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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(dian)(dian)(dian)力供需形勢(shi)持續(xu)寬(kuan)松，國家大力推進(jin)供給側結構性改革、防范(fan)化解煤電(dian)(dian)(dian)產能過剩風險等形勢(shi)背景下，除水電(dian)(dian)(dian)、核電(dian)(dian)(dian)、天然氣(qi)發電(dian)(dian)(dian)相較《規(gui)劃》進(jin)度有所(suo)滯后外，電(dian)(dian)(dian)力發展絕大多數指標(biao)均按《規(gui)劃》要求(qiu)進(jin)度執(zhi)行或(huo)已超額完成(cheng)目(mu)標(biao)。

（一）電(dian)(dian)力裝(zhuang)機總量(liang)和用電(dian)(dian)量(liang)超預(yu)(yu)期增(zeng)(zeng)長(chang)(chang)，均高(gao)(gao)于(yu)《規劃(hua)》預(yu)(yu)測增(zeng)(zeng)速。2017年全社會(hui)用電(dian)(dian)量(liang)為6.3萬億千瓦時，“十(shi)三五(wu)”前(qian)兩年年均增(zeng)(zeng)長(chang)(chang)5.2%，高(gao)(gao)于(yu)《規劃(hua)》高(gao)(gao)預(yu)(yu)測增(zeng)(zeng)速4.8%。全國發電(dian)(dian)裝(zhuang)機容量(liang)17.8億千瓦，“十(shi)三五(wu)”前(qian)兩年年均增(zeng)(zeng)長(chang)(chang)7.9%，高(gao)(gao)于(yu)《規劃(hua)》預(yu)(yu)測增(zeng)(zeng)速5.5%。

（二）電(dian)源(yuan)結構逐(zhu)步優化，煤(mei)電(dian)占(zhan)(zhan)比(bi)已(yi)降至(zhi)(zhi)《規劃》要求(qiu)，非(fei)化石(shi)(shi)能源(yuan)占(zhan)(zhan)比(bi)目(mu)(mu)標有(you)望提(ti)前(qian)實現。“十三五”前(qian)兩年(nian)(nian)電(dian)源(yuan)投資增(zeng)長有(you)所(suo)放緩、結構逐(zhu)步優化。國家和電(dian)力行業高度重視(shi)化解煤(mei)電(dian)過剩產能，煤(mei)電(dian)裝機(ji)發(fa)展速度得到(dao)有(you)效控(kong)制(zhi)，2017年(nian)(nian)累積裝機(ji)9.8億千瓦(wa)，占(zhan)(zhan)比(bi)已(yi)從2015年(nian)(nian)的(de)(de)59%降至(zhi)(zhi)《規劃》目(mu)(mu)標要求(qiu)的(de)(de)55%。截(jie)至(zhi)(zhi)2017年(nian)(nian)底，非(fei)化石(shi)(shi)能源(yuan)發(fa)電(dian)裝機(ji)達(da)到(dao)6.7億千瓦(wa)左右，占(zhan)(zhan)比(bi)達(da)到(dao)38%，距離《規劃》39%的(de)(de)目(mu)(mu)標僅差1個百分(fen)點；非(fei)化石(shi)(shi)能源(yuan)占(zhan)(zhan)一(yi)次(ci)能源(yuan)消費比(bi)重達(da)到(dao)13.8%，距離《規劃》15%的(de)(de)目(mu)(mu)標僅差1.2個百分(fen)點。

（三(san)(san)）新能(neng)源發(fa)展迅(xun)猛，太陽能(neng)發(fa)電(dian)(dian)裝(zhuang)機(ji)已(yi)超額完成《規(gui)劃》目(mu)標。截至2017年(nian)底，風電(dian)(dian)裝(zhuang)機(ji)達到1.64億(yi)千(qian)(qian)瓦，距離《規(gui)劃》目(mu)標僅(jin)4600萬千(qian)(qian)瓦；分布式(shi)(shi)光伏爆(bao)發(fa)式(shi)(shi)增(zeng)長，累(lei)計裝(zhuang)機(ji)容量2966萬千(qian)(qian)瓦，同比增(zeng)長190%，太陽能(neng)發(fa)電(dian)(dian)裝(zhuang)機(ji)達到1.3億(yi)千(qian)(qian)瓦，已(yi)超過《規(gui)劃》1.1億(yi)千(qian)(qian)瓦的目(mu)標。“十三(san)(san)五”前兩年(nian)風電(dian)(dian)和太陽能(neng)發(fa)電(dian)(dian)裝(zhuang)機(ji)年(nian)平均增(zeng)速(su)達到11.9%和75.9%，均超過《規(gui)劃》年(nian)平均增(zeng)速(su)設定值。

