Welcome to Carbon Brief’s DeBriefed. 
An essential guide to the week’s key developments relating to climate change.

This week

Energy crisis

ENERGY SPIKE: US-Israeli attacks on Iran and subsequent counterattacks across the Middle East have sent energy prices “soaring”, according to Reuters. The newswire reported that the region “accounts for just under a third of global oil production and almost a fifth of gas”. The Guardian noted that shipping traffic through the strait of Hormuz, which normally ferries 20% of the world’s oil, “all but ground to a halt”. The Financial Times reported that attacks by Iran on Middle East energy facilities – notably in Qatar – triggered the “biggest rise in gas prices since Russia’s full-scale invasion of Ukraine”.

‘RISK’ AND ‘BENEFITS’: Bloomberg reported on increases in diesel prices in Europe and the US, speculating that rising fuel costs could be “a risk for president Donald Trump”. US gas producers are “poised to benefit from the big disruption in global supply”, according to CNBC. Indian government sources told the Economic Times that Russia is prepared to “fulfil India’s energy demands”. China Daily quoted experts who said “China’s energy security remains fundamentally unshaken”, thanks to “emergency stockpiles and a wide array of import channels”.

‘ESSENTIAL’ RENEWABLES: Energy analysts said governments should cut their fossil-fuel reliance by investing in renewables, “rather than just seeking non-Gulf oil and gas suppliers”, reported Climate Home News. This message was echoed by UK business secretary Peter Kyle, who said “doubling down on renewables” was “essential” amid “regional instability”, according to the Daily Telegraph.

China’s climate plan

PEAK COAL?: China has set out its next “five-year plan” at the annual “two sessions” meeting of the National People’s Congress, including its climate strategy out to 2030, according to the Hong Kong-based South China Morning Post. The plan called for China to cut its carbon emissions per unit of gross domestic product (GDP) by 17% from 2026 to 2030, which “may allow for continued increase in emissions given the rate of GDP growth”, reported Reuters. The newswire added that the plan also had targets to reach peak coal ​in the next five years and replace 30m tonnes per year of coal with renewables.

ACTIVE YET PRUDENT: Bloomberg described the new plan as “cautious”, stating that it “frustrat[es] hopes for tighter policy that would drive the nation to peak carbon emissions well before president Xi Jinping’s 2030 deadline”. Carbon Brief has just published an in-depth analysis of the plan. China Daily reported that the strategy “highlights measures to promote the climate targets of peaking carbon dioxide emissions before 2030”, which China said it would work towards “actively yet prudently”. 

Around the world

• EU RULES: The European Commission has proposed new “made in Europe” rules to support domestic low-carbon industries, “against fierce competition from China”, reported Agence France-Presse. Carbon Brief examined what it means for climate efforts.
• RECORD HEAT: The US National Oceanic and Atmospheric Administration has said there is a 50-60% chance that the El Niño weather pattern could return this year, amplifying the effect of global warming and potentially driving temperatures to “record highs”, according to Euronews.
• FLAGSHIP FUND: The African Development Bank’s “flagship clean energy fund” plans to more than double its financing to $2.5bn for African renewables over the next two years, reported the Associated Press.
• NO WITHDRAWAL: Vanuatu has defied US efforts to force the Pacific-island nation to drop a UN draft resolution calling on the world to implement a landmark International Court of Justice (ICJ) ruling on climate, according to the Guardian.

---

98

The number of nations that submitted their national reports on tackling nature loss to the UN on time – just half of the 196 countries that are part of the UN biodiversity treaty – according to analysis by Carbon Brief.

---

Latest climate research

• Sea levels are already “much higher than assumed” in most assessments of the threat posed by sea-level rise, due to “inadequate” modelling assumptions | Nature
• Accelerating human-caused global warming could see the Paris Agreement’s 1.5C limit crossed before 2030 | Geophysical Research Letters covered by Carbon Brief
• Future “super El Niño events” could “significantly lower” solar power generation due to a reduction in solar irradiance in key regions, such as California and east China | Communications Earth & Environment

(For more, see Carbon Brief’s in-depth daily summaries of the top climate news stories on Monday, Tuesday, Wednesday, Thursday and Friday.)

Captured

UK greenhouse gas emissions in 2025 fell to 54% below 1990 levels, the baseline year for its legally binding climate goals, according to new Carbon Brief analysis. Over the same period, data from the World Bank shows that the UK’s economy has expanded by 95%, meaning that emissions have been decoupling from growth.

