Action Plan for Carbon Peaking during the 15th Five-Year Plan Period
The 15th Five-Year Plan period constitutes a critical and decisive stage for achieving carbon peaking. To implement the decisions and arrangements of the Party Central Committee and the State Council, actively yet prudently advance and realize carbon peaking, and accelerate the comprehensive green transition of economic and social development, this Plan is formulated in accordance with the Environmental Code of the People's Republic of China, the Measures for the Comprehensive Evaluation and Assessment of Carbon Peaking and Carbon Neutrality, and other relevant provisions.
I. General Requirements
We will be guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, earnestly apply the arrangements of the Fourth Plenary Session of the 20th Central Committee, and fully, accurately and comprehensively apply the new development philosophy. We will leverage the strategic driving role of carbon peaking and carbon neutrality, better balance energy security guarantee and economic and social development, take the green and low-carbon transition of energy as the key task, further promote the green and low-carbon transformation of industries, carry out energy conservation and carbon reduction work at a higher level and with better quality, and steadily realize the peaking of coal and oil consumption. We will embed green and low-carbon orientation into all areas and links of the national economic cycle, accelerate the formation of green modes of production and lifestyles, foster more growth drivers for the green economy, and consolidate the green foundation for high-quality development.
By 2030, China's carbon dioxide emissions per unit of gross domestic product (GDP) will drop by 17 percent compared with the 2025 level, and the share of non-fossil energy in total energy consumption will reach 25 percent. We will ensure the timely fulfillment of the carbon peaking target and lay a solid foundation for attaining the nationally determined contribution target for 2035 and advancing carbon neutrality.
II. Accelerate the Adjustment and Optimization of the Energy Structure
(I) Vigorously promote the development of non-fossil energy
We will advance the development of wind, solar, hydropower, nuclear and other forms of energy in a coordinated manner, scale up the development of new energy to a greater extent, coordinate development layout and consumption, and expand the effective supply of non-fossil energy. We will build clean energy bases including wind and photovoltaic power bases in the Three-North Region, integrated hydropower, wind and solar energy bases in southwest China, coastal nuclear power bases and offshore wind power bases. We will actively develop distributed photovoltaic power and scattered wind power, advance the large-scale development of concentrated solar power and marine energy power generation, utilize biomass energy and geothermal energy in light of local conditions, and develop integrated wind-solar-hydrogen-ammonia-methanol bases. We will accelerate efforts to cover newly added electricity demand with newly generated clean energy power. By 2030, the total installed capacity of wind and solar power will exceed 2.8 billion kilowatts, the installed capacity of conventional hydropower will reach approximately 410 million kilowatts, and the installed capacity of operational nuclear power will stand at roughly 110 million kilowatts.
(II) Speed up efforts to enhance new energy consumption capacity of the power system
Adapted to the development trend of new energy, we will strengthen the power system’s capacity to accommodate, allocate and regulate new energy. We will boost the capacity of trans-provincial and trans-regional power transmission and mutual complementarity, speed up the construction of extra-high voltage outward transmission corridors, increase west-to-east power transmission capacity by more than 80 million kilowatts, and vigorously push forward inter-provincial power mutual aid projects. We will support local consumption of new energy, actively develop green power direct supply models including direct connection to green power and nearby access of new energy to incremental distribution networks, and advance the integrated development of sources, grids, loads and energy storage. We will continuously expand the scale of regulating resources in the power system. Adhering to ecological priority, demand orientation and optimized layout, we will accelerate the construction of pumped storage power stations suited to local conditions; promote the large-scale development of new energy storage and vigorously develop long-duration energy storage; tap the potential of demand-side regulation, accelerate the development of virtual power plants, and encourage various distributed resources such as adjustable loads to participate in system regulation. We will gradually set targets for the minimum share of renewable energy consumption in key energy-consuming industries. By 2030, the installed capacity of pumped storage power will reach around 160 million kilowatts, the installed capacity of new energy storage will strive to hit 300 million kilowatts, the maximum regulating capacity of national virtual power plants will exceed 50 million kilowatts, and the power demand response capacity will account for over 5 percent of the maximum electricity load.
