Circular of the National Government Offices Administration and the National Development and Reform Commission on Issuing the Work Plan for Energy‑Saving and Carbon‑Reduction of Public Institutions during the 15th Five‑Year Plan Period
Guo Guan Jie Neng〔2026〕No.161
To government offices‑affairs authorities and development‑and‑reform commissions of all provinces, autonomous regions, municipalities directly under the Central Government, and the Xinjiang Production and Construction Corps; the Energy Bureau of Guangdong Province; all departments of the central state organs:
To implement the spirits of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, deliver higher‑level and higher‑quality energy‑saving and carbon‑reduction work for public institutions in the 15th Five‑Year Plan period, and advance and deliver carbon peaking for public institutions, we have formulated the Work Plan for Energy‑Saving and Carbon‑Reduction of Public Institutions during the 15th Five‑Year Plan Period. It is hereby issued to you for earnest implementation in light of actual conditions.
National Government Offices Administration National Development and Reform Commission July 29, 2026
Work Plan for Energy‑Saving and Carbon‑Reduction of Public Institutions during the 15th Five‑Year Plan Period
Public institutions constitute one of the key areas for energy conservation and carbon reduction, and play an exemplary and leading role in the comprehensive green transition of economic and social development. To accelerate the green‑and‑low‑carbon development of public institutions and improve their energy‑saving and carbon‑reduction performance, this Work Plan is formulated in accordance with the Outline of the 15th Five‑Year Plan for National Economic and Social Development of the People’s Republic of China, the 15th Five‑Year Plan Action Plan for Carbon Peaking, the Opinions of the General Offices of the CPC Central Committee and the State Council on Delivering Higher‑Level and Higher‑Quality Energy‑Saving and Carbon‑Reduction Work, the 15th Five‑Year Plan for Government Offices‑Affairs Work, and other policy documents.
I. General Requirements
We shall follow Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, thoroughly apply Xi Jinping Thought on Ecological Civilization, take carbon peaking and carbon neutrality as the guide, base ourselves on serving economic and social development, coordinate all energy‑saving and carbon‑reduction initiatives for public institutions, promote the intensive and economical utilization of all types of resources, build low‑carbon public institutions, support the development of a high‑quality government‑offices‑affairs system underpinned by asset management, and contribute to the comprehensive green transition of economy and society and the building of a Beautiful China.
Aligned with carbon‑peaking targets, public institutions nationwide shall achieve continuous improvement in energy‑use efficiency, sustained optimization of energy consumption mix, steadily higher levels of resource conservation and intensive utilization, stronger awareness among cadres and staff for green production‑and‑lifestyle practices, better‑refined management mechanisms, and more robust supporting safeguards, thus making new progress in energy‑saving and carbon‑reduction work. Taking carbon emissions and energy‑resource consumption in 2025 as the baseline, by 2030, for public institutions within statistical coverage: carbon emissions per unit building floor area shall drop by 8.5 %, energy consumption per unit building floor area shall decrease by 5 %, and per‑capita water consumption shall fall by 3 %. Total carbon emissions from public institutions shall reach the peak as early as possible before 2030.
II. Advancing and Delivering Carbon Peaking for Public Institutions
(1) Improve energy‑saving and carbon‑reduction management mechanisms
We shall consolidate management responsibilities for energy conservation and carbon reduction, strengthen tiered and classified management. Government‑offices‑affairs authorities shall deliver solid management over energy‑saving and carbon‑reduction work for public institutions at their own level and enhance guidance and supervision for such work at lower‑level public institutions. Competent sector authorities shall oversee energy‑saving and carbon‑reduction efforts within their respective sectors and systems. Target‑based management for energy saving and carbon reduction shall be reinforced. Regions shall scientifically set reduction targets for carbon emission intensity and energy intensity of public institutions for the 15th Five‑Year Plan period, accurately account for annual progress toward carbon‑emission‑intensity reduction targets, and conduct comprehensive evaluation and assessment related to carbon peaking and carbon neutrality. Management over quota indicators for energy and resource consumption shall be improved; quota standards shall be revised in due course. Energy‑resource consumption indicators for individual entities shall be defined against quota standards and actual conditions of each entity, linkage between energy‑resource consumption indicators and expenditure such as water‑ and‑electricity bills shall be promoted, and budget constraints shall be strengthened. Management of key energy‑using and carbon‑emitting public institutions shall be enhanced. Energy‑efficiency and carbon‑efficiency grading shall be carried out for large‑scale public institutions, and targeted diagnosis on energy and carbon performance shall be implemented.