（四(si)）水電(dian)(dian)建設(she)趨緩，常(chang)規(gui)(gui)水電(dian)(dian)和(he)抽(chou)(chou)水蓄(xu)能裝(zhuang)機(ji)目(mu)(mu)標實(shi)現存在(zai)一定(ding)難(nan)度。隨著水電(dian)(dian)基地大型水電(dian)(dian)項(xiang)目(mu)(mu)“十(shi)二五(wu)”期(qi)間陸續投(tou)產，水電(dian)(dian)新開工項(xiang)目(mu)(mu)近幾年(nian)(nian)明顯(xian)減少。截至(zhi)2017年(nian)(nian)底，常(chang)規(gui)(gui)水電(dian)(dian)裝(zhuang)機(ji)容(rong)量達到3.13億千瓦，“十(shi)三(san)五(wu)”前兩年(nian)(nian)年(nian)(nian)均增(zeng)速為2.7%；抽(chou)(chou)水蓄(xu)能電(dian)(dian)站裝(zhuang)機(ji)容(rong)量2869萬千瓦，“十(shi)三(san)五(wu)”前兩年(nian)(nian)年(nian)(nian)平均增(zeng)速為11.6%。常(chang)規(gui)(gui)水電(dian)(dian)和(he)抽(chou)(chou)蓄(xu)裝(zhuang)機(ji)增(zeng)速略低于《規(gui)(gui)劃(hua)(hua)》設(she)定(ding)的年(nian)(nian)平均增(zeng)速，按照目(mu)(mu)前在(zai)建和(he)新開工項(xiang)目(mu)(mu)，預計到2020年(nian)(nian)，較難(nan)完成常(chang)規(gui)(gui)水電(dian)(dian)和(he)抽(chou)(chou)水蓄(xu)能裝(zhuang)機(ji)達到3.4和(he)0.4億千瓦的《規(gui)(gui)劃(hua)(hua)》目(mu)(mu)標。

（五）天然(ran)(ran)氣(qi)(qi)(qi)發(fa)電(dian)發(fa)展滯后，氣(qi)(qi)(qi)源(yuan)供應恐(kong)難以(yi)支撐《規(gui)劃(hua)》1.1億千(qian)(qian)瓦(wa)裝機目(mu)(mu)標(biao)。截至2017年(nian)(nian)底(di)，天然(ran)(ran)氣(qi)(qi)(qi)發(fa)電(dian)裝機為7600萬千(qian)(qian)瓦(wa)，“十三五”前兩(liang)年(nian)(nian)僅增長1000萬千(qian)(qian)瓦(wa)，低于每年(nian)(nian)新(xin)(xin)增1000萬千(qian)(qian)瓦(wa)的《規(gui)劃(hua)》設定值(zhi)。發(fa)電(dian)用氣(qi)(qi)(qi)占天然(ran)(ran)氣(qi)(qi)(qi)總消費量(liang)(liang)的比例升至19.7%，較(jiao)去年(nian)(nian)提高2.7個百分點，增速(su)創(chuang)“十二五”以(yi)來新(xin)(xin)高。根(gen)據目(mu)(mu)前天然(ran)(ran)氣(qi)(qi)(qi)發(fa)展現狀，天然(ran)(ran)氣(qi)(qi)(qi)儲(chu)量(liang)(liang)和產量(liang)(liang)可能(neng)無(wu)法滿足(zu)2020年(nian)(nian)1.1億千(qian)(qian)瓦(wa)的天然(ran)(ran)氣(qi)(qi)(qi)發(fa)電(dian)裝機目(mu)(mu)標(biao)。

（六(liu)）電(dian)網建設(she)穩步推進，綜合(he)線(xian)損率(lv)提(ti)前實現《規(gui)劃(hua)》目標。“十(shi)三(san)五”前兩年，全國基建新(xin)增500千(qian)伏及以上交(jiao)流輸電(dian)線(xian)路長度2.47萬千(qian)米、變(bian)電(dian)設(she)備容量(liang)2.77億千(qian)伏安，分別完成規(gui)劃(hua)的(de)(de)27%、30%，共(gong)投產12條特高壓線(xian)路。電(dian)網綜合(he)線(xian)損率(lv)從2015年的(de)(de)6.64%降至2017年的(de)(de)6.42%，提(ti)前實現《規(gui)劃(hua)》提(ti)出(chu)的(de)(de)控制在6.5%以內(nei)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(qian)兩年，全國(guo)電(dian)力(li)(li)用電(dian)負荷快速增長，電(dian)力(li)(li)供(gong)需延(yan)續總(zong)體(ti)寬松態(tai)勢(shi)，但區(qu)域間(jian)供(gong)需形(xing)勢(shi)差異(yi)較大。其中(zhong)，華北(bei)(bei)區(qu)域迎(ying)峰度夏期間(jian)電(dian)力(li)(li)供(gong)需平(ping)衡偏緊，華東、華中(zhong)和(he)南方區(qu)域電(dian)力(li)(li)供(gong)需總(zong)體(ti)基本平(ping)衡，東北(bei)(bei)和(he)西北(bei)(bei)區(qu)域電(dian)力(li)(li)供(gong)應能力(li)(li)富(fu)余較多。

