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黨的十九大作出了中國特色社會主義進入新時代的重大論斷，提出了構建清潔低碳、安全高效能源體系的發展目標，為新時代能源電力發展指明了方向。電力行業需要改變以往單純的擴能保供發展方式，從綠色、經濟、安全、效率等方面提升發展質量。隨著能源領域供給側改革的不斷推進，落實“十三五”電力規劃過程中依然面臨著“去產能”“調結構”“靈活性”“市場化改革”等新老問題交織帶來的重重挑戰，有必要深入認識把握電源發展新特征新規律，進一步圍繞能源電力高質量發展，聚焦行業發展熱點問題開展研究。本文針對《電力發展“十三五”規劃》（以下簡稱《規劃》）提出的各項發展目標，結合“十三五”以來電源發展建設等情況，總結《規劃》執行情況，分析《規劃》完成面臨的主要問題，提出能源轉型背景下未來幾年規劃優化調整思路及重點舉措。

規劃執行情況

在電力供(gong)需形勢持(chi)續寬松，國家大力推(tui)進(jin)(jin)供(gong)給(gei)側結構性(xing)改革、防(fang)范(fan)化(hua)解煤電產能過剩風險等形勢背(bei)景下，除水電、核電、天(tian)然氣發(fa)電相較《規劃》進(jin)(jin)度有所滯(zhi)后外，電力發(fa)展絕大多數指標(biao)均按《規劃》要(yao)求進(jin)(jin)度執(zhi)行或已超(chao)額(e)完成目標(biao)。

（一）電力裝(zhuang)(zhuang)機總量(liang)(liang)和用電量(liang)(liang)超預(yu)(yu)期增(zeng)(zeng)(zeng)長(chang)，均高(gao)于《規(gui)劃(hua)》預(yu)(yu)測(ce)增(zeng)(zeng)(zeng)速(su)(su)。2017年(nian)(nian)全(quan)社會用電量(liang)(liang)為6.3萬億(yi)千瓦時，“十(shi)三五(wu)(wu)”前(qian)(qian)兩年(nian)(nian)年(nian)(nian)均增(zeng)(zeng)(zeng)長(chang)5.2%，高(gao)于《規(gui)劃(hua)》高(gao)預(yu)(yu)測(ce)增(zeng)(zeng)(zeng)速(su)(su)4.8%。全(quan)國發電裝(zhuang)(zhuang)機容量(liang)(liang)17.8億(yi)千瓦，“十(shi)三五(wu)(wu)”前(qian)(qian)兩年(nian)(nian)年(nian)(nian)均增(zeng)(zeng)(zeng)長(chang)7.9%，高(gao)于《規(gui)劃(hua)》預(yu)(yu)測(ce)增(zeng)(zeng)(zeng)速(su)(su)5.5%。

（二）電(dian)源(yuan)結構逐步優化(hua)，煤電(dian)占(zhan)(zhan)比(bi)已(yi)降至《規(gui)(gui)劃》要(yao)求(qiu)(qiu)，非(fei)化(hua)石能(neng)源(yuan)占(zhan)(zhan)比(bi)目標有望提前實現。“十三五(wu)”前兩年(nian)電(dian)源(yuan)投資增長有所放緩、結構逐步優化(hua)。國家和電(dian)力行業高度重(zhong)視化(hua)解煤電(dian)過剩產能(neng)，煤電(dian)裝(zhuang)機(ji)發展速度得到(dao)(dao)有效控制，2017年(nian)累積裝(zhuang)機(ji)9.8億千瓦，占(zhan)(zhan)比(bi)已(yi)從2015年(nian)的(de)(de)59%降至《規(gui)(gui)劃》目標要(yao)求(qiu)(qiu)的(de)(de)55%。截(jie)至2017年(nian)底，非(fei)化(hua)石能(neng)源(yuan)發電(dian)裝(zhuang)機(ji)達(da)(da)到(dao)(dao)6.7億千瓦左右，占(zhan)(zhan)比(bi)達(da)(da)到(dao)(dao)38%，距離《規(gui)(gui)劃》39%的(de)(de)目標僅差1個(ge)百分點；非(fei)化(hua)石能(neng)源(yuan)占(zhan)(zhan)一次能(neng)源(yuan)消費比(bi)重(zhong)達(da)(da)到(dao)(dao)13.8%，距離《規(gui)(gui)劃》15%的(de)(de)目標僅差1.2個(ge)百分點。

（三）新能源發展迅猛，太(tai)陽能發電裝(zhuang)機已超(chao)額完成《規(gui)劃(hua)》目標(biao)。截至2017年底(di)，風(feng)電裝(zhuang)機達到(dao)(dao)1.64億千瓦，距離《規(gui)劃(hua)》目標(biao)僅4600萬千瓦；分布式光(guang)伏(fu)爆(bao)發式增(zeng)長，累計裝(zhuang)機容量2966萬千瓦，同比增(zeng)長190%，太(tai)陽能發電裝(zhuang)機達到(dao)(dao)1.3億千瓦，已超(chao)過(guo)(guo)《規(gui)劃(hua)》1.1億千瓦的目標(biao)。“十三五”前兩年風(feng)電和太(tai)陽能發電裝(zhuang)機年平均(jun)增(zeng)速達到(dao)(dao)11.9%和75.9%，均(jun)超(chao)過(guo)(guo)《規(gui)劃(hua)》年平均(jun)增(zeng)速設定值(zhi)。