Spotlight

Bristol’s ‘pioneering’ community wind turbine

Following the recent launch of the UK government’s local power plan, Carbon Brief visits one of the country’s community-energy success stories.

The Lawrence Weston housing estate is set apart from the main city of Bristol, wedged between the tree-lined grounds of a stately home and a sprawl of warehouses and waste incinerators. It is one of the most deprived areas in the city.

Yet, just across the M5 motorway stands a structure that has brought the spoils of the energy transition directly to this historically forgotten estate – a 4.2 megawatt (MW) wind turbine.

The turbine is owned by local charity Ambition Lawrence Weston and all the profits from its electricity sales – around £100,000 a year – go to the community. In the UK’s local power plan, it was singled out by energy secretary Ed Miliband as a “pioneering” project.

‘Sustainable income’

On a recent visit to the estate by Carbon Brief, Ambition Lawrence Weston’s development manager, Mark Pepper, rattled off the story behind the wind turbine.

In 2012, Pepper and his team were approached by the Bristol Energy Cooperative with a chance to get a slice of the income from a new solar farm. They jumped at the opportunity.

“Austerity measures were kicking in at the time,” Pepper told Carbon Brief. “We needed to generate an income. Our own, sustainable income.”

With the solar farm proving to be a success, the team started to explore other opportunities. This began a decade-long process that saw them navigate the Conservative government’s “ban” on onshore wind, raise £5.5m in funding and, ultimately, erect the turbine in 2023.

Today, the turbine generates electricity equivalent to Lawrence Weston’s 3,000 households and will save 87,600 tonnes of carbon dioxide (CO2) over its lifetime.

‘Climate by stealth’

Ambition Lawrence Weston’s hub is at the heart of the estate and the list of activities on offer is seemingly endless: birthday parties, kickboxing, a library, woodworking, help with employment and even a pop-up veterinary clinic. All supported, Pepper said, with the help of a steady income from community-owned energy.

The centre itself is kitted out with solar panels, heat pumps and electric-vehicle charging points, making it a living advertisement for the net-zero transition. Pepper noted that the organisation has also helped people with energy costs amid surging global gas prices.

Gesturing to the England flags dangling limply on lamp posts visible from the kitchen window, he said:

“There’s a bit of resentment around immigration and scarcity of materials and provision, so we’re trying to do our bit around community cohesion.”

This includes supper clubs and an interfaith grand iftar during the Muslim holy month of Ramadan.

Anti-immigration sentiment in the UK has often gone hand-in-hand with opposition to climate action. Right-wing politicians and media outlets promote the idea that net-zero policies will cost people a lot of money – and these ideas have cut through with the public.

Pepper told Carbon Brief he is sympathetic to people’s worries about costs and stressed that community energy is the perfect way to win people over:

“I think the only way you can change that is if, instead of being passive consumers…communities are like us and they’re generating an income to offset that.”

From the outset, Pepper stressed that “we weren’t that concerned about climate because we had other, bigger pressures”, adding:

“But, in time, we’ve delivered climate by stealth.”

Watch, read, listen

OIL WATCH: The Guardian has published a “visual guide” with charts and videos showing how the “escalating Iran conflict is driving up oil and gas prices”.

MURDER IN HONDURAS: Ten years on from the murder of Indigenous environmental justice advocate Berta Cáceres, Drilled asked why Honduras is still so dangerous for environmental activists.

TALKING WEATHER: A new film, narrated by actor Michael Sheen and titled You Told Us To Talk About the Weather, aimed to promote conversation about climate change with a blend of “poetry, folk horror and climate storytelling”.

Coming up

• 8 March: Colombia parliamentary election
• 9-19 March: 31st Annual Session of the International Seabed Authority, Kingston, Jamaica
• 11 March: UN Environment Programme state of finance for nature 2026 report launch

Pick of the jobs

• London School of Economics and Political Science, fellow in the social science of sustainability | Salary: £43,277-£51,714. Location: London
• NORCAP, innovative climate finance expert | Salary: Unknown. Location: Kyiv, Ukraine
• WBHM, environmental reporter | Salary: $50,050-$81,330. Location: Birmingham, Alabama, US
• Climate Cabinet, data engineer | Salary: hourly rate of $60-$120 per hour. Location: Remote anywhere in the US

DeBriefed is edited by Daisy Dunne. Please send any tips or feedback to debriefed@carbonbrief.org.

