In order to make enterprises more scientific and comprehensive when choosing photovoltaic investment projects, a comprehensive investment evaluation index system was established from the environment, economy and risk and a combination of empowerment-TOPSIS model investment decision-making method for photovoltaic projects was proposed. Game theory is used to combine the subjective and objective weights calculated by the order relationship analysis method and entropy weighting method, which take into account the subjective judgment of experts and also integrates the results of objective data analysis to make the decision more comprehensive and scientific. In the investment decision-making stage, TOPSIS is adopted to calculate the overall degree of superiority, and the alternative projects are ranked in order of superiority and inferiority, so as to select the optimal investment object. Finally, the applicability and feasibility of the model are verified with examples, a theoretical basis is provided for the sustainable development of the photovoltaic industry.