（二）煤電產能嚴重過剩，自備電廠呈現無序發展局面

煤電(dian)(dian)(dian)存量規模(mo)大(da)、核準項(xiang)目(mu)多，產能(neng)(neng)過(guo)(guo)剩(sheng)風險(xian)突出。近年來，煤電(dian)(dian)(dian)利用小時數連(lian)續下(xia)降(jiang)，煤電(dian)(dian)(dian)產能(neng)(neng)過(guo)(guo)剩(sheng)風險(xian)凸顯。《規劃》提(ti)出到(dao)2020年全(quan)國(guo)燃煤發電(dian)(dian)(dian)裝(zhuang)(zhuang)機容量控制(zhi)在11億(yi)(yi)(yi)(yi)千(qian)(qian)(qian)(qian)瓦(wa)以(yi)內。截至2017年底，全(quan)國(guo)煤電(dian)(dian)(dian)裝(zhuang)(zhuang)機9.8億(yi)(yi)(yi)(yi)千(qian)(qian)(qian)(qian)瓦(wa)，全(quan)國(guo)已(yi)核準煤電(dian)(dian)(dian)項(xiang)目(mu)3億(yi)(yi)(yi)(yi)千(qian)(qian)(qian)(qian)瓦(wa)左右，其(qi)中國(guo)家電(dian)(dian)(dian)網公司經(jing)營區超過(guo)(guo)2.6億(yi)(yi)(yi)(yi)千(qian)(qian)(qian)(qian)瓦(wa)，且1.7億(yi)(yi)(yi)(yi)千(qian)(qian)(qian)(qian)瓦(wa)已(yi)開(kai)工(gong)建設，6200萬千(qian)(qian)(qian)(qian)瓦(wa)已(yi)開(kai)工(gong)項(xiang)目(mu)投資已(yi)完(wan)成(cheng)80%。若已(yi)核準煤電(dian)(dian)(dian)項(xiang)目(mu)全(quan)部完(wan)成(cheng)建設，2020年我國(guo)煤電(dian)(dian)(dian)裝(zhuang)(zhuang)機規模(mo)將突破12億(yi)(yi)(yi)(yi)千(qian)(qian)(qian)(qian)瓦(wa)。

局部地區(qu)燃煤(mei)自(zi)備(bei)電(dian)廠(chang)(chang)發展(zhan)(zhan)嚴重(zhong)失控。截至2017年底，全(quan)國(guo)自(zi)備(bei)電(dian)廠(chang)(chang)裝(zhuang)機容量已超過1.3億千瓦，其中大(da)部分(fen)為燃煤(mei)自(zi)備(bei)電(dian)廠(chang)(chang)。自(zi)備(bei)電(dian)廠(chang)(chang)發電(dian)設備(bei)利用小時(shi)(shi)普遍較(jiao)高(gao)，大(da)部分(fen)6000小時(shi)(shi)以上，平(ping)均(jun)煤(mei)耗400克/千瓦時(shi)(shi)，比全(quan)國(guo)平(ping)均(jun)水平(ping)315克/千瓦時(shi)(shi)高(gao)27%，且大(da)多不(bu)承擔調峰等社會責任。自(zi)備(bei)電(dian)廠(chang)(chang)的無(wu)序發展(zhan)(zhan)不(bu)僅加劇了煤(mei)電(dian)產能過剩(sheng)(sheng)，而且助推了鋼鐵、電(dian)解鋁等產能過剩(sheng)(sheng)，還嚴重(zhong)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

隨著近年(nian)(nian)來(lai)新能(neng)源(yuan)的(de)(de)迅猛(meng)發展，水(shui)(shui)、風、光等可再生(sheng)能(neng)源(yuan)的(de)(de)消(xiao)納(na)問題(ti)日益(yi)突出，局部(bu)地區棄(qi)水(shui)(shui)棄(qi)風棄(qi)光電(dian)量居高不(bu)下。2017年(nian)(nian)，全年(nian)(nian)棄(qi)水(shui)(shui)電(dian)量515億千瓦(wa)時，水(shui)(shui)能(neng)利用(yong)率(lv)(lv)達到96%左右；棄(qi)風電(dian)量419億千瓦(wa)時，棄(qi)風率(lv)(lv)12%，同比下降5.2個百分點；棄(qi)光電(dian)量73億千瓦(wa)時，棄(qi)光率(lv)(lv)6%，同比下降4.3個百分點。總體來(lai)看，2017年(nian)(nian)棄(qi)水(shui)(shui)棄(qi)風棄(qi)光問題(ti)有(you)了較大幅度(du)的(de)(de)緩解，但局部(bu)地區棄(qi)能(neng)率(lv)(lv)仍(reng)然較高，離(li)可再生(sheng)能(neng)源(yuan)健康發展的(de)(de)要求(qiu)還有(you)比較大的(de)(de)差(cha)距(ju)，今后解決問題(ti)的(de)(de)難度(du)也會(hui)不(bu)斷加大。