This is an online version of Carbon Brief’s weekly DeBriefed email newsletter. Subscribe for free here.

The post DeBriefed 6 March 2026: Iran energy crisis | China climate plan | Bristol’s ‘pioneering’ wind turbine appeared first on Carbon Brief.

DeBriefed 6 March 2026: Iran energy crisis | China climate plan | Bristol’s ‘pioneering’ wind turbine

Officials from about 20 countries met informally in Japan this week in a bid to bridge major differences in talks on a global treaty to curb plastic pollution, eight months after the last round of negotiations collapsed without agreement.

A participant told Climate Home News the closed-door meeting, hosted by Japan’s Environment Ministry, had been helpful to test ideas and restart conversations before formal talks resume, but said progress remained “challenging”, with national stances largely unchanged.

The meeting brought together countries pushing for efforts to rein in soaring plastic production, including European and Latin American nations, with major fossil fuel producers such as the United States, Saudi Arabia, Russia and Kuwait, which say the treaty should focus only on managing waste.

US hits out at EU and Pacific islands

In a sign of the persistent divisions, a spokesperson for the US State Department told Climate Home News after the meeting that Washington opposes “global plastic bans driven by the EU and Pacific Islands that would harm our economy and raise consumer prices”.

The EU and other members of the so-called High Ambition Coalition have called for the phase-out of certain plastic products that pose significant risks to human health and the environment, but have not advocated for any wide-ranging plastic ban.

“The EU is committed to securing a treaty with global measures across the full lifecycle of plastics, from production and consumption to waste management and end-of-life treatment,” a European Commission spokesperson told Climate Home News. “A global treaty can unlock economic opportunities, next to its environmental and health benefits,” the spokesperson added. 

Dennis Clare, a negotiator for the Pacific island nation of Micronesia, told Climate Home News that the world produces too much plastic, driving the plastic and climate pollution that all countries are struggling so hard to reduce.

He said he hoped countries could agree on enough actions in the treaty to make some meaningful progress towards ending plastic pollution, but he added that there should be flexibility to adjust course along the way.

Rescuing talks from turmoil

Plastic production is set to triple by 2060 without intervention, according to the UN. As nearly all plastic is made from planet-heating oil, gas and coal, the sector’s trajectory will have a significant impact on global efforts to reduce greenhouse gas emissions.

The informal talks this week were seen as an attempt to facilitate discussions between some of the key nations before formal negotiations guided by the UN Environment Programme (UNEP) resume.

The process, which began in February 2022, was thrown into turmoil in the second half of last year. In August, nations left what was meant to be the last round of talks in Geneva with no agreement or a clear way forward after a chaotic night of negotiations. Two months later, the chair of the talks, Ecuadorean diplomat Luis Vayas Valdivieso, stepped down, citing personal and professional reasons.

Believing that countries can still deliver “a treaty for the ages”, the UNEP has been working to steer the process back on track. Veteran Chilean ambassador Julio Cordano was elected as the new chair during a one-day session in early February. In a letter to diplomats, Cordano acknowledged the task was “hard and complex”, but said establishing a global treaty was “not only achievable, but also urgently needed”.

Call for inclusivity

Andrés Del Castillo, a senior attorney at the Center for International Environmental Law (CIEL), said it was important to keep the process transparent and inclusive.

While Japan’s efforts to use its diplomatic leverage to address thorny issues are commendable, only a handful of countries – including “some of the biggest blockers” – attended the informal meeting, he said, while others championing stronger action were left out.

Explainer: Will AI data centres make or break the energy transition?

Following this week’s restricted gathering in Tokyo, all countries are set to exchange views on the way forward during an online meeting hosted by Cordano on March 12. It remains unclear when governments will reconvene for a formal negotiating session, but diplomats told Climate Home it is unlikely to take place in the first half of 2026.

A participant at the Tokyo meeting said countries must produce a significant shift in positions in the coming months to make reconvening formal negotiations worthwhile.

The post Deep divisions persist as plastics treaty talks restart at informal meeting appeared first on Climate Home News.

Deep divisions persist as plastics treaty talks restart at informal meeting

China’s leadership has published a draft of its 15th five-year plan setting the strategic direction for the nation out to 2030, including support for clean energy and energy security.