（四）水電(dian)(dian)建設(she)趨(qu)緩(huan)，常(chang)規(gui)(gui)水電(dian)(dian)和(he)抽(chou)水蓄能裝(zhuang)(zhuang)機(ji)目(mu)標實現存(cun)在一定難度。隨著水電(dian)(dian)基(ji)地大型水電(dian)(dian)項(xiang)(xiang)目(mu)“十二五(wu)”期(qi)間(jian)陸(lu)續投(tou)產，水電(dian)(dian)新開(kai)(kai)工項(xiang)(xiang)目(mu)近幾年(nian)(nian)明顯(xian)減少。截(jie)至2017年(nian)(nian)底，常(chang)規(gui)(gui)水電(dian)(dian)裝(zhuang)(zhuang)機(ji)容量(liang)達到3.13億千(qian)瓦(wa)，“十三五(wu)”前(qian)兩年(nian)(nian)年(nian)(nian)均增(zeng)速(su)為2.7%；抽(chou)水蓄能電(dian)(dian)站裝(zhuang)(zhuang)機(ji)容量(liang)2869萬千(qian)瓦(wa)，“十三五(wu)”前(qian)兩年(nian)(nian)年(nian)(nian)平均增(zeng)速(su)為11.6%。常(chang)規(gui)(gui)水電(dian)(dian)和(he)抽(chou)蓄裝(zhuang)(zhuang)機(ji)增(zeng)速(su)略(lve)低于《規(gui)(gui)劃(hua)》設(she)定的年(nian)(nian)平均增(zeng)速(su)，按(an)照目(mu)前(qian)在建和(he)新開(kai)(kai)工項(xiang)(xiang)目(mu)，預計到2020年(nian)(nian)，較難完成常(chang)規(gui)(gui)水電(dian)(dian)和(he)抽(chou)水蓄能裝(zhuang)(zhuang)機(ji)達到3.4和(he)0.4億千(qian)瓦(wa)的《規(gui)(gui)劃(hua)》目(mu)標。

（五(wu)）天(tian)然(ran)(ran)氣(qi)發(fa)電(dian)發(fa)展滯后，氣(qi)源供應(ying)恐難(nan)以支撐《規劃》1.1億千瓦(wa)裝機目標。截至2017年(nian)底，天(tian)然(ran)(ran)氣(qi)發(fa)電(dian)裝機為7600萬千瓦(wa)，“十(shi)三五(wu)”前兩年(nian)僅(jin)增長1000萬千瓦(wa)，低于(yu)每年(nian)新增1000萬千瓦(wa)的(de)(de)《規劃》設定值。發(fa)電(dian)用氣(qi)占天(tian)然(ran)(ran)氣(qi)總消費量(liang)的(de)(de)比例升至19.7%，較去年(nian)提高2.7個百分點，增速(su)創“十(shi)二五(wu)”以來(lai)新高。根(gen)據目前天(tian)然(ran)(ran)氣(qi)發(fa)展現(xian)狀(zhuang)，天(tian)然(ran)(ran)氣(qi)儲量(liang)和產量(liang)可(ke)能(neng)無(wu)法滿足2020年(nian)1.1億千瓦(wa)的(de)(de)天(tian)然(ran)(ran)氣(qi)發(fa)電(dian)裝機目標。

（六(liu)）電(dian)(dian)網(wang)建(jian)設(she)穩(wen)步推(tui)進，綜合線(xian)損(sun)率(lv)(lv)提(ti)前(qian)(qian)實現《規劃(hua)》目標。“十三五”前(qian)(qian)兩年，全(quan)國基建(jian)新增(zeng)500千伏及以(yi)上交流輸(shu)電(dian)(dian)線(xian)路長度2.47萬(wan)千米、變電(dian)(dian)設(she)備(bei)容量2.77億千伏安，分別(bie)完成規劃(hua)的(de)(de)27%、30%，共投產12條特(te)高壓線(xian)路。電(dian)(dian)網(wang)綜合線(xian)損(sun)率(lv)(lv)從2015年的(de)(de)6.64%降至2017年的(de)(de)6.42%，提(ti)前(qian)(qian)實現《規劃(hua)》提(ti)出的(de)(de)控制在6.5%以(yi)內的(de)(de)目標。

