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China’s central government listed “boosting consumption…and stimulating domestic demand” as its first “major task” for 2025, at the recently closed “two sessions”.

As part of this focus – and amid slowing economic growth – the State Council made specific mention of China’s “two new” (两新) policy.

The policy was first announced in 2023, but was heavily promoted last year. President Xi Jinping reportedly “stressed the importance” of a national recycling company as part of the policy in 2024, because it “facilitates green, low-carbon and circular development”.

Carbon Brief explains what the policy is, how it works and what its impact will be. An abridged version of the article appeared in China Briefing on 20 March

What is ‘two new’?

The “two new” policy is short for “large-scale equipment upgrades and trade-in of consumer goods”. It is designed to boost domestic demand to prop up growth, at the same time as improving the efficiency of equipment so as to lower emissions.

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According to the Communist party’s leading magazine on ideology Qiushi, the idea was first raised in 2023 at an economic conference held by the State Council for “improving technology, energy consumption, emissions and other standards”.

It became well-known after Xi reiterated the idea in early 2024. In March 2024, the policy then became an “action plan – a document illustrating specific methods for executing a political goal.

Prof Bai Quan, director of energy transition at the Academy of Macroeconomic Research – a research institution under the direct supervision of the State Council – told Carbon Brief in 2024 that there are four aspects of “two new”:

  • Updates to equipment such as large boilers, turbines, heat pumps and lighting used for manufacturing;
  • Trade-in of consumer goods, including fridges and air conditioners;
  • Recycling of old or high-emission items;
  • Improving standards for product efficiency and emissions, as well as for recycling, “to prevent people from re-purchasing outdated equipment with low energy efficiency”.

He added that the first three aspects directly “promote carbon reduction” and the last one “indirectly serves energy saving and carbon reduction goals”.

Under the policy, government subsidies are provided for manufacturers and consumers to trade-in old inefficient goods and purchase new ones. Other financial and tax support is given to recyclers to increase recycling.

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In 2025, the State Council updated the “two new” policy and increased the funds available to consumers and businesses.

It also expanded the range of trade-in products, adding more and older petrol cars for instance, as well as pledging to release a more detailed trade-in standard covering 294 items by the end of the year.

Li Gang, an official from the Ministry of Commerce, is quoted by the state news agency Xinhua saying at the press conference on the expansion that it would “help stimulate consumer spending and boost domestic demand. All enterprises, domestic or foreign-funded, private or state-owned, are welcome to participate in the scheme.”

How does equipment upgrade work?

A fundamental mechanism of “two new” is providing funding that enables consumers and businesses to trade-in and upgrade goods, as well as recycling the old equipment.

For example, under the policy, a consumer can trade in an old, inefficient petrol car and receive subsidies to upgrade to a new electric vehicle (EV) instead.

The government “work report” delivered by premier Li Qiang at the “two sessions” says that “ultra-long special treasury bonds totaling 300bn yuan ($41bn) will be issued to support consumer goods trade-in programmes” in 2025.

Meanwhile, another 700bn yuan ($96bn) will be allocated for a sister programme, known as “two major [projects]” (两重), which supports infrastructure construction, including roads and railways.

In a more detailed “two new” paper, the State Council says it will provide about 90% of the funds and the rest shall be covered by local governments.

A sum of cash will be given when old “high-emission” goods, such as ships, trucks, tractors and buses, are sent for recycling, depending on the age and emission levels. Some discounts will also be given when purchasing new lower-emission replacements.

Separately, companies can apply for a low-interest loan for large-scale equipment upgrades.

The State Council paper also eases the rules around low-interest loans for equipment upgrades, making it easier for small and medium-sized enterprises to access them.

According to the paper, projects that can apply funds from the cash pool include “equipment renewal in the field, as well as energy conservation, carbon reduction and safety transformation in key industries”, such as transports and agriculture.

The policy also allocates around 7.5bn yuan ($1bn) for the “recycling and treatment of waste electrical and electronic products”. This extends beyond the list of trade-in items.

How does ‘two new’ support recycling?

As the world’s largest renewable energy producer, China has so far built some 1,408 gigawatts (GW) of wind and solar capacity. About 35m tonnes of waste from decommissioned wind and solar equipment will need to be recycled in China by 2030.

A research paper in the journal Waste Management suggests building up sufficient capacity to recycle this waste could generate “significant economic benefits”.

However, Shanghai-based outlet the Paper reports that only a limited number of recyclers are on the market, due to the high costs and long payback periods.