The plan sets a target to cut China’s “carbon intensity” by 17% over the five years from 2026-30, but also changes the basis for calculating this key climate metric.

The plan continues to signal support for China’s clean-energy buildout and, in general, contains no major departures from the country’s current approach to the energy transition.

The government reaffirms support for several clean-energy industries, ranging from solar and electric vehicles (EVs) through to hydrogen and “new-energy” storage.

The plan also emphasises China’s willingness to steer climate governance and be seen as a provider of “global public goods”, in the form of affordable clean-energy technologies.

However, while the document says it will “promote the peaking” of coal and oil use, it does not set out a timeline and continues to call for the “clean and efficient” use of coal.

This shows that tensions remain between China’s climate goals and its focus on energy security, leading some analysts to raise concerns about its carbon-cutting ambition.

Below, Carbon Brief outlines the key climate change and energy aspects of the plan, including targets for carbon intensity, non-fossil energy and forestry.

Note: this article is based on a draft published on 5 March and will be updated if any significant changes are made in the final version of the plan, due to be released at the close next week of the “two sessions” meeting taking place in Beijing.

• What is China’s 15th five-year plan?
• What does the plan say about China’s climate action?
• What is China’s new CO2 intensity target?
• Does the plan encourage further clean-energy additions?
• What does the plan signal about coal?
• How will China approach global climate governance in the next five years? 
• What else does the plan cover?

What is China’s 15th five-year plan?

Five-year plans are one of the most important documents in China’s political system.

Addressing everything from economic strategy to climate policy, they outline the planned direction for China’s socio-economic development in a five-year period. The 15th five-year plan covers 2026-30.

These plans include several “main goals”. These are largely quantitative indicators that are seen as particularly important to achieve and which provide a foundation for subsequent policies during the five-year period.

The table below outlines some of the key “main goals” from the draft 15th five-year plan.

Category	Indicator	Indicator in 2025	Target by 2030	Cumulative target over 2026-2030	Characteristic
Economic development	Gross domestic product (GDP) growth (%)	5		Maintained within a reasonable range and proposed annually as appropriate.	Anticipatory
‘Green and low-carbon	Reduction in CO2 emissions per unit of GDP (%)	17.7		17	Binding
	Share of non-fossil energy in total energy consumption (%)	21.7	25		Binding
Security guarantee	Comprehensive energy production capacity (100m tonnes of standard coal equivalent)	51.3	58		Binding

Select list of targets highlighted in the “main goals” section of the draft 15th five-year plan. Source: Draft 15th five-year plan.

Since the 12th five-year plan, covering 2011-2015, these “main goals” have included energy intensity and carbon intensity as two of five key indicators for “green ecology”.

The previous five-year plan, which ran from 2021-2025, introduced the idea of an absolute “cap” on carbon dioxide (CO2) emissions, although it did not provide an explicit figure in the document. This has been subsequently addressed by a policy on the “dual-control of carbon” issued in 2024.

The latest plan removes the energy-intensity goal and elevates the carbon-intensity goal, but does not set an absolute cap on emissions (see below).

It covers the years until 2030, before which China has pledged to peak its carbon emissions. (Analysis for Carbon Brief found that emissions have been “flat or falling” since March 2024.)

The plans are released at the two sessions, an annual gathering of the National People’s Congress (NPC) and the Chinese People’s Political Consultative Conference (CPPCC). This year, it runs from 4-12 March.

The plans are often relatively high-level, with subsequent topic-specific five-year plans providing more concrete policy guidance.

Policymakers at the National Energy Agency (NEA) have indicated that in the coming years they will release five sector-specific plans for 2026-2030, covering topics such as the “new energy system”, electricity and renewable energy.

There may also be specific five-year plans covering carbon emissions and environmental protection, as well as the coal and nuclear sectors, according to analysts.

Other documents published during the two sessions include an annual government work report, which outlines key targets and policies for the year ahead.

The gathering is attended by thousands of deputies – delegates from across central and local governments, as well as Chinese Communist party members, members of other political parties, academics, industry leaders and other prominent figures.

Back to top

What does the plan say about China’s climate action?

Achieving China’s climate targets will remain a key driver of the country’s policies in the next five years, according to the draft 15th five-year plan.

It lists the “acceleration” of China’s energy transition as a “major achievement” in the 14th five-year plan period (2021-2025), noting especially how clean-power capacity had overtaken fossil fuels.