（四）電力系統調峰能力不足

我(wo)(wo)國(guo)(guo)電(dian)(dian)源(yuan)(yuan)(yuan)結(jie)構以煤(mei)電(dian)(dian)為主，靈活(huo)(huo)調(diao)(diao)節電(dian)(dian)源(yuan)(yuan)(yuan)比(bi)(bi)(bi)(bi)重低，且煤(mei)電(dian)(dian)靈活(huo)(huo)性改造(zao)嚴(yan)重滯后。我(wo)(wo)國(guo)(guo)能(neng)源(yuan)(yuan)(yuan)結(jie)構以煤(mei)為主，火電(dian)(dian)占全國(guo)(guo)電(dian)(dian)源(yuan)(yuan)(yuan)裝機比(bi)(bi)(bi)(bi)重達到(dao)(dao)62%（“三北”地區(qu)70%），抽水(shui)蓄(xu)能(neng)、燃氣(qi)等靈活(huo)(huo)調(diao)(diao)節電(dian)(dian)源(yuan)(yuan)(yuan)比(bi)(bi)(bi)(bi)重僅為6%（“三北”地區(qu)4%），調(diao)(diao)節能(neng)力(li)先(xian)天不足。相(xiang)比(bi)(bi)(bi)(bi)較而言，國(guo)(guo)外主要新(xin)能(neng)源(yuan)(yuan)(yuan)國(guo)(guo)家(jia)靈活(huo)(huo)電(dian)(dian)源(yuan)(yuan)(yuan)比(bi)(bi)(bi)(bi)重相(xiang)對較高，西(xi)班(ban)牙、德國(guo)(guo)、美(mei)(mei)國(guo)(guo)的(de)靈活(huo)(huo)調(diao)(diao)節電(dian)(dian)源(yuan)(yuan)(yuan)占總裝機的(de)比(bi)(bi)(bi)(bi)例分別(bie)為34%、18%、49%，美(mei)(mei)國(guo)(guo)和(he)西(xi)班(ban)牙靈活(huo)(huo)調(diao)(diao)節電(dian)(dian)源(yuan)(yuan)(yuan)達到(dao)(dao)新(xin)能(neng)源(yuan)(yuan)(yuan)的(de)8.5倍(bei)和(he)1.5倍(bei)。通過靈活(huo)(huo)性改造(zao)，可有效提(ti)升煤(mei)電(dian)(dian)機組深度調(diao)(diao)峰(feng)能(neng)力(li)，但《規(gui)劃》提(ti)出的(de)2.15億千瓦改造(zao)目標(biao)，目前完(wan)成不足5%，嚴(yan)重滯后。

（五）大電網配置能力有待提高

跨(kua)省區電(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)流(liu)規(gui)模存在(zai)合理(li)的(de)擴大需求空間(jian)(jian)，電(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)大范圍配置能(neng)(neng)(neng)(neng)力(li)(li)有(you)待提升。負荷與資源(yuan)逆向分(fen)布的(de)特性決定了必(bi)須持續擴大跨(kua)區電(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)流(liu)規(gui)模，全(quan)面提升電(dian)(dian)(dian)(dian)(dian)(dian)網(wang)配置能(neng)(neng)(neng)(neng)力(li)(li)。2017年全(quan)國(guo)(guo)新增用(yong)電(dian)(dian)(dian)(dian)(dian)(dian)量的(de)59.3%集(ji)中于東(dong)中部(bu)(bu)(bu)，其(qi)中，華東(dong)地區占全(quan)國(guo)(guo)新增用(yong)電(dian)(dian)(dian)(dian)(dian)(dian)量25.2%，作為我國(guo)(guo)經濟(ji)發(fa)(fa)展(zhan)(zhan)龍頭地區，東(dong)中部(bu)(bu)(bu)在(zai)未來很長時間(jian)(jian)內仍將是我國(guo)(guo)電(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)消費的(de)主(zhu)要區域。為保障電(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)安全(quan)供應、促進清(qing)潔低碳發(fa)(fa)展(zhan)(zhan)，加(jia)快西(xi)部(bu)(bu)(bu)北(bei)部(bu)(bu)(bu)大型煤電(dian)(dian)(dian)(dian)(dian)(dian)、水電(dian)(dian)(dian)(dian)(dian)(dian)、風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)、太(tai)陽(yang)能(neng)(neng)(neng)(neng)發(fa)(fa)電(dian)(dian)(dian)(dian)(dian)(dian)等(deng)(deng)能(neng)(neng)(neng)(neng)源(yuan)基地開(kai)發(fa)(fa)，大規(gui)模、遠距離(li)輸電(dian)(dian)(dian)(dian)(dian)(dian)至東(dong)中部(bu)(bu)(bu)負荷地區是必(bi)然(ran)要求。2017年，我國(guo)(guo)電(dian)(dian)(dian)(dian)(dian)(dian)網(wang)跨(kua)區跨(kua)省輸送能(neng)(neng)(neng)(neng)力(li)(li)只有(you)2.3億千瓦，僅占水電(dian)(dian)(dian)(dian)(dian)(dian)、風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)、太(tai)陽(yang)能(neng)(neng)(neng)(neng)發(fa)(fa)電(dian)(dian)(dian)(dian)(dian)(dian)裝機總(zong)容量的(de)36%，清(qing)潔能(neng)(neng)(neng)(neng)源(yuan)外送能(neng)(neng)(neng)(neng)力(li)(li)嚴重不(bu)足。相比較而言，歐洲部(bu)(bu)(bu)分(fen)國(guo)(guo)家間(jian)(jian)電(dian)(dian)(dian)(dian)(dian)(dian)力(li)(li)外送能(neng)(neng)(neng)(neng)力(li)(li)充(chong)足，丹麥與挪(nuo)威、瑞(rui)典等(deng)(deng)國(guo)(guo)家間(jian)(jian)的(de)輸電(dian)(dian)(dian)(dian)(dian)(dian)容量800萬千瓦，是本國(guo)(guo)風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)裝機的(de)1.6倍。葡萄牙(ya)與西(xi)班牙(ya)聯網(wang)輸電(dian)(dian)(dian)(dian)(dian)(dian)能(neng)(neng)(neng)(neng)力(li)(li)310萬千瓦，占風(feng)(feng)電(dian)(dian)(dian)(dian)(dian)(dian)裝機的(de)65%。