(2) Scale up energy‑saving and carbon‑reduction retrofits
Continuous retrofits shall be undertaken for building envelopes of existing public‑institution buildings as well as integrated energy systems and key energy‑consuming equipment including heating, air‑conditioning, lighting, elevators, power transformation and distribution, and computing‑power facilities. Deployment of energy‑management systems shall be encouraged, and operation management of key energy‑using equipment shall be strengthened. Energy‑saving and carbon‑reduction retrofits shall be carried out for departments at the central‑state‑organ level and their affiliated entities. Priority shall be given to equipment‑renewal‑and‑retrofit projects delivering prominent energy‑saving and carbon‑reduction outcomes. For newly‑installed key energy‑using equipment, the share of products with advanced energy‑efficiency levels shall be no less than 80 %. Local authorities shall increase investment in energy‑saving and carbon‑reduction retrofits, leverage existing funding channels to support eligible retrofit projects of public institutions. Public institutions shall be guided to construct green buildings with two‑star rating or above, and ultra‑low‑energy buildings shall be promoted.
(3) Optimize energy‑consumption mix
Consumption of fossil energy such as coal in public institutions shall be strictly controlled. Outdated and inefficient coal‑fired facilities shall be fully phased out. Heat‑supply via heat‑pumps and other approaches shall be promoted. The share of coal in total energy consumption of national public institutions shall be kept within 5 %; coal‑use elimination shall be realized in regions where conditions permit. Utilization of renewable energy shall be expanded. Local‑conditions‑based deployment of solar energy, geothermal energy and other renewable sources shall be encouraged. Rooftop solar‑PV and solar‑thermal systems shall be installed on eligible existing buildings; new buildings shall adopt PV systems wherever feasible. Technological models including building‑integrated photovoltaics (BIPV), smart microgrids, cold‑and‑heat storage, PV‑DC‑flexible systems, and virtual power plants shall be explored. Priority shall be given to on‑site self‑consumption; participation in power‑demand‑side response is encouraged. Electrification of end‑use energy shall be accelerated through electrification replacement for canteen cooking stoves, medical disinfection equipment and other facilities. The share of electricity in total energy consumption of national public institutions shall reach 65 %. Adoption of new‑energy vehicles in public institutions shall be expanded. The proportion of new‑energy vehicles in newly‑added and renewed official vehicles shall be increased as local conditions allow, with adoption wherever applicable. Construction of charging infrastructure shall be advanced; new models such as smart orderly charging and vehicle‑to‑grid interaction shall be promoted. Special work on charging‑infrastructure construction for central state organs shall be delivered.
(4) Encourage voluntary carbon reduction and carbon‑sequestration enhancement
Policies on carbon‑asset management for public institutions shall be studied and formulated. Development of voluntary‑emission‑reduction methodologies for public institutions shall be explored, and integration into the national carbon‑market development shall be advanced. Public institutions are encouraged to apply verified voluntary‑emission‑reduction credits and carbon‑incentive market‑based mechanisms to offset carbon emissions for large‑scale events and green‑and‑low‑carbon lifestyles. Public institutions shall be promoted to participate in green‑power market‑based trading to raise green‑power consumption ratios. Green‑and‑low‑carbon technologies shall be deployed based on local conditions, and a number of zero‑carbon public‑institution demonstration sites shall be developed.
III. Promoting Intensive and Economical Utilization of Resources
(5) Further implement water‑saving initiatives
The rigid‑constraint system for water resources and the Regulations on Water Conservation shall be enforced. Assessment shall be conducted on progress against annual water‑use targets and implementation of key water‑saving measures for public institutions across regions to drive sustained reduction in water‑use intensity. Popularization and renewal of water‑saving appliances in public institutions shall be advanced; 100 % adoption of water‑saving appliances shall be achieved for new‑build and renovation projects. Retrofits of ageing water‑supply pipe networks shall be carried out, and smart water‑management equipment and technologies shall be promoted. Reuse of non‑conventional water sources such as reclaimed water and rainwater shall be pursued in light of local conditions, and distributed reclaimed‑water treatment and reuse shall be explored. Market‑based models for contracted water‑saving management shall be promoted; policy documents on contracted water‑saving management for public institutions shall be developed.
