On the Approval of the National Project “Development of Coal Generation”

Resolution of the Government of the Republic of Kazakhstan dated March 20, 2026, No. 184

In accordance with paragraph 85 of the State Planning System in the Republic of Kazakhstan, approved by Resolution No. 790 of the Government of the Republic of Kazakhstan dated November 29, 2017, the Government of the Republic of Kazakhstan RESOLVES:

1. To approve the attached National Project “Development of Coal Generation” (hereinafter referred to as the National Project).      2. Central, local executive bodies and other organizations (as agreed) responsible for the implementation of the National Project: 1) take measures to implement the National Project; 2) provide information to the Ministry of Energy of the Republic of Kazakhstan on the progress of the National Project in accordance with the State Planning System in the Republic of Kazakhstan.      3. Control over the implementation of this resolution is entrusted to the Ministry of Energy of the Republic of Kazakhstan.      4. This resolution shall enter into force from the date of its signing.

Национальный проект"Развитие угольной генерации"

      1. Паспорт

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    2. Current situation. The unified power system of the Republic of Kazakhstan is characterized by a high dependence on coal‑fired generation, which ensures coverage of the base load and the stability of its operation.   As of January 1, 2026, 248 power plants of various ownership forms are producing electricity in the Republic of Kazakhstan, with a total installed capacity of 26,806.9 MW. Traditional energy sources operating on fossil fuels include 81 units with a total installed capacity of 20,525.86 MW. Historically, coal‑fired generation has formed the basis of the country’s generating capacity. More than 90% of Kazakhstan's coal reserves are located in the northeastern and central regions of the country: the Karaganda and Turgai coal basins, the Shubarkol and Zhalyn fields, in the northeastern region of the country - the Ekibastuz and Maikubinsky coal basins, the Karazhyr deposit, and therefore the location of the largest power plants such as the Ekibastuz GRES, Aksu GRES, Petropavlovsk TPP, Topar GRES, and Pavlodar TPPs were carried out mainly in the northern zone of the energy system, which determines the systemic dependence of the electric power industry on the sustainability of coal mining and transportation.  Coal‑based generation using clean coal technologies is a high‑quality solution to the problem of ensuring the country’s uninterrupted power supply. Coal projects are becoming especially relevant given the growth rates of consumption in recent years (an increase of over 4.5 billion kWh), as well as in light of the announced energy‑intensive projects in the field of information technology (data centres) and the widespread adoption of artificial intelligence, the needs of which cannot be met by solar and wind generation. At the same time, coal‑fired power plants are recognized as a base for meeting demand not only by Kazakhstan.  Thus, while Japan previously planned to phase out 90 % of its coal‑fired thermal power plants by 2030, as of 2026, coal accounts for about 30 % of all electrical energy generation. For Japan, coal‑fired power plants remain a solution for ensuring the stable operation of the power system amid the high cost of imported liquefied natural gas and the instability of renewable energy sources. For the United States, against the backdrop of cooling temperatures, coal‑fired power plants have also helped meet the increased energy demand for heating in a number of regions. Furthermore, the United States is the global leader in terms of the number of data centers – more than 4,000 facilities, or approximately 38% of all data centers in the world, which is due to the work of IT giants such as Amazon, Google, and Microsoft on cloud infrastructure. At the same time, there is an expansion of data storage for artificial intelligence and cryptocurrency infrastructure. Thus, the main reason for the need to further develop coal‑fired generation is the projected growth in demand for electrical energy from new energy‑intensive consumers, including data centers for digital systems, as well as large industrial enterprises in the real sector and the industrial complex.  At the same time, economic and industrial growth in the Republic of Kazakhstan is outpacing the pace of commissioning and modernization of generating capacities, creating persistent structural constraints for the development of energy‑intensive sectors of the economy. Between 2020 and 2024, the growth of the Republic of Kazakhstan’s economy amounted to 94%, while electricity generation volumes increased by only 6%, which indicates that generating capacities are not being commissioned at a pace that keeps pace with the dynamics of economic development.  International practice shows that sustainable industrial growth is ensured provided that electricity generation grows faster than demand, whereas if the rate of demand growth exceeds the rate of modernization and expansion of generation, risks of a shortage of electrical capacity and limitations on the development of energy‑intensive industries arise. It is also important to note energy sources in which further financial investment is not advisable and, therefore, they should be decommissioned.  An additional significant factor affecting the reliability of power supply is the high level of physical and moral wear and tear of power plant equipment, which results in a reduction of available capacity relative to installed capacity and increases the likelihood of emergency shutdowns, especially during peak load periods. These limitations manifest themselves against the backdrop of a persistent gap between the growth rate of electricity consumption and the renewal of existing generating capacities. Power gap issues. The analysis showed that at most coal‑fired power sources (at 23 out of 29 power plants), there is a difference between installed and available capacities. The total volume of “locked” electrical power amounts to over 2.4 GW.  By nature, there are technical and seasonal causes.  Technical causes include:  equipment being taken out of service for repair or subject to restrictions due to its condition, failure to meet design fuel parameters, and restrictions on boiler equipment in the form of slagging, ash deposition, and degradation of heating surfaces.  Seasonal causes include the absence of a heating load during the summer period, as well as those...