Despite Beijing issuing policies in 2023 and 2024 to encourage businesses, a stronger recycling market is needed for “advancing” the “two new”, according to prof Du Huanzheng, director of the Circular Economy Research Institute of Tongji University.

In 2024, a state-owned recycling company, China Resources Recycling Group, was established to handle scrap steel, EV batteries and decommissioned renewable energy equipment.

But “challenge[s]” remain for private recyclers, Bai told Carbon Brief. One obstacle is missing a “first receipt”, which is the purchase receipt from manufacturers that enables recyclers to claim value-added tax deductions, he said.

A supporting policy for the “two new” from 2024 allows qualified recyclers to use their purchasing invoice in place of “first receipt” for tax claims.

Bai said this policy “solved the problem” and “is a very important incentive to meet the 2027 goals” of the “two new” policy.

The 2027 goals, written by the State Council, include a 25% increase in new equipment investment across key sectors and a doubling in the share of cars being recycled:

“By 2027, the scale of equipment investment in industries such as industry, agriculture, construction, transportation…will increase by more than 25% compared with 2023; the energy efficiency of major energy-consuming equipment in key industries will basically reach the energy-saving level, and the proportion of production capacity with environmental protection performance reaching Class A will be greatly increased…The amount of scrapped cars recycled will increase by about one-fold compared with 2023.”

How does trade-in work under ‘two new’?

Li Shuo, director of China Climate Hub at the Asia Society Policy Institute (ASPI), tells Carbon Brief that this is not the first time China used subsidies and “similar initiatives” to “stimulate consumption, address product oversupply and enhance energy efficiency”.

In 2025, the categories of eligible trade-in goods under “two new” is expanding from eight to 12, including mobile phones and fridges that are closely related to daily usage. Up to 500 yuan ($70) subsidies apiece can be applied when purchasing new digital products from 2025.

Electric vehicles (EVs), which can greatly decarbonise road transport, remain on the list. In addition, scrappage subsidies have been extended to more and newer types of petrol cars – including cars registered from 2012-14 rather than 2011-2013.

Li adds that the latest expansion of the policy “highlights the rapid pace of industrial upgrades in China and the mutually reinforcing dynamics of industrial productivity, a favorable regulatory framework, and the sheer scale of the Chinese market”.

Bloomberg says that “the cash-for-clunkers program gave a big boost to sales – especially of EVs and hybrids – after its introduction last year” and “manufacturers and investors had been eagerly waiting to see whether the subsidy” would be renewed in 2025.

The buyer rebates for vehicles, including EVs and more efficient petrol cars, remain at the same level as in the second half of 2024, after a rise last August.

Buyers can receive up to 20,000 yuan ($2,730) for EVs and plug-in hybrids or 15,000 yuan ($2,073) for petrol cars with an engine smaller than two litres.

(The Chinese EV industry receives a complicated range of subsidies, read more in Carbon Brief’s Q&A on the sector.)

What is the impact?

Xinhua says that the trade-in scheme boosted sales of cars in 2024, with new energy vehicles (NEVs, mainly EVs and plug-in hybrids) accounting for more than 60% of the new vehicles bought under the initiative in 2024.

Meanwhile, products certified with the “highest energy-efficiency level” made up more than 90% of sales by revenue under the home appliance trade-in scheme, adds the report.

An analysis by Goldman Sachs says the trade-in subsidies have “accelerated” the rising share of NEVs in Chinese car sales. It says the policy will help raise the NEV share from 48% in 2024 to about 60% in 2025.

Subsidies for NEVs under “two new” have amounted to 90bn yuan ($12bn), accounting for about 60% of the total “trade-in money”, according to Goldman Sachs.

In his 2024 analysis for Carbon Brief, Lauri Myllyvirta, lead analyst at the Centre lead analyst at the Centre for Research on Energy and Clean Air (CREA), wrote that the trade-in subsidy scheme would “free up household cash for other types of spending, but it also directs household spending in the most energy-intensive direction”.

He tells Carbon Brief that the policy, after the 2025 expansion, is still a “much more limited measure than the kinds of income transfers that would be needed to substantially boost the role of household consumption in driving economic growth”. He adds:

“[It] targets the most energy-intensive part of household spending, purchases of energy-intensive manufactured goods, while leaving out spending on services and other less energy intensive sectors.”

Lynn Song, chief economist for Greater China from market research firm ING, tells Carbon Brief that it is “hard to quantify [the impact of ‘two new’] until we have more specifics rolled out such as what level of subsidies will be applied”. He says:

“The 300bn budget for the programme sounds a little small at first thought – under 1% of total retail sales last year – but it will boost sales beyond the 300bn [yuan] spent, so it should result in a fairly significant bump in my view.