(6) Solidly counter food waste
Public institutions shall take the lead in food conservation and anti‑food‑waste campaigns and further promote the “Clear‑Your‑Plate” initiative. Management over canteen anti‑food‑waste efforts shall be strengthened across public institutions. Assessment and notification systems for anti‑food‑waste performance in government‑office canteens shall be fully implemented. The national standard Guidelines for Anti‑Food‑Waste Practices in Government‑Office Canteens shall be put into effect, and high‑quality annual statistical surveys shall be conducted. Administration over catering for official receptions, conferences, training and other official activities shall be tightened to eliminate food waste. Reduction, resource recovery and harmless treatment of kitchen waste shall be advanced.
(7) Continuously advance domestic‑waste classification and resource recycling
Domestic‑waste classification shall be fully implemented in public institutions to consolidate and improve performance. Volunteer‑service activities shall be widely organized. Waste‑recycling systems shall be improved. Recycling of waste electronic‑and‑electrical products, office furniture and other discarded materials shall be carried out steadily, and campaigns for recycling waste 3C electronic products in public institutions shall continue. Requirements for plastic‑pollution control shall be strictly enforced. Public institutions shall take the lead in phasing out non‑degradable single‑use plastic products and promote bamboo‑based alternatives to plastics.
IV. Accelerating the Formation of Green Production‑and‑Lifestyle Practices
(8) Strengthen publicity, education and guidance
Special‑theme outreach activities for public institutions shall be organized for the National Ecological Day, National Energy‑Saving Publicity Week, National Low‑Carbon Day, China Water Week, World Food Day, National Domestic‑Waste‑Classification Publicity Week, Green‑Travel Month and Public‑Transport Travel Publicity Week. Green‑and‑low‑carbon, moderate‑and‑simple, civilized‑and‑healthy concepts of life and consumption shall be vigorously advocated. Day‑to‑day publicity shall be enhanced including online‑based outreach to disseminate green‑and‑low‑carbon knowledge and foster green‑and‑civilized social norms. Green‑and‑low‑carbon technologies applicable to public institutions shall be collected and selected for wider promotion of new technologies and products.
(9) Advocate green office practices
We shall uphold the principle of living within our means. Construction of new office buildings and halls shall be strictly controlled. Asset redistribution and reuse of office equipment, furniture and other assets shall be strengthened via repair‑and‑reuse or public‑asset warehouses to maximize asset utilization. Green procurement shall be intensified; priority shall be given to procurement and deployment of energy‑saving, water‑saving, land‑saving, material‑saving and mineral‑saving products, equipment, facilities and services conducive to ecological protection. Paper‑free office work shall be accelerated; recycled paper, recycled consumables and other circular office supplies shall be encouraged, and consumption of disposable office articles shall be reduced. The “1‑3‑5” green‑travel mode shall be advocated. Where conditions permit, new‑energy‑vehicle time‑sharing‑rental services shall be introduced to support green official travel.
(10) Leverage exemplary‑unit demonstration effects
Creation criteria shall be optimized and practical outcomes shall be strictly verified. No more than 2,000 model units of resource‑conserving public institutions shall be established at high standards. Approximately 200 energy‑efficiency leaders and 200 water‑efficiency leaders among public institutions shall be selected. Public‑institution‑sector candidates shall be nominated for China Water‑Saving Award and national‑level green‑computing‑power‑facility awards. Resource‑conserving government agencies shall be comprehensively developed, and progress toward water‑saving public‑institution standards shall be supported. Success stories of demonstration units as well as deeds of advanced collectives and individuals shall be publicized.