完成規劃面臨的主要問題

（一）區域間供需形勢差異較大，部分區域富余與局部地區偏緊矛盾并存

“十三五”前兩年，全(quan)國電力(li)用電負(fu)荷(he)快速增長，電力(li)供需(xu)(xu)(xu)延續總(zong)體(ti)寬松(song)態勢，但區(qu)域(yu)(yu)間供需(xu)(xu)(xu)形勢差異較大。其中，華北區(qu)域(yu)(yu)迎峰度(du)夏(xia)期間電力(li)供需(xu)(xu)(xu)平衡偏(pian)緊，華東、華中和(he)南方區(qu)域(yu)(yu)電力(li)供需(xu)(xu)(xu)總(zong)體(ti)基本(ben)平衡，東北和(he)西北區(qu)域(yu)(yu)電力(li)供應能力(li)富余較多。

（二）煤電產能嚴重過剩，自備電廠呈現無序發展局面

煤(mei)電(dian)(dian)存量(liang)規模(mo)大、核(he)準項(xiang)(xiang)目(mu)多，產能過(guo)剩風(feng)險突(tu)出。近年來，煤(mei)電(dian)(dian)利用小(xiao)時數連續下降，煤(mei)電(dian)(dian)產能過(guo)剩風(feng)險凸顯(xian)。《規劃》提出到2020年全國(guo)燃煤(mei)發電(dian)(dian)裝機容(rong)量(liang)控制(zhi)在(zai)11億(yi)(yi)千瓦(wa)以內。截(jie)至(zhi)2017年底，全國(guo)煤(mei)電(dian)(dian)裝機9.8億(yi)(yi)千瓦(wa)，全國(guo)已核(he)準煤(mei)電(dian)(dian)項(xiang)(xiang)目(mu)3億(yi)(yi)千瓦(wa)左右，其(qi)中(zhong)國(guo)家電(dian)(dian)網(wang)公司經營區超過(guo)2.6億(yi)(yi)千瓦(wa)，且1.7億(yi)(yi)千瓦(wa)已開(kai)工建(jian)設，6200萬(wan)千瓦(wa)已開(kai)工項(xiang)(xiang)目(mu)投資已完成80%。若已核(he)準煤(mei)電(dian)(dian)項(xiang)(xiang)目(mu)全部完成建(jian)設，2020年我國(guo)煤(mei)電(dian)(dian)裝機規模(mo)將突(tu)破(po)12億(yi)(yi)千瓦(wa)。

局部地區燃煤自(zi)備(bei)(bei)(bei)(bei)電(dian)(dian)廠(chang)發(fa)展(zhan)嚴(yan)重失控。截至2017年底，全國自(zi)備(bei)(bei)(bei)(bei)電(dian)(dian)廠(chang)裝(zhuang)機容量(liang)已超過(guo)1.3億千(qian)瓦(wa)(wa)，其中大部分(fen)為燃煤自(zi)備(bei)(bei)(bei)(bei)電(dian)(dian)廠(chang)。自(zi)備(bei)(bei)(bei)(bei)電(dian)(dian)廠(chang)發(fa)電(dian)(dian)設(she)備(bei)(bei)(bei)(bei)利用小時(shi)普(pu)遍較高，大部分(fen)6000小時(shi)以(yi)上，平均(jun)煤耗400克(ke)/千(qian)瓦(wa)(wa)時(shi)，比全國平均(jun)水平315克(ke)/千(qian)瓦(wa)(wa)時(shi)高27%，且大多不承擔(dan)調峰等社會責任(ren)。自(zi)備(bei)(bei)(bei)(bei)電(dian)(dian)廠(chang)的無序發(fa)展(zhan)不僅加劇了煤電(dian)(dian)產能過(guo)剩(sheng)，而(er)且助推(tui)了鋼鐵、電(dian)(dian)解鋁等產能過(guo)剩(sheng)，還嚴(yan)重擠占了新能源市(shi)場空間。

（三）可再生能源消納困難，“三棄”問題突出

隨著(zhu)近年(nian)來(lai)新能(neng)源的(de)(de)(de)(de)迅猛發展，水(shui)(shui)、風、光等(deng)可(ke)(ke)再生(sheng)(sheng)能(neng)源的(de)(de)(de)(de)消納(na)問(wen)(wen)題日益突出(chu)，局部地區(qu)棄(qi)(qi)水(shui)(shui)棄(qi)(qi)風棄(qi)(qi)光電量(liang)居高不(bu)下(xia)。2017年(nian)，全(quan)年(nian)棄(qi)(qi)水(shui)(shui)電量(liang)515億千(qian)瓦(wa)時，水(shui)(shui)能(neng)利用率達到96%左右；棄(qi)(qi)風電量(liang)419億千(qian)瓦(wa)時，棄(qi)(qi)風率12%，同(tong)比下(xia)降5.2個百分(fen)點；棄(qi)(qi)光電量(liang)73億千(qian)瓦(wa)時，棄(qi)(qi)光率6%，同(tong)比下(xia)降4.3個百分(fen)點。總體(ti)來(lai)看，2017年(nian)棄(qi)(qi)水(shui)(shui)棄(qi)(qi)風棄(qi)(qi)光問(wen)(wen)題有了較大(da)幅度(du)的(de)(de)(de)(de)緩解(jie)(jie)，但局部地區(qu)棄(qi)(qi)能(neng)率仍(reng)然較高，離可(ke)(ke)再生(sheng)(sheng)能(neng)源健康發展的(de)(de)(de)(de)要(yao)求還有比較大(da)的(de)(de)(de)(de)差距，今后解(jie)(jie)決問(wen)(wen)題的(de)(de)(de)(de)難度(du)也會不(bu)斷加(jia)大(da)。