“Looking at last year’s performance once the policies started ramping up in the second half of the year, we saw autos and home appliances easily outperform the headline retail sales growth.”

Song adds that the trade-in subsidies under “two new” can “lead to improved demand for these categories this year”.

In his 2024 interview with Carbon Brief, Bai called the “two new” a “sign” of the government using policy support to stimulate lower-carbon consumption. He added:

“Another vital policy is the ‘guidelines to ramp up green transition of economic, social development’… It is a blueprint of China’s transition in industry, building [construction], transportation, energy and many other areas. Together with the ‘two new’, which is an implementation document for this top-level design, we now have both a direction and a manual for the energy transition.”

The guideline aims to “achieve ‘remarkable results’ in the green transition” by 2030 and establish a “green, low-carbon and circular development economic system” by 2035.

(Read more about the guideline in China Briefing.)

An official release says that the “two new” policy “saved about 28m tonnes of standard coal and reduced carbon dioxide [CO2] emissions by about 73m tonnes” in 2024. It says the “effect” of supporting the low-carbon transition was “obvious”.

The post Q&A: How China’s ‘two new’ policy aims to help cut emissions appeared first on Carbon Brief.

Q&A: How China’s ‘two new’ policy aims to help cut emissions

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World leaders invited to see Pacific climate destruction before COP31

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The leaders and climate ministers of governments around the world will be invited to meetings on the Pacific islands of Fiji, Palau and Tuvalu in the months leading up to the COP31 climate summit in November.

Under a deal struck between Pacific nations, Fiji will host the official annual pre-COP meeting, at which climate ministers and negotiators discuss contentious issues with the COP Presidency to help make the climate summit smoother.

This pre-COP, expected to be held in early October, will include a “special leaders’ component” hosted in neighbouring Tuvalu – 2.5-hour flight north – according to a statement issued by the Australian COP31 President of Negotiations Chris Bowen on LinkedIn on Thursday.

Bowen said this “will bring a global focus to the most pressing challenges facing our region and support investment in solutions which are fit for purpose for our region.” Australia will provide operational and logistical support for the event, he said.

    Like many Pacific island nations, Tuvalu, which is home to around 10,000 people, is threatened by rising sea levels, as salt water and waves damage homes, water supplies, farms and infrastructure.

    Dozens of heads of state and government usually attend COP summits, but only a handful take part in pre-COP meetings. COP31 will be held in the Turkish city of Antalya in November, after an unusual compromise deal struck between Australia and Türkiye.

    In addition, Pacific country Palau will host a climate event as part of the annual Pacific Islands Forum (PIF) – which convenes 18 Pacific nations – in August.

    Palau’s President Surangel Whipps Jr told the Australian Broadcasting Corporation (ABC) that this meeting would be a “launching board” to build momentum for COP31 and would draw new commitments from other countries to help Pacific nations cut emissions and adapt to climate change.

    “At the PIF our priorities are going to be 100 per cent renewables, the ocean-climate nexus and … accelerating investments that build resilience from climate change,” he told ABC.

    The post World leaders invited to see Pacific climate destruction before COP31 appeared first on Climate Home News.

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    There is hope for Venezuela’s future – and it isn’t based on oil

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    Alejandro Álvarez Iragorry is a Venezuelan ecologist and coordinator of Clima 21, an environmental NGO. Cat Rainsford is a transition minerals investigator for Global Witness and former Venezuela analyst for a Latin American think tank.

    In 1975, former Venezuelan oil minister Juan Pablo Pérez Alfonzo gave a now infamous warning.

    “Oil will bring us ruin,” he declared. “It is the devil’s excrement. We are drowning in the devil’s excrement.”

    At the time, his words seemed excessively gloomy to many Venezuelans. The country was in a period of rapid modernisation, fuelled by its booming oil economy. Caracas was a thriving cultural hotspot. Everything seemed good. But history proved Pérez right.

    Over the following decades, Venezuela’s oil dependence came to seem like a curse. After the 1980s oil price crash, political turmoil paved the way for the election of populist Hugo Chávez, who built a socialist state on oil money, only for falling prices and corruption to drive it into ruin.

      By 2025, poverty and growing repression under Chávez’s successor Nicolás Maduro had forced nearly 8 million Venezuelans to leave the country.

      Venezuela is now at a crossroads. Since the US abducted Maduro on January 3 and seized control of the country’s oil revenues in a nakedly imperial act, all attention has been on getting the country’s dilapidated oil infrastructure pumping again.