（六）堅強輸電網與智能配電網仍需協調發展

輸電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)和配(pei)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)“兩頭薄(bo)弱(ruo)”制約(yue)我國電(dian)(dian)(dian)(dian)(dian)力發(fa)(fa)展，各級主(zhu)網(wang)(wang)架亟需(xu)加(jia)快(kuai)建設，智能(neng)(neng)配(pei)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)發(fa)(fa)展基礎薄(bo)弱(ruo)。當前(qian)，特(te)高壓骨干網(wang)(wang)架尚處于(yu)形成(cheng)期，輸電(dian)(dian)(dian)(dian)(dian)通道建設難以滿足大(da)規(gui)模清(qing)潔能(neng)(neng)源開發(fa)(fa)需(xu)求，省間能(neng)(neng)力交換不足嚴(yan)重制約(yue)大(da)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)功能(neng)(neng)作用發(fa)(fa)揮；配(pei)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)仍存在城鄉之間發(fa)(fa)展不協調、智能(neng)(neng)化(hua)水(shui)平低(di)的問題，隨著(zhu)配(pei)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)負荷快(kuai)速增長，特(te)別是電(dian)(dian)(dian)(dian)(dian)動汽(qi)車、儲能(neng)(neng)等(deng)(deng)設備大(da)量接(jie)入，對配(pei)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)的接(jie)納能(neng)(neng)力、建設標(biao)準等(deng)(deng)都(dou)提出了(le)更高要求，必須加(jia)快(kuai)智能(neng)(neng)化(hua)改造和轉型升級。

（七）電力市場機制有待進一步完善

總體看，全(quan)(quan)國統一(yi)(yi)電(dian)(dian)力(li)(li)市場(chang)(chang)尚(shang)未(wei)(wei)建成，市場(chang)(chang)規則仍(reng)不(bu)(bu)(bu)夠健(jian)全(quan)(quan)和(he)完(wan)善(shan)，省間壁壘較大，促(cu)進可(ke)再(zai)(zai)生(sheng)能(neng)源(yuan)跨省消(xiao)納的(de)電(dian)(dian)價(jia)機(ji)制缺乏(fa)。一(yi)(yi)是(shi)交易(yi)機(ji)制缺失，資(zi)源(yuan)利(li)用效(xiao)率(lv)不(bu)(bu)(bu)高。發電(dian)(dian)企業和(he)用戶(hu)之(zhi)間市場(chang)(chang)交易(yi)有限，售電(dian)(dian)側有效(xiao)競爭機(ji)制尚(shang)未(wei)(wei)建立，市場(chang)(chang)配置(zhi)資(zi)源(yuan)的(de)決定(ding)性作用難以(yi)發揮(hui)。二是(shi)市場(chang)(chang)化定(ding)價(jia)機(ji)制尚(shang)未(wei)(wei)完(wan)全(quan)(quan)形成。現行電(dian)(dian)價(jia)管(guan)理(li)仍(reng)以(yi)政府定(ding)價(jia)為主，電(dian)(dian)價(jia)調整往往滯(zhi)后成本變化，難以(yi)及時(shi)并合理(li)反映(ying)用電(dian)(dian)成本、市場(chang)(chang)供求狀況(kuang)、資(zi)源(yuan)稀(xi)缺程度和(he)環境保護(hu)支出(chu)(chu)。三是(shi)可(ke)再(zai)(zai)生(sheng)能(neng)源(yuan)跨省消(xiao)納壁壘亟待破除。電(dian)(dian)力(li)(li)改革試(shi)點以(yi)省為單(dan)位落實(shi)推進，很多省份(fen)出(chu)(chu)于對省內(nei)發電(dian)(dian)的(de)保護(hu)，對外受(shou)電(dian)(dian)量、電(dian)(dian)價(jia)做出(chu)(chu)不(bu)(bu)(bu)合理(li)限制，造成電(dian)(dian)力(li)(li)市場(chang)(chang)交易(yi)省間壁壘問題，不(bu)(bu)(bu)利(li)于電(dian)(dian)力(li)(li)資(zi)源(yuan)更大范圍優(you)化配置(zhi)和(he)可(ke)再(zai)(zai)生(sheng)能(neng)源(yuan)電(dian)(dian)力(li)(li)的(de)有效(xiao)消(xiao)納。