（四）電力系統調峰能力不足

我(wo)國(guo)(guo)(guo)電(dian)(dian)源(yuan)(yuan)(yuan)結構以煤電(dian)(dian)為(wei)主(zhu)，靈(ling)(ling)活(huo)(huo)調(diao)(diao)節(jie)電(dian)(dian)源(yuan)(yuan)(yuan)比(bi)(bi)重低(di)，且煤電(dian)(dian)靈(ling)(ling)活(huo)(huo)性改(gai)造(zao)嚴重滯后。我(wo)國(guo)(guo)(guo)能(neng)(neng)(neng)源(yuan)(yuan)(yuan)結構以煤為(wei)主(zhu)，火電(dian)(dian)占全國(guo)(guo)(guo)電(dian)(dian)源(yuan)(yuan)(yuan)裝(zhuang)機比(bi)(bi)重達到(dao)62%（“三(san)北”地區70%），抽水蓄能(neng)(neng)(neng)、燃氣等靈(ling)(ling)活(huo)(huo)調(diao)(diao)節(jie)電(dian)(dian)源(yuan)(yuan)(yuan)比(bi)(bi)重僅為(wei)6%（“三(san)北”地區4%），調(diao)(diao)節(jie)能(neng)(neng)(neng)力(li)先天(tian)不足。相(xiang)(xiang)比(bi)(bi)較而言，國(guo)(guo)(guo)外(wai)主(zhu)要新能(neng)(neng)(neng)源(yuan)(yuan)(yuan)國(guo)(guo)(guo)家靈(ling)(ling)活(huo)(huo)電(dian)(dian)源(yuan)(yuan)(yuan)比(bi)(bi)重相(xiang)(xiang)對較高(gao)，西班(ban)牙、德(de)國(guo)(guo)(guo)、美國(guo)(guo)(guo)的(de)靈(ling)(ling)活(huo)(huo)調(diao)(diao)節(jie)電(dian)(dian)源(yuan)(yuan)(yuan)占總裝(zhuang)機的(de)比(bi)(bi)例分別為(wei)34%、18%、49%，美國(guo)(guo)(guo)和(he)西班(ban)牙靈(ling)(ling)活(huo)(huo)調(diao)(diao)節(jie)電(dian)(dian)源(yuan)(yuan)(yuan)達到(dao)新能(neng)(neng)(neng)源(yuan)(yuan)(yuan)的(de)8.5倍(bei)和(he)1.5倍(bei)。通(tong)過(guo)靈(ling)(ling)活(huo)(huo)性改(gai)造(zao)，可有(you)效提升煤電(dian)(dian)機組深度調(diao)(diao)峰能(neng)(neng)(neng)力(li)，但《規劃》提出的(de)2.15億(yi)千瓦改(gai)造(zao)目(mu)標(biao)，目(mu)前(qian)完成不足5%，嚴重滯后。

（五）大電網配置能力有待提高

跨省(sheng)區(qu)(qu)(qu)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)(li)(li)流(liu)規(gui)模存在(zai)合(he)理(li)的(de)(de)擴大需求(qiu)空間(jian)，電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)(li)(li)大范圍配置能(neng)(neng)力(li)(li)(li)(li)有(you)待提升。負荷與(yu)(yu)資源(yuan)逆向分布的(de)(de)特性決定了必須持續擴大跨區(qu)(qu)(qu)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)(li)(li)流(liu)規(gui)模，全(quan)面(mian)提升電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)網(wang)配置能(neng)(neng)力(li)(li)(li)(li)。2017年全(quan)國新(xin)(xin)增(zeng)用(yong)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)量(liang)(liang)的(de)(de)59.3%集(ji)中于(yu)東中部(bu)，其中，華(hua)東地(di)區(qu)(qu)(qu)占(zhan)全(quan)國新(xin)(xin)增(zeng)用(yong)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)量(liang)(liang)25.2%，作為我國經濟發(fa)展(zhan)龍(long)頭(tou)地(di)區(qu)(qu)(qu)，東中部(bu)在(zai)未來(lai)很長(chang)時間(jian)內仍將(jiang)是(shi)(shi)我國電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)(li)(li)消(xiao)費的(de)(de)主要(yao)區(qu)(qu)(qu)域。為保(bao)障電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)(li)(li)安全(quan)供應、促進清(qing)潔低(di)碳發(fa)展(zhan)，加快西(xi)部(bu)北部(bu)大型(xing)煤電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)、水(shui)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)、風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)、太陽能(neng)(neng)發(fa)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)等(deng)能(neng)(neng)源(yuan)基地(di)開發(fa)，大規(gui)模、遠(yuan)距離(li)輸(shu)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)至東中部(bu)負荷地(di)區(qu)(qu)(qu)是(shi)(shi)必然要(yao)求(qiu)。2017年，我國電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)網(wang)跨區(qu)(qu)(qu)跨省(sheng)輸(shu)送能(neng)(neng)力(li)(li)(li)(li)只有(you)2.3億(yi)千(qian)瓦(wa)(wa)，僅占(zhan)水(shui)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)、風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)、太陽能(neng)(neng)發(fa)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)裝機總容量(liang)(liang)的(de)(de)36%，清(qing)潔能(neng)(neng)源(yuan)外送能(neng)(neng)力(li)(li)(li)(li)嚴重不(bu)足。相比較(jiao)而言，歐洲部(bu)分國家間(jian)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)(li)(li)外送能(neng)(neng)力(li)(li)(li)(li)充(chong)足，丹麥與(yu)(yu)挪威、瑞典等(deng)國家間(jian)的(de)(de)輸(shu)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)容量(liang)(liang)800萬千(qian)瓦(wa)(wa)，是(shi)(shi)本國風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)裝機的(de)(de)1.6倍。葡萄(tao)牙與(yu)(yu)西(xi)班牙聯網(wang)輸(shu)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)能(neng)(neng)力(li)(li)(li)(li)310萬千(qian)瓦(wa)(wa)，占(zhan)風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)(dian)裝機的(de)(de)65%。