      But Venezuelans deserve more than plunder and fighting over a planet-wrecking resource that has fostered chronic instability and dispossession. Right now, 80% of Venezuelans live below the poverty line. Venezuelans are desperate for jobs, income and change. 

      Real change, though, won’t come through more oil dependency or profiteering by foreign elites. Instead, it is renewable energy that offers a pathway forward, towards sovereignty, stability and peace.

      Guri Dam and Venezuela’s hydropower decline

      Venezuela boasts some of the strongest potential for renewable energy generation in the region. Two-thirds of the country’s own electricity comes from hydropower, mostly from the massive Guri Dam in the southern state of Bolívar. This is one of the largest dams in Latin America with a capacity of over 10 gigawatts, even providing power to parts of Colombia and Brazil.

      Guri has become another symbol of Venezuela’s mismanagement. Lack of diversification caused over-reliance on Guri for domestic power, making the system vulnerable to droughts. Poor maintenance reduced Guri’s capacity and planned supporting projects such as the Tocoma Dam were bled dry by corruption. The country was left plagued by blackouts and increasingly turned to dirty thermoelectric plants and petrol generators for power.

      Today, industry analysis suggests that Venezuela is producing at about 30% of its hydropower capacity. Rehabilitating this neglected infrastructure could re-establish clean power as the backbone of domestic industry, while the country’s abundant river system offers numerous opportunities for smaller, sustainable hydro projects that promote rural electrification.

      A fisherman walks down the coast from the Paraguana Refining Center (CRP) following a crude spill in September from a pipeline that connects production areas with the state-run PDVSA’s largest refinery, in Punta Cardon, Venezuela October 2, 2021. Picture taken October 2, 2021. REUTERS/Leonardo Fernandez Viloria

      A fisherman walks down the coast from the Paraguana Refining Center (CRP) following a crude spill in September from a pipeline that connects production areas with the state-run PDVSA’s largest refinery, in Punta Cardon, Venezuela October 2, 2021. Picture taken October 2, 2021. REUTERS/Leonardo Fernandez Viloria

      Venezuela also has huge, untapped promise in wind power that could provide vital diversification from hydropower. The coastal states of Zulia and Falcón boast wind speeds in the ideal range for electricity generation, with potential to add up to 12 gigawatts to the grid. Yet planned projects in both states have stalled, leaving abandoned turbines rusting in fields and millions of dollars unaccounted for.

      Solar power is more neglected. One announced solar plant on the island of Los Roques remains non-functional a decade later, and a Chávez-era programme to supply solar panels to rural households ground to a halt when oil prices fell. Yet nearly a fifth of the country receives levels of solar radiation that rival leading regions such as northern Chile.

      Developing Venezuela’s renewables potential would be a massive undertaking. Investment would be needed, local concerns around a just and equitable transition would have to be navigated and infrastructure development carefully managed.

      Rebuilding Venezuela with a climate-driven energy transition 

      A shift in political vision would be needed to ensure that Venezuela’s renewable energy was not used to simply free up more oil for export, as in the past, but to power a diversified domestic economy free from oil-driven cycles of boom and bust.

      Ultimately, these decisions must be taken by democratically elected leaders. But to date, no timeline for elections has been set, and Venezuela’s future hangs in the balance. Supporting the country to make this shift is in all of our interests.

      What’s clear is that Venezuela’s energy future should not lie in oil. Fossil fuel majors have not leapt to commit the estimated $100 billion needed to revitalise the sector, with ExxonMobil declaring Venezuela “uninvestable”. The issues are not only political. Venezuela’s heavy, sour crude is expensive to refine, making it dubious whether many projects would reach break-even margins.

      Behind it all looms the spectre of climate change. The world must urgently move away from fossil fuels. Beyond environmental concerns, it’s simply good economics.

      People line up as others charge their phones with a solar panel at a public square in Caracas, Venezuela March 10, 2019. REUTERS/Carlos Garcia Rawlins

      People line up as others charge their phones with a solar panel at a public square in Caracas, Venezuela March 10, 2019. REUTERS/Carlos Garcia Rawlins

      Recent analysis by the International Renewable Energy Agency finds that 91% of new renewable energy projects are now cheaper than their fossil fuel alternatives. China, the world’s leading oil buyer, is among the most rapid adopters.

      Tethering Venezuela’s future to an outdated commodity leaves the country in a lose-lose situation. Either oil demand drops and Venezuela is left with nothing. Or climate change runs rampant, devastating vulnerable communities with coastal loss, flooding, fires and heatwaves. Meanwhile, Venezuela remains locked in the same destructive economic swings that once led to dictatorship and mass emigration. There is another way.