(III) Further advance the clean substitution of coal consumption
We will reasonably control the installed scale and power generation volume of coal-fired power units, drive coal-fired power to transform into supporting and regulating power sources, and support the integrated development of coal-fired power and new energy. We will carry out low-carbon retrofits of coal-fired power units, implement heat-power decoupling retrofits for cogeneration units in northern China on the premise of not affecting heat supply, and support heating power plants in building heat storage facilities. We will strengthen research, development and popularization of high-efficiency energy-saving coal-fired power generating units and auxiliary equipment. We will shut down coal-fired power units (including self-provided units) that fail to meet requirements on environmental protection, energy consumption, coal use, safety and service life in accordance with laws and regulations, and vigorously promote self-provided units to participate in grid peak regulation. We will advance low-carbon transformation of coal chemical industry, cut coal consumption and carbon emissions per unit product, and support coal chemical projects to develop in coupling with green power and green hydrogen. We will vigorously push forward clean substitution of coal-fired boilers and coal-fired industrial kilns, fully phase out coal-fired boilers with a capacity of 10 steam tons per hour or below, and gradually replace small and medium-sized coal-fired boilers across industries. We will formulate tailored plans for individual enterprises to promote coal control and reduction among coal-consuming enterprises. Regions with suitable conditions will be supported to implement equivalent or reduced substitution of coal consumption for new non-high-energy-consumption and high-emission projects.
(IV) Continuously optimize the consumption structure of oil and gas
We will actively promote the application of green fuels such as green hydrogen, ammonia and methanol, biodiesel and sustainable aviation fuel. We will push forward oil substitution in the chemical industry in an orderly manner, explore the application of green hydrogen, ammonia and methanol in the chemical sector, and steadily advance oil substitution for power and heat supply in industrial fields. We will guide the growth of natural gas consumption within a reasonable range, prioritize gas supply for people’s livelihood, rationally guide gas use by key industrial enterprises, and build natural gas peak-shaving power stations in light of local conditions. We will strengthen the conservation of oil and gas resources across production, consumption and other links and improve the efficiency of oil and gas utilization.
III. Promote the Green and Low-Carbon Transformation of Industries
(V) Drive the green and low-carbon transformation of industrial structure
We will steadily and in an orderly manner resolve structural contradictions in key industries, and phase out backward and inefficient production capacity, processes and equipment in accordance with laws and regulations. We will strengthen standardized management of cement production capacity. We will effectively manage projects featuring high energy consumption and high emissions, strengthen source control, strictly conduct energy conservation and carbon reduction reviews and assessments, and enforce the requirement of equivalent or reduced carbon emission substitution for newly built, renovated and expanded industrial projects with high energy consumption and high emissions. We will accelerate the development of green low-carbon industries including green energy, green manufacturing and green services, continuously sharpen the competitive edge of industries such as new energy, new energy vehicles and power batteries, and foster industries such as hydrogen energy and green fuels. We will support the development of carbon management service industry, promote third-party governance models including energy performance contracting, and advance the digital and intelligent technology-enabled green and low-carbon development.
(VI) Launch energy conservation and carbon reduction retrofits for traditional industries
Focusing on major energy-consuming equipment, installations and working procedures in key industries, we will carry out comprehensive energy conservation and carbon reduction retrofits, vigorously popularize energy-saving and low-carbon technologies and equipment, boost innovation in low-carbon processes and digital transformation, effectively improve the utilization efficiency of energy and resources and lower carbon emissions. We will strengthen energy conservation supervision and improve the energy efficiency diagnosis mechanism covering key fields. During the 15th Five-Year Plan period, carbon dioxide emissions per unit value added of industrial enterprises above designated size will drop by over 17 percent, energy consumption per unit value added of industrial enterprises above designated size will decline by more than 10 percent, energy consumption per unit of GDP will decrease by approximately 10 percent, and energy conservation of over 150 million tons of standard coal will be achieved through energy conservation and carbon reduction retrofits in key industries.
(VII) Accelerate the development of zero-carbon parks and zero-carbon factories
We will push forward the development of national-level zero-carbon parks with high standards, issue guidelines for zero-carbon park development, and support local governments in carrying out low-carbon and zero-carbon retrofits of parks suited to local conditions. We will guide new projects to prioritize settling in zero-carbon parks, accelerate the formation of industrial clusters featuring "green production supported by green energy", encourage existing loads in zero-carbon parks to access green power directly, and support the application of new technologies and models for low-carbon and zero-carbon heating. We will vigorously promote the development of zero-carbon factories, support eligible industrial enterprises to access green power directly, advance the development and application of industrial green microgrids and digital energy and carbon management centers in a coordinated way, and strive to raise the local consumption level of renewable energy. During the 15th Five-Year Plan period, around 100 national-level zero-carbon parks and about 500 zero-carbon factories will be built.