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(dui)未來用電(dian)(dian)需求(qiu)的增長趨勢，應通盤考慮(lv)全國電(dian)(dian)力工業總量、結(jie)構、布局(ju)等問題，堅持電(dian)(dian)力工業適度(du)超前發展(zhan)。“十(shi)三五”我國電(dian)(dian)源(yuan)(yuan)(yuan)(yuan)發展(zhan)的主要原則是調(diao)整電(dian)(dian)源(yuan)(yuan)(yuan)(yuan)結(jie)構、優化電(dian)(dian)源(yuan)(yuan)(yuan)(yuan)布局(ju)，提(ti)高非化石能源(yuan)(yuan)(yuan)(yuan)比重，推(tui)動化石能源(yuan)(yuan)(yuan)(yuan)清潔(jie)高效利用。

（二）嚴控煤電規模，規范自備電廠發展

嚴(yan)控煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)新增規模，促進煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)有(you)(you)序發(fa)展。按照“抓大(da)頭(tou)、壓落后(hou)”的原則，精(jing)準(zhun)施策推進煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)去(qu)產能(neng)(neng)(neng)。把東(dong)中(zhong)部地區作(zuo)為煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)去(qu)產能(neng)(neng)(neng)重點，已建煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)機組應減少發(fa)電(dian)(dian)(dian)(dian)并有(you)(you)計劃(hua)關停，并將煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)去(qu)產能(neng)(neng)(neng)與(yu)優(you)化布局相結合，有(you)(you)序推進西部北部煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)基地集約開發(fa)，發(fa)揮特高壓電(dian)(dian)(dian)(dian)網大(da)范圍配置資源的作(zuo)用(yong)，實現風(feng)電(dian)(dian)(dian)(dian)、太陽能(neng)(neng)(neng)發(fa)電(dian)(dian)(dian)(dian)與(yu)煤(mei)(mei)(mei)電(dian)(dian)(dian)(dian)打捆外送，保(bao)障我(wo)國電(dian)(dian)(dian)(dian)力供應長(chang)期安(an)全(quan)。

將自(zi)備(bei)(bei)煤(mei)(mei)電(dian)(dian)機(ji)組納入(ru)壓(ya)減煤(mei)(mei)電(dian)(dian)項(xiang)目清單，嚴控(kong)燃煤(mei)(mei)自(zi)備(bei)(bei)電(dian)(dian)廠(chang)(chang)發展。制定自(zi)備(bei)(bei)電(dian)(dian)廠(chang)(chang)管(guan)理辦法(fa)，未納入(ru)國家(jia)電(dian)(dian)力規(gui)劃的(de)自(zi)備(bei)(bei)電(dian)(dian)廠(chang)(chang)項(xiang)目一律(lv)不得(de)核(he)準、建(jian)(jian)設(she)，已(yi)經開工建(jian)(jian)設(she)的(de)，應(ying)立即(ji)停建(jian)(jian)。在新能源消納困難、裝機(ji)明顯(xian)冗余、火(huo)電(dian)(dian)利用小(xiao)時數偏低、霧霾污(wu)染嚴重的(de)京津冀魯、西北地區(qu)、東(dong)三省等區(qu)域，嚴禁新建(jian)(jian)燃煤(mei)(mei)自(zi)備(bei)(bei)發電(dian)(dian)機(ji)組，已(yi)投運的(de)燃煤(mei)(mei)自(zi)備(bei)(bei)發電(dian)(dian)機(ji)組必須強制并網并服(fu)從電(dian)(dian)網統一調(diao)(diao)度，嚴格執(zhi)行發電(dian)(dian)計(ji)劃，承擔公用電(dian)(dian)廠(chang)(chang)調(diao)(diao)峰義務和相應(ying)社會責任(ren)。

（三）堅持集中式和分布式并舉，大力開發利用可再生能源

加快西南(nan)地(di)(di)區(qu)(qu)水(shui)電(dian)(dian)開(kai)發。從水(shui)電(dian)(dian)布局上(shang)看，西部地(di)(di)區(qu)(qu)未來(lai)應(ying)全面(mian)推進金沙(sha)江(jiang)(jiang)下(xia)(xia)游、雅礱江(jiang)(jiang)、大(da)(da)渡河、瀾滄江(jiang)(jiang)大(da)(da)型水(shui)電(dian)(dian)能源(yuan)(yuan)(yuan)基地(di)(di)建(jian)(jian)設，加快開(kai)發金沙(sha)江(jiang)(jiang)中(zhong)游水(shui)電(dian)(dian)能源(yuan)(yuan)(yuan)基地(di)(di)，啟動金沙(sha)江(jiang)(jiang)上(shang)游和(he)怒(nu)江(jiang)(jiang)中(zhong)下(xia)(xia)游大(da)(da)型水(shui)電(dian)(dian)能源(yuan)(yuan)(yuan)基地(di)(di)建(jian)(jian)設；中(zhong)部地(di)(di)區(qu)(qu)合理(li)開(kai)發黃河北干流、漢江(jiang)(jiang)下(xia)(xia)游、贛江(jiang)(jiang)等流域剩余水(shui)能資源(yuan)(yuan)(yuan)；東(dong)部地(di)(di)區(qu)(qu)應(ying)重(zhong)點做好已建(jian)(jian)電(dian)(dian)站(zhan)的擴機(ji)和(he)改造(zao)升(sheng)級。