The draft says China will “actively and steadily advance and achieve carbon peaking”, with policymakers continuing to strike a balance between building a “green economy” and ensuring stability.

Climate and environment continues to receive its own chapter in the plan. However, the framing and content of this chapter has shifted subtly compared with previous editions, as shown in the table below. For example, unlike previous plans, the first section of this chapter focuses on China’s goal to peak emissions.

	11th five-year plan (2006-2010)	12th five-year plan (2011-2015)	13th five-year plan (2016-2020)	14th five-year plan (2021-2025)	15th five-year plan (2026-2030)
Chapter title	Part 6: Build a resource-efficient and environmentally-friendly society	Part 6: Green development, building a resource-efficient and environmentally friendly society	Part 10: Ecosystems and the environment	Part 11: Promote green development and facilitate the harmonious coexistence of people and nature	Part 13: Accelerating the comprehensive green transformation of economic and social development to build a beautiful China
Sections	Developing a circular economy	Actively respond to global climate change	Accelerate the development of functional zones	Improve the quality and stability of ecosystems	Actively and steadily advancing and achieving carbon peaking
	Protecting and restoring natural ecosystems	Strengthen resource conservation and management	Promote economical and intensive resource use	Continue to improve environmental quality	Continuously improving environmental quality
	Strengthening environmental protection	Vigorously develop the circular economy	Step up comprehensive environmental governance	Accelerate the green transformation of the development model	Enhancing the diversity, stability, and sustainability of ecosystems
	Enhancing resource management	Strengthen environmental protection efforts	Intensify ecological conservation and restoration		Accelerating the formation of green production and lifestyles
	Rational utilisation of marine and climate resources	Promoting ecological conservation and restoration	Respond to global climate change
		Strengthen the development of water conservancy and disaster prevention and mitigation systems	Improve mechanisms for ensuring ecological security
			Develop green and environmentally-friendly industries

Title and main sections of the climate and environment-focused chapters in the last five five-year plans. Source: China’s 11th, 12th, 13th, 14th and 15th five-year plans.

The climate and environment chapter in the latest plan calls for China to “balance [economic] development and emission reduction” and “ensure the timely achievement of carbon peak targets”.

Under the plan, China will “continue to pursue” its established direction and objectives on climate, Prof Li Zheng, dean of the Tsinghua University Institute of Climate Change and Sustainable Development (ICCSD), tells Carbon Brief.

Back to top

What is China’s new CO2 intensity target?

In the lead-up to the release of the plan, analysts were keenly watching for signals around China’s adoption of a system for the “dual-control of carbon”.

This would combine the existing targets for carbon intensity – the CO2 emissions per unit of GDP – with a new cap on China’s total carbon emissions. This would mark a dramatic step for the country, which has never before set itself a binding cap on total emissions.

Policymakers had said last year that this framework would come into effect during the 15th five-year plan period, replacing the previous system for the “dual-control of energy”.

However, the draft 15th five-year plan does not offer further details on when or how both parts of the dual-control of carbon system will be implemented. Instead, it continues to focus on carbon intensity targets alone.

Looking back at the previous five-year plan period, the latest document says China had achieved a carbon-intensity reduction of 17.7%, just shy of its 18% goal.

This is in contrast with calculations by Lauri Myllyvirta, lead analyst at the Centre for Research on Energy and Clean Air (CREA), which had suggested that China had only cut its carbon intensity by 12% over the past five years.

At the time it was set in 2021, the 18% target had been seen as achievable, with analysts telling Carbon Brief that they expected China to realise reductions of 20% or more.

However, the government had fallen behind on meeting the target.

Last year, ecology and environment minister Huang Runqiu attributed this to the Covid-19 pandemic, extreme weather and trade tensions. He said that China, nevertheless, remained “broadly” on track to meet its 2030 international climate pledge of reducing carbon intensity by more than 65% from 2005 levels.

Myllyvirta tells Carbon Brief that the newly reported figure showing a carbon-intensity reduction of 17.7% is likely due to an “opportunistic” methodological revision. The new methodology now includes industrial process emissions – such as cement and chemicals – as well as the energy sector.

(This is not the first time China has redefined a target, with regulators changing the methodology for energy intensity in 2023.)

For the next five years, the plan sets a target to reduce carbon intensity by 17%, slightly below the previous goal.