（六）堅強輸電網與智能配電網仍需協調發展

輸(shu)電(dian)網(wang)(wang)(wang)(wang)和配電(dian)網(wang)(wang)(wang)(wang)“兩頭薄弱(ruo)”制約(yue)我國(guo)電(dian)力(li)發(fa)展，各級(ji)主網(wang)(wang)(wang)(wang)架亟需加快(kuai)建(jian)設(she)，智(zhi)(zhi)能(neng)配電(dian)網(wang)(wang)(wang)(wang)發(fa)展基礎(chu)薄弱(ruo)。當(dang)前，特(te)高壓(ya)骨干(gan)網(wang)(wang)(wang)(wang)架尚處于形成期，輸(shu)電(dian)通道建(jian)設(she)難以滿(man)足大(da)規(gui)模清潔(jie)能(neng)源開(kai)發(fa)需求，省間能(neng)力(li)交換不足嚴重制約(yue)大(da)電(dian)網(wang)(wang)(wang)(wang)功(gong)能(neng)作用發(fa)揮；配電(dian)網(wang)(wang)(wang)(wang)仍存在城鄉之間發(fa)展不協調(diao)、智(zhi)(zhi)能(neng)化水平低的問題，隨著配電(dian)網(wang)(wang)(wang)(wang)負荷(he)快(kuai)速增長，特(te)別是(shi)電(dian)動汽車、儲能(neng)等設(she)備大(da)量接入，對配電(dian)網(wang)(wang)(wang)(wang)的接納能(neng)力(li)、建(jian)設(she)標準等都提出(chu)了(le)更高要(yao)求，必須加快(kuai)智(zhi)(zhi)能(neng)化改造和轉(zhuan)型(xing)升級(ji)。

（七）電力市場機制有待進一步完善

總體(ti)看，全(quan)(quan)國統一(yi)電(dian)力(li)(li)市場(chang)尚未建(jian)成(cheng)(cheng)，市場(chang)規(gui)則仍不夠健(jian)全(quan)(quan)和(he)完(wan)善，省間(jian)壁壘(lei)較大，促進(jin)可(ke)(ke)再(zai)生能(neng)源(yuan)(yuan)(yuan)跨省消納(na)的電(dian)價(jia)機(ji)制(zhi)(zhi)缺(que)乏。一(yi)是(shi)(shi)交(jiao)易機(ji)制(zhi)(zhi)缺(que)失，資(zi)(zi)源(yuan)(yuan)(yuan)利用效率不高。發電(dian)企業和(he)用戶之間(jian)市場(chang)交(jiao)易有(you)限，售電(dian)側有(you)效競爭機(ji)制(zhi)(zhi)尚未建(jian)立(li)，市場(chang)配置資(zi)(zi)源(yuan)(yuan)(yuan)的決定性作用難以發揮。二是(shi)(shi)市場(chang)化(hua)定價(jia)機(ji)制(zhi)(zhi)尚未完(wan)全(quan)(quan)形(xing)成(cheng)(cheng)。現行電(dian)價(jia)管理(li)(li)仍以政(zheng)府定價(jia)為主(zhu)，電(dian)價(jia)調(diao)整(zheng)往(wang)往(wang)滯后成(cheng)(cheng)本(ben)變化(hua)，難以及時(shi)并合理(li)(li)反映用電(dian)成(cheng)(cheng)本(ben)、市場(chang)供(gong)求(qiu)狀(zhuang)況、資(zi)(zi)源(yuan)(yuan)(yuan)稀缺(que)程度和(he)環境保護(hu)支出(chu)。三是(shi)(shi)可(ke)(ke)再(zai)生能(neng)源(yuan)(yuan)(yuan)跨省消納(na)壁壘(lei)亟待(dai)破除。電(dian)力(li)(li)改革試點(dian)以省為單位落(luo)實(shi)推進(jin)，很多省份出(chu)于對省內發電(dian)的保護(hu)，對外(wai)受電(dian)量、電(dian)價(jia)做出(chu)不合理(li)(li)限制(zhi)(zhi)，造成(cheng)(cheng)電(dian)力(li)(li)市場(chang)交(jiao)易省間(jian)壁壘(lei)問題，不利于電(dian)力(li)(li)資(zi)(zi)源(yuan)(yuan)(yuan)更(geng)大范(fan)圍(wei)優(you)化(hua)配置和(he)可(ke)(ke)再(zai)生能(neng)源(yuan)(yuan)(yuan)電(dian)力(li)(li)的有(you)效消納(na)。

