In the process of establishing the National Energy Administration, Tian Liang, who has long been involved in the energy sector, did not have direct experience in setting up such a body. As a member of the Chinese People's Political Consultative Conference and General Manager of China National Coal Energy Corporation, he was part of the preparatory team when the Ministry of Energy was first established in 1988. Reflecting on that time, Tian Liang recalled how the energy commission operated during the 1980s.
According to him, in 1987, the State Council decided to reform the energy management structure and set up a special group to prepare for the establishment of the Ministry of Energy, which was officially formed in 1988. During this period, Minister Huang Yicheng proposed the "four-in-three-three-independence" framework for the Ministry of Energy. This concept emphasized policy-making, planning, and service management, while remaining independent from personnel, financial, and material controls.
At the time, many within the Ministry of Energy were unfamiliar with this approach. "People were used to working in traditional government departments where they had control over people, money, and resources," Tian Liang explained. He noted that after the restructuring, the power system was reorganized, and China National Petroleum Corporation was established in the oil industry. Similarly, coal companies set up their national headquarters, and the nuclear industry also became independent. The result was a fragmented system where each sector operated separately—whether it was power, oil, coal, or nuclear.
Looking back, Tian Liang believes that the "four-in-three-three-independence" model still offers valuable insights for current government reforms. However, he pointed out that one major issue at the time was poor coordination. "With so many ministries and enterprises under one department, it was difficult to manage effectively. Without control over personnel, finances, and resources, coordination suffered."
Based on these lessons, Tian Liang believes that the establishment of the National Energy Administration under the National Development and Reform Commission was a more practical approach than creating a separate Department of Energy. He explained that the energy sector is highly complex, involving four distinct industries—coal, electricity, oil, and nuclear—each with its own independent production and development processes.
Tian Liang sees the creation of the Energy Bureau as a positive step toward more effective energy governance. For example, it can regulate coal mine access, set production standards, determine mining technologies, and ensure resource recovery rates. These measures help maintain a sustainable and healthy development of the country’s energy resources.
In related discussions, Zhang Xiaoji, a member of the CPPCC and former Minister of External Studies at the State Council Development Research Center, emphasized that the exploration of major institutional reforms is ongoing. He questioned the relationships between the Energy Commission, the National Development and Reform Commission, and the Energy Administration, and how they interact and constrain each other.
Wang Dacheng, another CPPCC member and deputy director of the NPC Standing Committee Budget Working Committee, suggested the need for a Department of Energy. He argued that the Energy Commission serves only as a coordinating body without decision-making authority, while the Energy Bureau functions as a bureau rather than a full ministry, lacking independent power. He raised questions about the accountability structure: Is the Energy Bureau responsible to the Energy Commission or directly to the National Development and Reform Commission?
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