专业化能源服务公司与用户合作，投资建设和经营管理为用户供电的光伏发电及相关设施。对分布式光伏发电项目实行备案管理，豁免分布式光伏发电应用发电业务许可。对不需要国家资金补贴的分布式光伏发电项目，如具备接入电网运行条件，可放开规模建设。分布式光伏发电全部电量纳入全社会发电量和用电量统计，并作为地方政府和电网企业业绩考核指标。自发自用发电量不计入阶梯电价适用范围，计入地方政府和用户节能量。
（二）完善电价和补贴政策。对分布式光伏发电实行按照电量补贴的政策。根据资源条件和建设成本，制定光伏电站分区域上网标杆电价，通过招标等竞争方式发现价格和补贴标准。根据光伏发电成本变化等因素，合理调减光伏电站上网电价和分布式光伏发电补贴标准。上网电价及补贴的执行期限原则上为20年。根据光伏发电发展需要，调整可再生能源电价附加征收标准，扩大可再生能源发展基金规模。光伏发电规模与国家可再生能源发展基金规模相协调。
（三）改进补贴资金管理。严格可再生能源电价附加征收管理，保障附加资金应收尽收。完善补贴资金支付方式和程序，对光伏电站，由电网企业按照国家规定或招标确定的光伏发电上网电价与发电企业按月全额结算；对分布式光伏发电，建立由电网企业按月转付补贴资金的制度。中央财政按季度向电网企业预拨补贴资金，确保补贴资金及时足额到位。鼓励各级地方政府利用财政资金支持光伏发电应用。
（四）加大财税政策支持力度。完善中央财政资金支持光伏产业发展的机制，加大对太阳能资源测量、评价及信息系统建设、关键技术装备材料研发及产业化、标准制定及检测认证体系建设、新技术应用示范、农村和牧区光伏发电应用以及无电地区光伏发电项目建设的支持。对分布式光伏发电自发自用电量免收可再生能源电价附加等针对电量征收的政府性基金。企业研发费用符合有关条件的，可按照税法规定在计算应纳税所得额时加计扣除。企业符合条件的兼并重组，可以按照现行税收政策规定，享受税收优惠政策。
（五）完善金融支持政策。金融机构要继续实施"有保有压"的信贷政策，支持具有自主知识产权、技术先进、发展潜力大的企业做优做强，对有市场、有订单、有效益、有信誉的光伏制造企业提供信贷支持。根据光伏产业特点和企业资金运转周期，按照风险可控、商业可持续、信贷准入可达标的原则，采取灵活的信贷政策，支持优质企业正常生产经营，支持技术创新、兼并重组和境外投资等具有竞争优势的项目。创新金融产品和服务，支持中小企业和家庭自建自用分布式光伏发电系统。严禁资金流向盲目扩张产能项目和落后产能项目建设，对国家禁止建设的、不符合产业政策的光伏制造项目不予信贷支持。
（六）完善土地支持政策和建设管理。对利用戈壁荒滩等未利用土地建设光伏发电项目的，在土地规划、计划安排时予以适度倾斜，不涉及转用的，可不占用土地年度计划指标。探索采用租赁国有未利用土地的供地方式，降低工程的前期投入成本。光伏发电项目使用未利用土地的，依法办理用地审批手续后，可采取划拨方式供地。完善光伏发电项目建设管理并简化程序。
八、加强组织领导
各有关部门要根据本意见要求，按照职责分工抓紧制定相关配套文件，完善光伏发电价格、税收、金融信贷和建设用地等配套政策，确保各项任务措施的贯彻实施。各省级人民政府要加强对本地区光伏产业发展的管理，结合实际制定具体实施方案，落实政策，引导本地区光伏产业有序协调发展。健全行业组织机构，充分发挥行业组织在加强行业自律、推广先进技术和管理经验、开展统计监测和研究制定标准等方面的作用。加强产业服务，建立光伏产业监测体系，及时发布行业信息，搭建银企沟通平台，引导产业健康发展。
国务院
2013年7月4日
（此件有删减）