(VIII) Advance the green and low-carbon transformation of computing infrastructure
We will strengthen the coordinated layout of computing infrastructure and renewable energy, support direct supply of green power, rationally allocate supporting facilities such as energy storage and backup power supplies, and push newly built computing infrastructure to mainly use electricity generated from non-fossil energy. We will improve energy conservation and carbon reduction standards for computing infrastructure, drive substandard computing infrastructure to carry out energy conservation and carbon reduction retrofits, phase out backward and inefficient technologies and equipment in an orderly way, and lift the energy efficiency of computing infrastructure. We will accelerate the construction of green computing infrastructure and encourage the development of zero-carbon computing infrastructure.
(IX) Give full play to the role of circular economy in facilitating carbon reduction
We will vigorously promote resource recycling production models, strengthen comprehensive utilization of waste materials, cascade utilization of energy and recycling of water resources, and advance the resource utilization of wastewater, waste gas, waste liquid and waste residues. We will accelerate the improvement of the recycling network for waste materials, promote the "Internet + recycling" model, and smooth the channels for "trade-in plus recycling". We will strengthen standardized recycling and refined utilization of renewable resources such as waste electrical and electronic products, retired power batteries, decommissioned wind and photovoltaic equipment, scrapped vehicles and agricultural machinery, expand channels for comprehensive utilization of bulk solid waste including fly ash, coal gangue, crop straw and livestock and poultry manure, accelerate the popularization of recycled materials, vigorously develop remanufacturing industry, and reinforce the supporting role of resource recycling in safeguarding resource security.
IV. Deepen the Green and Low-Carbon Transformation in Key Sectors
(X) Advance energy conservation and carbon reduction in the building sector
We will strengthen energy conservation and carbon reduction retrofits of existing buildings and tighten energy conservation and carbon reduction management during building operation. New urban buildings will fully comply with green building standards, green and low-carbon construction methods will be popularized, and large-scale development of ultra-low energy buildings and prefabricated buildings will be supported. We will actively push forward electrification and low-carbon transition of building energy consumption, advance the construction of building integrated photovoltaics, and raise the share of renewable energy consumption in buildings. We will accelerate the green and low-carbon transition of heating and cooling systems, strengthen the matching between clean heat supply and heating demand, carry out upgrading and retrofits of central heating pipe networks, and rationally arrange the construction of heat and cold storage facilities. We will launch a green lighting initiative. During the 15th Five-Year Plan period, direct carbon emissions per unit building floor area will drop by 3 percent.
(XI) Accelerate the low-carbon transformation of the transport sector
We will further promote the low-carbon transition of energy used in transport, continuously increase the number of new energy vehicles, speed up the electrification of vehicles in public sectors, actively push new energy replacement for construction, mining, port, airport and logistics park operating vehicles and non-road mobile machinery, and phase out outdated transport vehicles. We will support the large-scale application of new energy heavy-duty trucks, improve charging, battery swapping, green hydrogen, ammonia and methanol refueling and other energy supply facilities, develop zero-carbon highway transport corridors focusing on national highways and ordinary national highways with large freight volumes, and rapidly raise the level of clean transport. We will develop transport vessels powered by electricity, liquefied natural gas, biodiesel and green methanol. We will accelerate the adjustment and optimization of transport structure, continuously raise the share of bulk goods transported by rail and waterway and the proportion of new energy vehicles in transport. We will further implement the strategy of prioritizing urban public transport and build an urban green travel system. By 2030, new energy vehicles will account for 30 percent of all vehicle ownership, and new energy commercial transport vehicles will make up 25 percent of all commercial transport vehicles.
(XII) Promote energy conservation and carbon reduction in public institutions
We will scale up energy conservation and carbon reduction retrofits, guide public institutions to prioritize the use of renewable energy, promote the alignment between energy and resource consumption indicators and relevant budgets, explore the introduction of grading systems for energy efficiency and carbon emission levels of public institutions, and gradually lift the digital and intelligent level of energy and carbon management. We will comprehensively advance the development of energy-saving government offices, build model energy-saving public institutions with high standards, and develop low-carbon public institutions. During the 15th Five-Year Plan period, energy consumption per unit floor area of public institutions will drop by 5 percent, and carbon emissions will decline by 8.5 percent.