調整思路與重點舉措

（一）科學研判未來電力需求，適度超前發展保障電力供應

針對未來用電(dian)需求的增(zeng)長(chang)趨勢(shi)，應通盤考慮全國(guo)電(dian)力(li)工(gong)業總(zong)量(liang)、結(jie)構、布(bu)局等問題，堅持電(dian)力(li)工(gong)業適度超(chao)前發(fa)展。“十(shi)三(san)五”我國(guo)電(dian)源(yuan)(yuan)發(fa)展的主要原則是調整電(dian)源(yuan)(yuan)結(jie)構、優化電(dian)源(yuan)(yuan)布(bu)局，提高(gao)非化石能源(yuan)(yuan)比重，推動化石能源(yuan)(yuan)清(qing)潔高(gao)效(xiao)利用。

（二）嚴控煤電規模，規范自備電廠發展

嚴(yan)控(kong)煤電新增規(gui)模(mo)，促進煤電有(you)序發展。按(an)照“抓大頭、壓落后”的原則，精準施策推進煤電去(qu)產(chan)能。把東中部(bu)地區作(zuo)為(wei)煤電去(qu)產(chan)能重(zhong)點，已(yi)建煤電機組應減少發電并有(you)計(ji)劃關停，并將(jiang)煤電去(qu)產(chan)能與(yu)優化布局(ju)相(xiang)結合(he)，有(you)序推進西部(bu)北部(bu)煤電基地集約開發，發揮特高壓電網大范圍配置資源的作(zuo)用，實現(xian)風電、太陽能發電與(yu)煤電打捆外送，保障我(wo)國電力供應長(chang)期安(an)全。

將自(zi)備(bei)煤(mei)電(dian)(dian)(dian)機組(zu)納(na)入壓減(jian)煤(mei)電(dian)(dian)(dian)項(xiang)目清(qing)單，嚴控燃煤(mei)自(zi)備(bei)電(dian)(dian)(dian)廠發展(zhan)。制定(ding)自(zi)備(bei)電(dian)(dian)(dian)廠管理(li)辦(ban)法(fa)，未(wei)納(na)入國家(jia)電(dian)(dian)(dian)力(li)規劃(hua)的(de)自(zi)備(bei)電(dian)(dian)(dian)廠項(xiang)目一律不得(de)核準(zhun)、建(jian)設(she)(she)，已經開工(gong)建(jian)設(she)(she)的(de)，應(ying)立即停建(jian)。在(zai)新能源消納(na)困難、裝機明顯冗余、火(huo)電(dian)(dian)(dian)利用(yong)小時數偏低、霧霾(mai)污染嚴重(zhong)的(de)京津(jin)冀魯、西北地(di)區(qu)、東三(san)省等區(qu)域，嚴禁新建(jian)燃煤(mei)自(zi)備(bei)發電(dian)(dian)(dian)機組(zu)，已投運(yun)的(de)燃煤(mei)自(zi)備(bei)發電(dian)(dian)(dian)機組(zu)必須強制并(bing)網并(bing)服(fu)從(cong)電(dian)(dian)(dian)網統一調度(du)，嚴格(ge)執行(xing)發電(dian)(dian)(dian)計劃(hua)，承擔公用(yong)電(dian)(dian)(dian)廠調峰義務和相應(ying)社會責任。

（三）堅持集中式和分布式并舉，大力開發利用可再生能源

加快(kuai)西南地區水(shui)電開發。從水(shui)電布局上看，西部(bu)地區未來應全面推(tui)進(jin)金沙江(jiang)(jiang)下游(you)(you)、雅礱江(jiang)(jiang)、大渡河(he)、瀾(lan)滄江(jiang)(jiang)大型水(shui)電能源(yuan)基地建設，加快(kuai)開發金沙江(jiang)(jiang)中(zhong)游(you)(you)水(shui)電能源(yuan)基地，啟(qi)動金沙江(jiang)(jiang)上游(you)(you)和(he)怒江(jiang)(jiang)中(zhong)下游(you)(you)大型水(shui)電能源(yuan)基地建設；中(zhong)部(bu)地區合理開發黃河(he)北(bei)干流、漢江(jiang)(jiang)下游(you)(you)、贛江(jiang)(jiang)等流域剩余水(shui)能資(zi)源(yuan)；東部(bu)地區應重點做好已建電站(zhan)的擴機和(he)改造(zao)升級。