However, the change in methodology means that this leaves space for China’s overall emissions to rise by “3-6% over the next five years”, says Myllyvirta. In contrast, he adds that the original methodology would have required a 2% fall in absolute carbon emissions by 2030.

The dashed lines in the chart below show China’s targets for reducing carbon intensity during the 12th, 13th, 14th and 15th five-year periods, while the bars show what was achieved under the old (dark blue) and new (light blue) methodology.

The carbon-intensity target is the “clearest signal of Beijing’s climate ambition”, says Li Shuo, director at the Asia Society Policy Institute’s (ASPI) China climate hub.

It also links directly to China’s international pledge – made in 2021 – to cut its carbon intensity to more than 65% below 2005 levels by 2030.

To meet this pledge under the original carbon-intensity methodology, China would have needed to set a target of a 23% reduction within the 15th five-year plan period. However, the country’s more recent 2035 international climate pledge, released last year, did not include a carbon-intensity target.

As such, ASPI’s Li interprets the carbon-intensity target in the draft 15th five-year plan as a “quiet recalibration” that signals “how difficult the original 2030 goal has become”.

Furthermore, the 15th five-year plan does not set an absolute emissions cap.

This leaves “significant ambiguity” over China’s climate plans, says campaign group 350 in a press statement reacting to the draft plan. It explains:

“The plan was widely expected to mark a clearer transition from carbon-intensity targets toward absolute emissions reductions…[but instead] leaves significant ambiguity about how China will translate record renewable deployment into sustained emissions cuts.”

Myllyvirta tells Carbon Brief that this represents a “continuation” of the government’s focus on scaling up clean-energy supply while avoiding setting “strong measurable emission targets”.

He says that he would still expect to see absolute caps being set for power and industrial sectors covered by China’s emissions trading scheme (ETS). In addition, he thinks that an overall absolute emissions cap may still be published later in the five-year period.

Despite the fact that it has yet to be fully implemented, the switch from dual-control of energy to dual-control of carbon represents a “major policy evolution”, Ma Jun, director of the Institute of Public and Environmental Affairs (IPE), tells Carbon Brief. He says that it will allow China to “provide more flexibility for renewable energy expansion while tightening the net on fossil-fuel reliance”.

Back to top

Does the plan encourage further clean-energy additions?

“How quickly carbon intensity is reduced largely depends on how much renewable energy can be supplied,” says Yao Zhe, global policy advisor at Greenpeace East Asia, in a statement.

The five-year plan continues to call for China’s development of a “new energy system that is clean, low-carbon, safe and efficient” by 2030, with continued additions of “wind, solar, hydro and nuclear power”.

In line with China’s international pledge, it sets a target for raising the share of non-fossil energy in total energy consumption to 25% by 2030, up from just under 21.7% in 2025.

The development of “green factories” and “zero-carbon [industrial] parks” has been central to many local governments’ strategies for meeting the non-fossil energy target, according to industry news outlet BJX News. A call to build more of these zero-carbon industrial parks is listed in the five-year plan.

Prof Pan Jiahua, dean of Beijing University of Technology’s Institute of Ecological Civilization, tells Carbon Brief that expanding demand for clean energy through mechanisms such as “green factories” represents an increasingly “bottom-up” and “market-oriented” approach to the energy transition, which will leave “no place for fossil fuels”.

He adds that he is “very much sure that China’s zero-carbon process is being accelerated and fossil fuels are being driven out of the market”, pointing to the rapid adoption of EVs.

The plan says that China will aim to double “non-fossil energy” in 10 years – although it does not clarify whether this means their installed capacity or electricity generation, or what the exact starting year would be.

Research has shown that doubling wind and solar capacity in China between 2025-2035 would be “consistent” with aims to limit global warming to 2C.

While the language “certainly” pushes for greater additions of renewable energy, Yao tells Carbon Brief, it is too “opaque” to be a “direct indication” of the government’s plans for renewable additions.

She adds that “grid stability and healthy, orderly competition” is a higher priority for policymakers than guaranteeing a certain level of capacity additions.

China continues to place emphasis on the need for large-scale clean-energy “bases” and cross-regional power transmission.

The plan says China must develop “clean-energy bases…in the three northern regions” and “integrated hydro-wind-solar complexes” in south-west China.