V. Strengthening Supporting Safeguards for Energy‑Saving and Carbon‑Reduction Work
(11) Strengthen institutional‑standard development
We shall study and enforce the Ecological Environment Code of the People’s Republic of China, participate in revision of the Energy Conservation Law of the People’s Republic of China, and revise the Regulations on Energy Conservation in Public Institutions in due course. A streamlined, logically‑structured and practical system of institutions and standards for energy‑saving and carbon‑reduction of public institutions shall be built. Physical‑object quota standards and service standards for energy‑using equipment shall be rolled out at an accelerated pace. The Guidelines for Carbon Accounting of Public Institutions shall be implemented to standardize carbon‑emission statistical accounting.
(12) Consolidate metering and statistical foundations
Upgrading of energy‑resource metering shall be promoted, and smart metering devices shall be widely deployed to realize refined metering for electricity, water, gas, heat and other utilities. The national comprehensive information platform for energy‑and‑resource conservation in public institutions shall be iterated continuously. Automatic collection and integration of energy‑resource‑consumption data shall be advanced, data‑analysis application and security management shall be strengthened, and linkage shall be promoted between energy‑resource‑consumption data and carbon‑emission management, asset management and other work. Big‑data, artificial intelligence, Internet‑of‑Things and other digital technologies shall be applied to support quota‑based management, intelligent diagnosis, energy‑efficiency benchmarking, carbon‑emission accounting and other functions, raising overall digital‑and‑intelligent governance capacity.
(13) Expand application of market‑based mechanisms
Energy‑cost‑trustee management and other forms of contracted‑energy‑management models shall be promoted prudently and steadily. Model contracts and other regulatory specifications for trustee‑management services shall be improved. Procurement budget funding for trustee‑management projects shall be secured. Project implementation shall be tracked and evaluated, work experience shall be summarized in a timely manner, risk assessment and prevention shall be carried out, and trustee‑management services shall be continuously refined.
(14) Upgrade professional capacity
Energy‑saving and carbon‑reduction for public institutions shall be incorporated into curricula of Party Schools (Administrative Colleges) and cadre academies at all levels to enhance leading cadres’ capacity for advancing green‑and‑low‑carbon development. Targeted professional training shall be delivered through online‑and‑offline channels. Green‑and‑low‑carbon lecture series and special training courses for public‑institution energy‑management cadres shall be continued to improve their professional knowledge and practical capabilities for carbon‑peaking‑and‑carbon‑neutrality‑related work. Theoretical and practical research on green‑and‑low‑carbon development of public institutions shall be carried out; research projects shall be selected with high quality and research outcomes shall be translated into practical policy input.
VI. Pooling Joint Efforts for Implementation of the Work Plan
(15) Strengthen coordinated advancement
Inter‑departmental coordination shall be enhanced to build an efficient implementation mechanism under the guidance of development‑and‑reform authorities, with government‑offices‑affairs authorities taking the lead and competent sector authorities participating. Responsibilities shall be enforced and tasks delivered in full. Under guidance from government‑offices‑affairs authorities, competent authorities for education, health and other sectors shall further tap energy‑saving and carbon‑reduction potential of schools, hospitals and other public institutions. Multi‑stakeholder collaboration shall be deepened: innovation in green‑technology by institutions of higher education and research institutes shall be encouraged, the positive role of industry associations shall be brought into play, and energy‑service enterprises shall be galvanized to form joint forces supporting public‑institution energy‑saving and carbon‑reduction work. Regional coordination shall be strengthened for coordinated development of energy‑saving and carbon‑reduction initiatives for public institutions in the Beijing‑Tianjin‑Hebei region, Yangtze‑River Delta, Chengdu‑Chongqing twin‑city economic circle and other regions.
(16) Earnestly organize implementation
The National Government Offices Administration shall strengthen top‑level design and overall coordination, track implementation progress of this Work Plan, oversee energy‑saving and carbon‑reduction work of central state organs, and supervise and guide implementation across regions. All regions and departments shall enforce this Work Plan in light of local realities, improve incentive‑and‑constraint mechanisms, and integrate public‑institution energy‑saving and carbon‑reduction into relevant assessment systems. Stable funding input shall be secured, and financial‑support mechanisms commensurate with 15th‑Five‑Year‑Plan‑period targets and tasks for public‑institution energy‑saving and carbon‑reduction shall be established. All public institutions shall earnestly assume primary responsibilities for energy saving and carbon reduction, and adopt scientifically‑sound management or retrofit measures to deliver tangible outcomes.