新(xin)能源開(kai)(kai)發(fa)以集(ji)中與分(fen)(fen)散開(kai)(kai)發(fa)并重。風電重點開(kai)(kai)發(fa)“三北(bei)(bei)”地(di)(di)區(qu)(qu)(qu)和(he)東(dong)部沿(yan)海地(di)(di)區(qu)(qu)(qu)，包括河(he)北(bei)(bei)、內蒙(meng)古、東(dong)北(bei)(bei)三省(sheng)、甘肅(su)、新(xin)疆，以及(ji)江蘇(su)、浙江、山東(dong)等(deng)(deng)省(sheng)區(qu)(qu)(qu)，開(kai)(kai)發(fa)形式(shi)(shi)以成片區(qu)(qu)(qu)的(de)、較(jiao)大規(gui)模的(de)集(ji)中式(shi)(shi)風電場(chang)為(wei)主。同(tong)時支持風能資源不太(tai)豐富地(di)(di)區(qu)(qu)(qu)，因地(di)(di)制(zhi)宜地(di)(di)推進(jin)開(kai)(kai)發(fa)中小型分(fen)(fen)散式(shi)(shi)風電場(chang)，在(zai)沿(yan)海和(he)中部地(di)(di)區(qu)(qu)(qu)建設(she)若干分(fen)(fen)散式(shi)(shi)風電群。太(tai)陽能發(fa)電重點開(kai)(kai)發(fa)與風電共建的(de)甘肅(su)酒泉、蒙(meng)西、新(xin)疆哈密建設(she)百萬千(qian)瓦光伏基地(di)(di)，以及(ji)青(qing)海格爾(er)木、甘肅(su)河(he)西走廊和(he)內蒙(meng)古鄂爾(er)多斯、寧(ning)夏北(bei)(bei)部等(deng)(deng)3~5個百萬千(qian)瓦級光伏基地(di)(di)，同(tong)時在(zai)西藏、內蒙(meng)古、甘肅(su)、四(si)川、云南(nan)等(deng)(deng)地(di)(di)建設(she)若干個10萬千(qian)瓦級光伏基地(di)(di)，在(zai)其(qi)他地(di)(di)區(qu)(qu)(qu)建設(she)一(yi)批(pi)城市并網光伏發(fa)電系(xi)統。

（四）調峰電源建設與靈活性改造并舉，提高系統調峰能力

加快(kuai)抽(chou)(chou)(chou)水蓄(xu)能(neng)電(dian)站和燃氣電(dian)站等(deng)調峰電(dian)源建(jian)設(she)(she)。對已(yi)開工(gong)建(jian)設(she)(she)的抽(chou)(chou)(chou)水蓄(xu)能(neng)電(dian)站項目，進一步優化施工(gong)工(gong)期，力(li)爭提前(qian)投(tou)(tou)運；積極推進已(yi)列(lie)入規劃(hua)的抽(chou)(chou)(chou)水蓄(xu)能(neng)電(dian)站建(jian)設(she)(she)，力(li)爭按期投(tou)(tou)產；結合特高壓電(dian)網建(jian)設(she)(she)、新能(neng)源發展，適時調整抽(chou)(chou)(chou)水蓄(xu)能(neng)選點規劃(hua)。推進天然氣調峰電(dian)站建(jian)設(she)(she)，在有條件的華北(bei)、華東、南(nan)方、西北(bei)等(deng)地區建(jian)設(she)(she)一批天然氣調峰電(dian)站，增加系統的靈(ling)活性(xing)資(zi)源供給能(neng)力(li)。

推進煤電(dian)(dian)機組深度(du)調(diao)峰改造(zao)(zao)與儲(chu)能(neng)(neng)應(ying)用(yong)(yong)。我(wo)國已具(ju)備自主(zhu)開展包括(kuo)鍋(guo)爐、汽(qi)輪機、蓄熱罐(guan)、電(dian)(dian)鍋(guo)爐等各項改造(zao)(zao)的(de)(de)能(neng)(neng)力，未(wei)來應(ying)通過市場化手(shou)段激發(fa)靈活性改造(zao)(zao)積極性，力爭完成“十(shi)三五”規劃改造(zao)(zao)目(mu)標(biao)；在儲(chu)能(neng)(neng)方面，目(mu)前我(wo)國已經掌(zhang)握兆(zhao)瓦(wa)級(ji)、10兆(zhao)瓦(wa)級(ji)電(dian)(dian)池儲(chu)能(neng)(neng)電(dian)(dian)站的(de)(de)集成、運行和控制(zhi)技(ji)術，預計(ji)“十(shi)三五”末鋰離子電(dian)(dian)池綜(zong)合度(du)電(dian)(dian)成本會降到0.3元/千(qian)瓦(wa)時，在用(yong)(yong)戶側將具(ju)備商業化推廣能(neng)(neng)力。2020年之后，隨著電(dian)(dian)動汽(qi)車(che)及電(dian)(dian)池梯次利用(yong)(yong)技(ji)術的(de)(de)發(fa)展，將會出現價格更低、布(bu)局更廣的(de)(de)儲(chu)能(neng)(neng)系(xi)統參與電(dian)(dian)網級(ji)應(ying)用(yong)(yong)。