It specifically encourages construction of “large-scale wind and solar” power bases in desert regions “primarily” for cross-regional power transmission, as well as “major hydropower” projects, including the Yarlung Tsangpo dam in Tibet.

As such, the country should construct “power-transmission corridors” with the capacity to send 420 gigawatts (GW) of electricity from clean-energy bases in western provinces to energy-hungry eastern provinces by 2030, the plan says.

State Grid, China’s largest grid operator, plans to install “another 15 ultra-high voltage [UHV] transmission ​lines” by 2030, reports Reuters, up from the 45 UHV lines built by last year.

Below are two maps illustrating the interlinkages between clean-energy bases in China in the 15th (top) and 14th (bottom) five-year plan periods.

The yellow dotted areas represent clean energy bases, while the arrows represent cross-regional power transmission. The blue wind-turbine icons represent offshore windfarms and the red cooling tower icons represent coastal nuclear plants.

The 15th five-year plan map shows a consistent approach to the 2021-2025 period. As well as power being transmitted from west to east, China plans for more power to be sent to southern provinces from clean-energy bases in the north-west, while clean-energy bases in the north-east supply China’s eastern coast.

It also maps out “mutual assistance” schemes for power grids in neighbouring provinces.

Offshore wind power should reach 100GW by 2030, while nuclear power should rise to 110GW, according to the plan.

Back to top

What does the plan signal about coal?

The increased emphasis on grid infrastructure in the draft 15th five-year plan reflects growing concerns from energy planning officials around ensuring China’s energy supply.

Ren Yuzhi, director of the NEA’s development and planning department, wrote ahead of the plan’s release that the “continuous expansion” of China’s energy system has “dramatically increased its complexity”.

He said the NEA felt there was an “urgent need” to enhance the “secure and reliable” replacement of fossil-fuel power with new energy sources, as well as to ensure the system’s “ability to absorb them”.

Meanwhile, broader concerns around energy security have heightened calls for coal capacity to remain in the system as a “ballast stone”.

The plan continues to support the “clean and efficient utilisation of fossil fuels” and does not mention either a cap or peaking timeline for coal consumption.

Xi had previously told fellow world leaders that China would “strictly control” coal-fired power and phase down coal consumption in the 15th five-year plan period.

The “geopolitical situation is increasing energy security concerns” at all levels of government, said the Institute for Global Decarbonization Progress in a note responding to the draft plan, adding that this was creating “uncertainty over coal reduction”.

Ahead of its publication, there were questions around whether the plan would set a peaking deadline for oil and coal. An article posted by state news agency Xinhua last month, examining recommendations for the plan from top policymakers, stated that coal consumption would plateau from “around 2027”, while oil would peak “around 2026”.

However, the plan does not lay out exact years by which the two fossil fuels should peak, only saying that China will “promote the peaking of coal and oil consumption”.

There are similarly no mentions of phasing out coal in general, in line with existing policy.

Nevertheless, there is a heavy emphasis on retrofitting coal-fired power plants. The plan calls for the establishment of “demonstration projects” for coal-plant retrofitting, such as through co-firing with biomass or “green ammonia”.

Such retrofitting could incentivise lower utilisation of coal plants – and thus lower emissions – if they are used to flexibly meet peaks in demand and to cover gaps in clean-energy output, instead of providing a steady and significant share of generation.

The plan also calls for officials to “fully implement low-carbon retrofitting projects for coal-chemical industries”, which have been a notable source of emissions growth in the past year.

However, the coal-chemicals sector will likely remain a key source of demand for China’s coal mining industry, with coal-to-oil and coal-to-gas bases listed as a “key area” for enhancing the country’s “security capabilities”.

Meanwhile, coal-fired boilers and industrial kilns in the paper industry, food processing and textiles should be replaced with “clean” alternatives to the equivalent of 30m tonnes of coal consumption per year, it says.

“China continues to scale up clean energy at an extraordinary pace, but the plan still avoids committing to strong measurable constraints on emissions or fossil fuel use”, says Joseph Dellatte, head of energy and climate studies at the Institut Montaigne. He adds:

“The logic remains supply-driven: deploy massive amounts of clean energy and assume emissions will eventually decline.”

Back to top

How will China approach global climate governance in the next five years?

Meanwhile, clean-energy technologies continue to play a role in upgrading China’s economy, with several “new energy” sectors listed as key to its industrial policy.