(XIII) Consolidate and enhance the carbon sink capacity of ecosystems
We will optimize territorial spatial layout, strictly observe ecological protection redlines, comprehensively advance the development of the nature reserve system with national parks as the mainstay, and strengthen the protection and sustainable utilization of forest resources. Adhering to the integrated protection and systematic governance of mountains, rivers, forests, farmlands, lakes, grasslands and deserts, we will coordinate the advancement of major projects for the protection and restoration of key ecosystems. We will carry out large-scale afforestation initiatives in a scientific manner, accurately improve forest quality, and consolidate achievements in returning farmland to forests and grasslands. We will strengthen comprehensive prevention and control of soil erosion, increase forest carbon sinks, and stabilize the carbon sink capacity of grassland, wetland, farmland, marine and other ecosystems. We will carry out monitoring, assessment, measurement and accounting of ecosystem carbon sinks, issue carbon sink methodologies, and explore the accounting of marine carbon sinks. We will conduct baseline surveys and potential analysis of geological carbon sinks such as karst formations. By 2030, the national forest stock volume will reach 22.4 billion cubic meters.
V. Strengthen Supporting Safeguards
(XIV) Improve the legal, regulatory and standards system
We will promote the development of a legal and regulatory system conducive to achieving carbon peaking and carbon neutrality and accelerating the comprehensive green transition of economic and social development, push forward revisions of the Energy Conservation Law, Renewable Energy Law, Regulations on Energy Conservation in Public Institutions and other laws and regulations, and study, revise and issue the Measures for the Administration of Key Energy-consuming and Carbon-emitting Entities, Measures for Energy Conservation and Carbon Reduction Supervision, Measures for the Administration of Energy Efficiency Labels and other documents. We will improve the standards system for carbon peaking and carbon neutrality. Competent authorities for energy conservation and carbon reduction will work with standardization authorities to accelerate the formulation and revision of standards including energy consumption quotas and carbon emission quotas for key products, launch an initiative to develop 100 key standards for energy conservation and carbon reduction, formulate and release guidelines for assessing energy conservation and carbon reduction levels in key industries, and further implement the energy efficiency labeling system as well as the energy efficiency and carbon efficiency "leader" systems. We will continuously improve standards for product carbon footprint accounting and establish a unified and standardized certification system for product carbon labels. We will advance the development of a nationally unified corporate sustainability disclosure standard system.
(XV) Improve the carbon emission statistical accounting system
We will improve the national and provincial annual and quarterly carbon emission reporting systems, strengthen overall coordination of carbon emission statistical accounting, and enhance joint research on carbon-related data. We will strive to improve the basic capacity of prefecture-level cities for carbon emission statistical accounting, encourage prefecture-level statistical departments to compile energy balance sheets suited to local conditions. We will establish a dynamic monitoring and early warning system for key data, build a national comprehensive carbon emission data management system, and conduct surveys on coal consumption of key energy-consuming and carbon-emitting entities. We will compile national greenhouse gas inventories year by year. We will establish and improve a scientifically standardized system for updating greenhouse gas emission factors, and accelerate the development of a national greenhouse gas emission factor database and carbon footprint background database. We will strengthen the development and application of basic carbon metering capacity.
(XVI) Reinforce scientific and technological support and talent training
Focusing on key fields related to carbon peaking and carbon neutrality, we will arrange forward-looking and strategic national major frontier science and technology projects, carry out research on key core technologies and scientific studies, and deepen international exchanges and cooperation on basic research in relevant fields. We will strengthen the monitoring and assessment of non-carbon dioxide greenhouse gases. Relying on the National Green Technology Exchange Center, we will accelerate the transformation, promotion and application of scientific and technological innovation achievements in energy conservation and carbon reduction. We will strengthen intellectual property protection in green and low-carbon fields. We will explore the development of demonstration projects for carbon capture, utilization and storage (CCUS). We will strengthen training and education of professional talents in fields related to carbon peaking and carbon neutrality, optimize the setup of relevant disciplines and majors, improve core knowledge systems, enrich teaching resources, deepen integration of industry and education as well as integration of science and education, and expand the supply of professional talents.
(XVII) Increase financial support
We will actively boost investment in carbon peaking and carbon neutrality, coordinate various funding channels to support eligible key projects and strengthen follow-up monitoring and scheduling, and guide social capital to actively participate in the investment, construction and operation of carbon peaking and carbon neutrality-related projects. A national low-carbon transition fund will be set up. We will leverage the regulating role of taxation and implement preferential tax policies for energy conservation and carbon reduction. We will optimize government green procurement policies and expand the scope of green product procurement. We will effectively give play to the incentive role of green finance assessment for financial institutions, strengthen the supply of high-quality green finance and transition financial products and services, improve green finance standards and information disclosure requirements, promote investment and financing to address climate change, encourage financial institutions to conduct carbon accounting for investment and financing activities, and push forward the green and low-carbon transition of financial institutions’ operations and asset portfolios in an orderly manner.