（五）推進電網高質量發展，著力解決“兩頭薄弱”問題

優化全國同(tong)步(bu)電網格局。一是進(jin)(jin)一步(bu)推進(jin)(jin)華(hua)中省間聯網建設(she)，滿足(zu)大容量直流饋(kui)入需要；二是加強華(hua)北—華(hua)中聯網，提高通道輸電能(neng)力和系統安全穩定(ding)水平；三是推動建設(she)“三華(hua)”同(tong)步(bu)電網，形(xing)成(cheng)堅強受端(duan)電網。

提(ti)升(sheng)配電(dian)(dian)(dian)(dian)網(wang)(wang)發展水平(ping)。加快構建(jian)(jian)一(yi)流現(xian)代化(hua)配電(dian)(dian)(dian)(dian)網(wang)(wang)，滿足在(zai)供(gong)電(dian)(dian)(dian)(dian)安全性、可靠性等(deng)方面日益(yi)提(ti)高的(de)用電(dian)(dian)(dian)(dian)需求。一(yi)是加強城鎮配電(dian)(dian)(dian)(dian)網(wang)(wang)建(jian)(jian)設，強化(hua)統(tong)一(yi)規劃，確保廊道(dao)、選址、建(jian)(jian)設一(yi)次到位；二是推(tui)進(jin)農村(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)改造升(sheng)級(ji)，補齊農村(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)建(jian)(jian)設短板，加快推(tui)進(jin)農網(wang)(wang)供(gong)電(dian)(dian)(dian)(dian)服(fu)務均等(deng)化(hua)；三是提(ti)高配電(dian)(dian)(dian)(dian)網(wang)(wang)智(zhi)能化(hua)水平(ping)，不(bu)斷推(tui)進(jin)“大云物移”、人工(gong)智(zhi)能等(deng)新(xin)技(ji)術應用，適應配電(dian)(dian)(dian)(dian)網(wang)(wang)互動化(hua)發展需求。

（六）加快建設全國統一電力市場，促進能源資源大范圍優化配置

建(jian)設全(quan)國統(tong)(tong)(tong)一電(dian)(dian)(dian)(dian)力市(shi)場(chang)(chang)(chang)。按照(zhao)統(tong)(tong)(tong)一設計、統(tong)(tong)(tong)一規則、統(tong)(tong)(tong)一平(ping)臺、統(tong)(tong)(tong)一運營(ying)的(de)(de)思路，在確保電(dian)(dian)(dian)(dian)網(wang)安(an)全(quan)穩(wen)定運行的(de)(de)基(ji)礎上，以(yi)(yi)建(jian)立公平(ping)開放、充分競爭的(de)(de)電(dian)(dian)(dian)(dian)能量市(shi)場(chang)(chang)(chang)、售電(dian)(dian)(dian)(dian)側市(shi)場(chang)(chang)(chang)以(yi)(yi)及相關聯的(de)(de)輔助服務市(shi)場(chang)(chang)(chang)、容量市(shi)場(chang)(chang)(chang)、可再生能源消納市(shi)場(chang)(chang)(chang)、輸(shu)電(dian)(dian)(dian)(dian)權市(shi)場(chang)(chang)(chang)為重點，加快建(jian)立符合市(shi)場(chang)(chang)(chang)化(hua)需求(qiu)的(de)(de)電(dian)(dian)(dian)(dian)價機(ji)制(zhi)和(he)透明高(gao)效的(de)(de)電(dian)(dian)(dian)(dian)力交易平(ping)臺。

加快建(jian)立促進(jin)可再生能源消(xiao)納的輔(fu)助服(fu)(fu)務(wu)(wu)補償(chang)機(ji)(ji)制。完善并(bing)網發電(dian)企業輔(fu)助服(fu)(fu)務(wu)(wu)考核(he)機(ji)(ji)制和補償(chang)機(ji)(ji)制，滿足電(dian)網調(diao)(diao)峰、調(diao)(diao)頻(pin)、調(diao)(diao)壓和用(yong)戶可中斷負荷等輔(fu)助服(fu)(fu)務(wu)(wu)的新要求(qiu)。按照“誰受益(yi)、誰承擔”的原(yuan)則，建(jian)立電(dian)力用(yong)戶參與的輔(fu)助服(fu)(fu)務(wu)(wu)分擔共享機(ji)(ji)制。