Named sectors include smart EVs, “new solar cells”, new-energy storage, hydrogen and nuclear fusion energy.

“China’s clean-technology development – rather than traditional administrative climate controls – is increasingly becoming the primary driver of emissions reduction,” says ASPI’s Li. He adds that strengthening China’s clean-energy sectors means “more closely aligning Beijing’s economic ambitions with its climate objectives”.

Analysis for Carbon Brief shows that clean energy drove more than a third of China’s GDP growth in 2025, representing around 11% of China’s whole economy.

The continued support for these sectors in the draft five-year plan comes as the EU outlined its own measures intended to limit China’s hold on clean-energy industries, driven by accusations of “unfair competition” from Chinese firms.

China is unlikely to crack down on clean-tech production capacity, Dr Rebecca Nadin, director of the Centre for Geopolitics of Change at ODI Global, tells Carbon Brief. She says:

“Beijing is treating overcapacity in solar and smart EVs as a strategic choice, not a policy error…and is prepared to pour investment into these sectors to cement global market share, jobs and technological leverage.”

Dellatte echoes these comments, noting that it is “striking” that the plan “barely addresses the issue of industrial overcapacity in clean technologies”, with the focus firmly on “scaling production and deployment”.

At the same time, China is actively positioning itself to be a prominent voice in climate diplomacy and a champion of proactive climate action.

This is clear from the first line in a section on providing “global public goods”. It says:

“As a responsible major country, China will play a more active role in addressing global challenges such as climate change.”

The plan notes that China will “actively participate in and steer [引领] global climate governance”, in line with the principle of “common,but differentiated responsibilities”.

This echoes similar language from last year’s government work report, Yao tells Carbon Brief, demonstrating a “clear willingness” to guide global negotiations. But she notes that this “remains an aspiration that’s yet to be made concrete”. She adds:

“China has always favored collective leadership, so its vision of leadership is never a lone one.”

The country will “deepen south-south cooperation on climate change”, the plan says. In an earlier section on “opening up”, it also notes that China will explore “new avenues for collaboration in green development” with global partners as part of its “Belt and Road Initiative”.

China is “doubling down” on a narrative that it is a “responsible major power” and “champion of south-south climate cooperation”, Nadin says, such as by “presenting its clean‑tech exports and finance as global public goods”. She says:

“China will arrive at future COPs casting itself as the indispensable climate leader for the global south…even though its new five‑year plan still puts growth, energy security and coal ahead of faster emissions cuts at home.”

Back to top

What else does the plan cover?

The impact of extreme weather – particularly floods – remains a key concern in the plan.

China must “refine” its climate adaptation framework and “enhance its resilience to climate change, particularly extreme-weather events”, it says.

China also aims to “strengthen construction of a national water network” over the next five years in order to help prevent floods and droughts.

An article published a few days before the plan in the state-run newspaper China Daily noted that, “as global warming intensifies, extreme weather events – including torrential rains, severe convective storms, and typhoons – have become more frequent, widespread and severe”.

The plan also touches on critical minerals used for low-carbon technologies. These will likely remain a geopolitical flashpoint, with China saying it will focus during the next five years on “intensifying” exploration and “establishing” a reserve for critical minerals. This reserve will focus on “scarce” energy minerals and critical minerals, as well as other “advantageous mineral resources”.

Dellatte says that this could mean the “competition in the energy transition will increasingly be about control over mineral supply chains”.

Other low-carbon policies listed in the five-year plan include expanding coverage of China’s mandatory carbon market and further developing its voluntary carbon market.

China will “strengthen monitoring and control” of non-CO2 greenhouse gases, the plan says, as well as implementing projects “targeting methane, nitrous oxide and hydrofluorocarbons” in sectors such as coal mining, agriculture and chemicals.

This will create “capacity” for reducing emissions by 30m tonnes of CO2 equivalent, it adds.

Meanwhile, China will develop rules for carbon footprint accounting and push for internationally recognised accounting standards.

It will enhance reform of power markets over the next five years and improve the trading mechanism for green electricity certificates.

It will also “promote” adoption of low-carbon lifestyles and decarbonisation of transport, as well as working to advance electrification of freight and shipping.

Back to top

The post Q&A: What does China’s 15th ‘five-year plan’ mean for climate change? appeared first on Carbon Brief.

Q&A: What does China’s 15th ‘five-year plan’ mean for climate change?