Subsidy policies for EV charging infrastructure in China: A systematic review of outcomes and policy recommendations

The expansion of electric vehicle (EV) charging infrastructure is central to China’s large-scale EV adoption and emissions reduction goals. Government subsidies have played a critical role in mitigating market barriers such as high upfront costs and network externalities. This study provides a structured qualitative policy review of China’s EV charging infrastructure subsidy policies implemented between 2015 and 2024. Drawing on central and local policy documents, industry statistics, and illustrative case studies, the paper examines policy design, implementation dynamics, and sectoral outcomes. The analysis indicates that subsidy policies were associated with rapid infrastructure expansion and improvements in national EV-to-charger ratios. However, several structural challenges emerged alongside these developments, including uneven regional distribution, underutilised “zombie” charging stations, persistent operational profitability constraints, and increasing market concentration among leading operators. Case evidence from the Crab Island project in Beijing and the financial performance of Terminus Group illustrate how construction-oriented subsidies facilitated rapid scale expansion without necessarily ensuring efficient utilisation or sustainable profitability, particularly under regulated pricing constraints. The study argues that while early subsidy policy interventions addressed initial market failures, challenges observed after 2020 are more appropriately characterised as transitional governance frictions arising from subsidy recalibration and evolving regulatory frameworks rather than persistent government failure. To enhance long-term sustainability, the paper recommends performance-based subsidy mechanisms, differentiated regional subsidy instrument, strengthened monitoring and accountability, and improved alignment between infrastructure expansion, utilisation efficiency, and cost structures. These findings provide policy-relevant insights for jurisdictions transitioning from subsidy-driven infrastructure rollout to more market-oriented, financially sustainable charging systems.