Direction 1. Development of the generation sector

Task 1. Construction of new generating capacity

 In the context of the growing consumption of electric energy, the key tasks are the rapid development of generating capacities and increasing the reliability of the UES of the Republic of Kazakhstan.      Thus, the key tool for attracting investments in the construction of new and maintenance of existing generating capacities in the UES of the Republic of Kazakhstan is the electric capacity market, which has been operating since 2019.      The electric capacity market is aimed at increasing the investment attractiveness of the electric power industry by providing long-term guarantees of return on investment in the generation sector, creating conditions for advanced development of energy infrastructure, which allows maintaining the reliability and stability of the energy system.  Within the framework of the electric power market, a number of mechanisms for implementing investment projects are provided:- conducting tenders for the construction of large base‑load power sources using solid fuel;- signing investment agreements with existing power‑generating organizations, which provide for the modernization, reconstruction and expansion of existing power plants.The tender mechanism is used to implement power plant construction projects in cases where a projected deficit of electric power in the power system is anticipated. Within the framework of this mechanism, a number of projects for the construction of new power plants are already underway:

– in November 2025, an agreement was signed for the construction of a condensing power plant in the city of Ekibastuz with an installed capacity of 2,640 MW;– in January 2026, an agreement was signed for the construction of a condensing power plant in the city of Kurchatov with a capacity of 700 MW;– a tender is planned for the construction of a combined heat and power plant in the city of Zhezkazgan with a capacity of 500 MW, where coal is considered as fuel due to the limited throughput capacity of the Saryarka gas pipeline.  The implementation of these projects is planned without using budget funds, relying instead on private investment within the framework of the electricity capacity market. The new plants will be built using modern “clean coal” technologies and operating at supercritical steam parameters. The projects envisage the use of modern gas cleaning, dust collection, and dust suppression systems that comply with the requirements of environmental legislation and the best available techniques. In addition to the tender mechanism, the construction of new power plants is also carried out on the basis of direct contracts. Currently, agreements have been signed to implement projects in the cities of Kokshetau, Semey, and Ust‑Kamenogorsk, with a total installed capacity of 960 MW. When implementing these projects, the priority criteria are to improve energy efficiency, conserve resources, and minimize the negative impact on the environment. The design solutions will ensure compliance with the established environmental emission standards by using modern flue gas treatment technologies.  Taken together, the implementation of these projects will make it possible to commission more than 5.3 GW of new generating capacity, which will be a key contribution to meeting the projected growth in electricity consumption and to improving the reliability of power supply for the population and the country’s economy.

Direction 2. Technical re‑equipment of existing power sources

Task 2. Modernization of existing energy assets

Alongside the construction of new power plants, modernization and expansion of existing generating capacities are among the key areas for meeting the growing demand for electrical power. Within this direction, projects are implemented to modernize, reconstruct, expand, and upgrade the main and auxiliary equipment of existing power plants. Such projects are implemented on the basis of investment agreements concluded with the authorized body in the field of electric power.  This mechanism предусматривает the establishment of an individual tariff for the service of maintaining electrical capacity readiness and the guaranteed purchase of this service by a single buyer for a specified period. This ensures the return on investment and creates conditions for attracting borrowed financing from financial institutions.  In order to increase the investment attractiveness of modernizing existing energy assets, a number of state support measures have been implemented, including:

– increasing the annual limit on returnable investments for modernization projects of existing power plants;– gradually increasing the maximum tariff for the service of maintaining electrical capacity readiness;– introducing a mechanism for indexing tariffs on the volume of borrowed financing raised in foreign currency, taking into account changes in the exchange rate.