新能源(yuan)開發(fa)(fa)(fa)以(yi)集中(zhong)(zhong)(zhong)(zhong)與(yu)分散開發(fa)(fa)(fa)并重(zhong)。風電(dian)(dian)重(zhong)點開發(fa)(fa)(fa)“三(san)北(bei)”地(di)(di)(di)(di)(di)區(qu)和東部沿(yan)海地(di)(di)(di)(di)(di)區(qu)，包(bao)括河北(bei)、內(nei)蒙(meng)古(gu)(gu)、東北(bei)三(san)省(sheng)、甘(gan)(gan)肅(su)、新疆(jiang)，以(yi)及江蘇(su)、浙江、山東等(deng)省(sheng)區(qu)，開發(fa)(fa)(fa)形式(shi)以(yi)成片(pian)區(qu)的(de)(de)、較大規模(mo)的(de)(de)集中(zhong)(zhong)(zhong)(zhong)式(shi)風電(dian)(dian)場為主(zhu)。同時(shi)支持風能資源(yuan)不太豐富(fu)地(di)(di)(di)(di)(di)區(qu)，因地(di)(di)(di)(di)(di)制宜地(di)(di)(di)(di)(di)推(tui)進開發(fa)(fa)(fa)中(zhong)(zhong)(zhong)(zhong)小型(xing)分散式(shi)風電(dian)(dian)場，在(zai)沿(yan)海和中(zhong)(zhong)(zhong)(zhong)部地(di)(di)(di)(di)(di)區(qu)建設(she)(she)若干(gan)分散式(shi)風電(dian)(dian)群。太陽能發(fa)(fa)(fa)電(dian)(dian)重(zhong)點開發(fa)(fa)(fa)與(yu)風電(dian)(dian)共建的(de)(de)甘(gan)(gan)肅(su)酒泉、蒙(meng)西、新疆(jiang)哈密建設(she)(she)百萬千(qian)瓦(wa)光伏(fu)基(ji)(ji)地(di)(di)(di)(di)(di)，以(yi)及青海格爾木、甘(gan)(gan)肅(su)河西走廊和內(nei)蒙(meng)古(gu)(gu)鄂爾多(duo)斯、寧(ning)夏(xia)北(bei)部等(deng)3~5個(ge)百萬千(qian)瓦(wa)級(ji)光伏(fu)基(ji)(ji)地(di)(di)(di)(di)(di)，同時(shi)在(zai)西藏、內(nei)蒙(meng)古(gu)(gu)、甘(gan)(gan)肅(su)、四川、云南等(deng)地(di)(di)(di)(di)(di)建設(she)(she)若干(gan)個(ge)10萬千(qian)瓦(wa)級(ji)光伏(fu)基(ji)(ji)地(di)(di)(di)(di)(di)，在(zai)其他地(di)(di)(di)(di)(di)區(qu)建設(she)(she)一批城市(shi)并網光伏(fu)發(fa)(fa)(fa)電(dian)(dian)系統。

（四）調峰電源建設與靈活性改造并舉，提高系統調峰能力

加(jia)快抽(chou)(chou)水蓄能(neng)(neng)(neng)電(dian)站(zhan)和燃(ran)氣(qi)電(dian)站(zhan)等調(diao)(diao)峰(feng)電(dian)源建(jian)設(she)(she)。對已(yi)開工(gong)建(jian)設(she)(she)的(de)抽(chou)(chou)水蓄能(neng)(neng)(neng)電(dian)站(zhan)項目，進一步優化施工(gong)工(gong)期，力(li)爭提前投運；積極推進已(yi)列入規(gui)劃的(de)抽(chou)(chou)水蓄能(neng)(neng)(neng)電(dian)站(zhan)建(jian)設(she)(she)，力(li)爭按期投產；結合特高(gao)壓電(dian)網建(jian)設(she)(she)、新(xin)能(neng)(neng)(neng)源發展，適(shi)時調(diao)(diao)整抽(chou)(chou)水蓄能(neng)(neng)(neng)選點規(gui)劃。推進天然(ran)氣(qi)調(diao)(diao)峰(feng)電(dian)站(zhan)建(jian)設(she)(she)，在有條件的(de)華北(bei)、華東、南方、西北(bei)等地(di)區建(jian)設(she)(she)一批(pi)天然(ran)氣(qi)調(diao)(diao)峰(feng)電(dian)站(zhan)，增(zeng)加(jia)系統的(de)靈(ling)活性資源供給能(neng)(neng)(neng)力(li)。

