Carbon dioxide (CO2) hydrogenation to ethanol (C2H5OH) is considered a promising way for CO2 conversion and utilization, whereas desirable conversion efficiency remains a challenge. Herein, highly active, selective and stable CO2 hydrogenation to C2H5OH was enabled by highly ordered Pd-Cu nanoparticles (NPs). By tuning the composition of the Pd-Cu NPs and catalyst supports, the efficiency of CO2 hydrogenation to C2H5OH was well optimized with Pd2Cu NPs/P25 exhibiting high selectivity to C2H5OH of up to 92.0% and the highest turnover frequency of 359.0 h(-1). Diffuse reflectance infrared Fourier transform spectroscopy results revealed the high C2H5OH production and selectivity of Pd2Cu NPs/P25 can be ascribed to boosting *CO (adsorption CO) hydrogenation to *HCO, the rate-determining step for the CO2 hydrogenation to C2H5OH.