These measures have made it possible to expand the pool of investment projects for the modernization and renewal of equipment at existing power plants.      The key projects for the modernization and expansion of generating capacities are: – modernization of unit No. 7 of the Aksu GRES with a capacity of 325 MW; – construction of units No. 3 and No. 4 of the Ekibastuz GRES-2 with a total capacity of 1,100 MW; – expansion of the Karaganda CHPP with the construction of a new boiler and turbine unit with a capacity of 140 MW; – expansion of the Ust-Kamenogorsk CHPP with the construction of a new boiler and turbine unit with a capacity of 100 MW. During the implementation of modernization and expansion projects, it is planned to use modern technological solutions aimed at increasing energy efficiency and reducing the environmental burden. The design solutions will involve the implementation of highly efficient flue gas cleaning systems and technologies to reduce pollutant emissions in accordance with the requirements of environmental legislation and the principles of the best available techniques.      Taken together, the implementation of these projects will make it possible to ensure an additional increase in generating capacity of about 2.5 GW, improve the efficiency of existing power plants, and extend the service life of their safe operation.      In the future, the modernization of existing coal‑fired power plants will continue as part of phased equipment renewal programs using modern technologies, which will ensure the stable operation of the power system and reduce the environmental impact.

Direction 3. Improving Human Resources

Task 3. Ensuring Staff Stability in the Energy Sector

Implementing projects to build new power plants, as well as modernizing existing generating capacities and their subsequent operation, requires a systematic strengthening of the human resources potential in the energy sector.Currently, the generation sector is facing structural staffing challenges, including a high average age of employees, a limited influx of young professionals, and a shortage of personnel with competencies in modern energy technologies, automation, and digital control systems.  Under these conditions, ensuring the workforce stability of the industry is one of the key factors for the successful implementation of generation development projects. The main areas of work will be: 1. Development of a system for training and professional development of personnel. It is planned to develop professional training and retraining programs for employees of energy enterprises, including training in working with modern automation systems, digital equipment management technologies, as well as improving qualifications in the field of industrial safety and environmental standards for the operation of energy facilities. 2. Increasing the attractiveness of working in the energy industry.  In order to attract and retain qualified specialists, measures are planned to improve working conditions and develop the social package for employees of energy enterprises. One of the key tools will be the development of corporate housing programs. In particular, it is planned to use preferential housing lending mechanisms based on the “Corporate” program of Otbasy Bank JSC, which provides for employers’ participation in financing the provision of housing for employees of energy enterprises. Implementing these measures will make working in the energy sector more attractive, ensure an influx of young specialists, and build a stable workforce for the operation of new facilities. 

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4. Ожидаемый социально-экономический эффект, польза для благополучателей

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5. Ресурсы

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6. Распределение ответственности и полномочий

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      ________________________________________________________________________________________________      Приложение к      Национальному проекту      "Развитие угольной генерации"

План-график реализации Национального проекта"Развитие угольной генерации"

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          Note: abbreviations: JSC "NI "Baiterek" – joint Stock Company "National Investment Holding "Baiterek"; STB – second-tier banks; MIO – local executive bodies of regions, cities of republican significance, capital; MT – Ministry of Transport of the Republic of Kazakhstan; MF – Ministry of Finance of the Republic of Kazakhstan; DBK JSC – Joint–stock Company "Development Bank of Kazakhstan"; National Bank of the Republic of Kazakhstan – National Bank of the Republic of Kazakhstan; JSC "NC "KTZ" – Joint–stock Company "National Company "Kazakhstan Temir Zholy"; OTP – domestic producers; JSC "FRP" - joint-stock Company "Industrial Development Fund"; MPS - Ministry of Industry and Construction of the Republic Kazakhstan; NWF Samruk-Kazyna JSC – Joint Stock Company National Welfare Fund Samruk-Kazyna; National Project – National Project "Development of Coal Generation"; IFI – international Financial Institute; IFIs – international financial organizations; DOE – Ministry of Energy of the Republic of Kazakhstan; MENR – Ministry of Ecology and Natural Resources resources of the Republic of Kazakhstan; EPO – energy producing organization; MNE – Ministry of National Economy of the Republic of Kazakhstan.

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