(XVIII) Improve pricing policies
We will deepen market-oriented reform of on-grid electricity prices for various power sources, implement sustainable development pricing settlement mechanisms for new energy and pricing mechanisms for local consumption of new energy. We will explore the application of two-part tariffs or single capacity tariffs for projects mainly used to transmit clean energy power or provide grid interconnection services, and promote new energy bases in desert, gobi and arid areas to participate in market transactions as a whole. We will improve the capacity tariff mechanism on the power generation side and establish a reliable capacity compensation mechanism for power generators in an orderly way. We will improve retail market pricing mechanisms that reflect time-of-use value differences, explore the development of a demand response pricing mechanism that reflects regulation capacity, and fully unleash the regulating potential on the user side. We will further push forward heating metering reform, accelerate heating metering retrofits, and implement heating metering-based charging in an orderly manner.
(XIX) Improve market-based mechanisms
We will leverage the supporting role of carbon markets and strengthen the development of the national carbon emissions trading market, gradually cover sectors including petrochemical and chemical industries, prioritize the implementation of total quota control for industries with relatively stable total carbon emissions, strengthen the alignment between total carbon emission quotas and dual control targets for carbon emissions, and steadily adopt an allocation method combining free allocation and paid allocation of carbon emission quotas. We will actively develop the national greenhouse gas voluntary emission reduction trading market and promote the application of China Certified Emission Reductions (CCER). We will develop a high-quality green electricity certificate market, expand application scenarios for green electricity certificates, and improve long-term mechanisms for green electricity certificate and green power trading. We will strengthen the alignment and coordination of market-based mechanisms including carbon markets, green electricity certificates and green power. We will explore the establishment of systems that reflect the low-carbon value of non-power utilization of nuclear power and renewable energy. During the 15th Five-Year Plan period, carbon emissions per unit product in sectors covered by the national carbon emissions trading market will drop by around 3 percent, and the completion rate of carbon emission quota compliance by key emitting entities will remain at a relatively high level.
VI. Pool Efforts from All Sides
(XX) Consolidate local responsibilities
In accordance with the Measures for the Comprehensive Evaluation and Assessment of Carbon Peaking and Carbon Neutrality, we will carry out comprehensive evaluation and assessment in a scientific and orderly manner, strengthen the application of evaluation and assessment results, and improve incentive and constraint mechanisms. All provinces, autonomous regions and municipalities directly under the Central Government shall formulate provincial-level action plans for carbon peaking during the 15th Five-Year Plan period and scientifically define target tasks for their respective regions.
(XXI) Launch public initiatives for green and low-carbon development
We will scale up publicity on energy conservation and carbon reduction, raise public awareness of conservation, improve incentive mechanisms for green consumption, enrich the supply of green products, and accelerate the formation of green and low-carbon lifestyles. We will guide enterprises to fulfill social responsibilities and actively adapt to the requirements of green and low-carbon development. Key energy-consuming and carbon-emitting entities shall fulfill their energy conservation and carbon reduction responsibilities. Leading enterprises, core enterprises in industrial chains and state-owned enterprises, especially central enterprises, shall play an exemplary and leading role and drive coordinated green transition of industrial and supply chains. We will improve the evaluation and assessment system for central enterprises to implement carbon peaking and carbon neutrality targets and tasks as required.
(XXII) Deepen international cooperation on green and low-carbon development
We will firmly uphold genuine multilateralism, adhere to the principle of common but differentiated responsibilities, and promote discussions on climate change response and green low-carbon development under the framework of the United Nations Framework Convention on Climate Change as well as platforms including the World Trade Organization, the Group of Twenty and the BRICS. We will strengthen cooperation on green investment and trade, encourage imports and exports of green low-carbon products and services, and deepen cooperation under the Green Silk Road Initiative.
VII. Strengthen Organization and Implementation
We will uphold the Party’s leadership throughout the entire process of advancing carbon peaking and carbon neutrality. Relevant departments of the State Council and local people’s governments shall fully fulfill their responsibilities, improve policies and measures, strengthen deployment and advancement, enhance organizational safeguards, push all tasks to be implemented in detail, and ensure the timely achievement of the carbon peaking target. The National Development and Reform Commission shall strengthen overall coordination, conduct timely tracking and monitoring, and optimize tasks and measures based on actual conditions. Major issues shall be reported to the Party Central Committee and the State Council in accordance with prescribed procedures.