推(tui)進煤電(dian)機組深度(du)調峰(feng)改(gai)造(zao)與儲(chu)(chu)能(neng)(neng)(neng)應(ying)(ying)用(yong)(yong)(yong)。我國已具(ju)(ju)備自主開展(zhan)包括(kuo)鍋(guo)爐(lu)、汽輪機、蓄熱罐、電(dian)鍋(guo)爐(lu)等各(ge)項改(gai)造(zao)的能(neng)(neng)(neng)力(li)(li)，未來(lai)應(ying)(ying)通過市場化手段(duan)激(ji)發靈活性改(gai)造(zao)積極性，力(li)(li)爭完成“十三(san)五(wu)”規劃改(gai)造(zao)目標；在儲(chu)(chu)能(neng)(neng)(neng)方(fang)面，目前我國已經(jing)掌握兆瓦級(ji)、10兆瓦級(ji)電(dian)池儲(chu)(chu)能(neng)(neng)(neng)電(dian)站(zhan)的集成、運行和控(kong)制技術，預(yu)計“十三(san)五(wu)”末鋰離子電(dian)池綜合度(du)電(dian)成本會降(jiang)到0.3元/千瓦時，在用(yong)(yong)(yong)戶側將具(ju)(ju)備商業化推(tui)廣(guang)能(neng)(neng)(neng)力(li)(li)。2020年之后，隨(sui)著電(dian)動汽車及電(dian)池梯(ti)次(ci)利用(yong)(yong)(yong)技術的發展(zhan)，將會出現價格更(geng)低、布局(ju)更(geng)廣(guang)的儲(chu)(chu)能(neng)(neng)(neng)系(xi)統參與電(dian)網(wang)級(ji)應(ying)(ying)用(yong)(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(quan)國同(tong)步(bu)電網(wang)(wang)格局。一是(shi)進一步(bu)推(tui)進華(hua)中省間聯網(wang)(wang)建設(she)，滿(man)足(zu)大(da)容量直流饋(kui)入需要；二是(shi)加(jia)強(qiang)華(hua)北—華(hua)中聯網(wang)(wang)，提高通道輸電能力(li)和系(xi)統(tong)安(an)全(quan)穩(wen)定水平；三(san)是(shi)推(tui)動(dong)建設(she)“三(san)華(hua)”同(tong)步(bu)電網(wang)(wang)，形成堅(jian)強(qiang)受端電網(wang)(wang)。

提升(sheng)配電(dian)(dian)(dian)(dian)網(wang)發(fa)展水(shui)平。加快構建一(yi)(yi)流(liu)現代化配電(dian)(dian)(dian)(dian)網(wang)，滿足在供(gong)電(dian)(dian)(dian)(dian)安(an)全性、可靠性等方面(mian)日益(yi)提高的用電(dian)(dian)(dian)(dian)需求(qiu)。一(yi)(yi)是加強城鎮(zhen)配電(dian)(dian)(dian)(dian)網(wang)建設，強化統一(yi)(yi)規劃(hua)，確保廊(lang)道(dao)、選(xuan)址、建設一(yi)(yi)次到位；二是推(tui)進農村(cun)電(dian)(dian)(dian)(dian)網(wang)改造升(sheng)級，補齊農村(cun)電(dian)(dian)(dian)(dian)網(wang)建設短板，加快推(tui)進農網(wang)供(gong)電(dian)(dian)(dian)(dian)服務(wu)均等化；三是提高配電(dian)(dian)(dian)(dian)網(wang)智能化水(shui)平，不斷推(tui)進“大云(yun)物移(yi)”、人工(gong)智能等新技(ji)術應用，適應配電(dian)(dian)(dian)(dian)網(wang)互動化發(fa)展需求(qiu)。

（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)設全國統(tong)(tong)一(yi)電(dian)力市(shi)(shi)(shi)場(chang)。按照統(tong)(tong)一(yi)設計、統(tong)(tong)一(yi)規則(ze)、統(tong)(tong)一(yi)平臺、統(tong)(tong)一(yi)運(yun)營(ying)的思(si)路，在確保電(dian)網(wang)安全穩定(ding)運(yun)行(xing)的基(ji)礎上，以建(jian)立(li)(li)公平開放、充分(fen)競爭(zheng)的電(dian)能量市(shi)(shi)(shi)場(chang)、售(shou)電(dian)側(ce)市(shi)(shi)(shi)場(chang)以及(ji)相關(guan)聯的輔助(zhu)服(fu)務市(shi)(shi)(shi)場(chang)、容量市(shi)(shi)(shi)場(chang)、可再(zai)生能源消納市(shi)(shi)(shi)場(chang)、輸電(dian)權市(shi)(shi)(shi)場(chang)為(wei)重(zhong)點(dian)，加快建(jian)立(li)(li)符合市(shi)(shi)(shi)場(chang)化(hua)需求(qiu)的電(dian)價機制和透明(ming)高效的電(dian)力交易平臺。

加快建立(li)促進可(ke)再生(sheng)能源(yuan)消(xiao)納的(de)輔(fu)(fu)助(zhu)服務(wu)補(bu)償(chang)機(ji)(ji)制(zhi)(zhi)。完(wan)善并網(wang)發電企業輔(fu)(fu)助(zhu)服務(wu)考(kao)核(he)機(ji)(ji)制(zhi)(zhi)和(he)(he)補(bu)償(chang)機(ji)(ji)制(zhi)(zhi)，滿足電網(wang)調峰、調頻、調壓和(he)(he)用(yong)戶可(ke)中斷負荷等輔(fu)(fu)助(zhu)服務(wu)的(de)新要求。按照“誰受(shou)益(yi)、誰承擔(dan)”的(de)原則，建立(li)電力用(yong)戶參(can)與的(de)輔(fu)(fu)助(zhu)服務(wu)分(fen)擔(dan)共享機(ji)(ji)制(zhi)(zhi)。