      Venezuelans rightfully demand a political transition, with their own chosen leaders. But to ensure this transition is lasting and stable, Venezuela needs more – it needs an energy transition.

      The post There is hope for Venezuela’s future – and it isn’t based on oil appeared first on Climate Home News.

      There is hope for Venezuela’s future – and it isn’t based on oil

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      UN’s new carbon market delivers first credits through Myanmar cookstove project

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      A cleaner cooking initiative in Myanmar is set to generate the first-ever batch of carbon credits under the new UN carbon market, more than a decade after the mechanism was first envisioned in the Paris Agreement.

      The Article 6.4 Supervisory Body has approved the issuance of 60,000 credits, which correspond to tonnes of carbon dioxide equivalent reduced by distributing more efficient cookstoves that need less firewood and, therefore, ease pressure on carbon-storing forests, the project developers say. The approval of the credit issuance will become effective after a 28‑day appeal and grievance period.

      The programme started in 2019 under the previous UN-run carbon offsetting scheme – the Clean Development Mechanism (CDM) – and is being implemented by a South Korean NGO with investment from private South Korean firms.

      The credits are expected to be used primarily by major South Korean polluters to meet obligations under the country’s emissions trading system – a move that will also enable the government to count those units toward emissions reduction targets in its nationally determined contribution (NDC), the UN climate body told Climate Home News.

      Myanmar will use the remaining credits to achieve in part the goals of its national climate plan.

      Making ‘a big difference’

      The approval of the credits issuance represents a major milestone for the UN carbon market established under article 6.4 of the Paris Agreement. By generating carbon credits that both governments and private firms can use, the mechanism aims to accelerate global climate action and channel additional finance to developing nations.

        UNFCCC chief Simon Stiell said the approval of the first credits from a clean cooking project shows “how this mechanism can support solutions that make a big difference in people’s daily lives, as well as channeling finance to where it delivers real-life benefits on the ground”.

        “Over two billion people globally are without access to clean cooking, which kills millions every year. Clean cooking protects health, saves forests, cuts emissions and helps empower women and girls, who are typically hardest hit by household air pollution,” he added in a statement.

        Concerns over clean cookstove credits

        Carbon markets are seen as an important channel to raise money to help low-income communities in developing countries switch to less polluting cooking methods. Proceeds from the sale of carbon credits made up 35% of the revenue generated by for-profit clean cooking companies in 2023, according to a report by the Clean Cooking Initiative.

        But many cookstove offsetting projects have faced significant criticism from researchers and campaigners who argue that climate benefits are often exaggerated and weak monitoring can undermine claims of real emission reductions. Their main criticism is that the rules allow project developers to overestimate the impact of fuel collection on deforestation, while relying on surveys to track stove usage that are prone to bias and can further inflate reported impacts.

        As Louisiana bets big on ‘blue ammonia’, communities brace for air pollution

        The project in Myanmar follows a contested methodology developed under the Kyoto Protocol that was rejected last year by The Integrity Council for the Voluntary Carbon Market (ICVCM), a watchdog that issues quality labels to carbon credit types, because it is “insufficiently rigorous”.

        An analysis conducted last year by Brussels-based NGO Carbon Market Watch claimed that the project would generate 26 times more credits than it should, when comparing its calculations with values from peer-reviewed scientific literature.

        ‘Conservative’ values cut credit volume

        But, after transitioning from the CDM to the new mechanism, the project applied updated values and “more conservative” assumptions to calculate emission reductions, according to the UNFCCC, which added that this resulted in 40% fewer credits being issued than would have been the case in the CDM.

        “The result is consistent with environmental integrity requirements and ensures that each credited tonne genuinely represents a tonne reduced and contributes to the goals of the Paris Agreement,” said Mkhuthazi Steleki, the South African chair of article 6.4 Supervisory Body, which oversees the mechanism.

        Over 1,500 projects originally developed under the CDM requested the transition to the new mechanism, including controversial schemes subsidising fossil gas-powered plants in China and India. But, so far, the transfer of only 165 of all those projects has been approved by their respective host nations, which have until the end of June to make a final decision.

        The UN climate body said this means that “a wide variety of real-world climate projects are already in line to follow” in sectors such as renewable energy, waste management and agriculture. But the transfer of old programmes from the CDM has long been contested with critics arguing that weak and discredited rules allow projects to overestimate emission reductions.

        Genuinely new projects unrelated to the CDM are expected to start operating under the Paris Agreement mechanism once the Supervisory Body approves the first custom-made methodologies.

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        UN’s new carbon market delivers first credits through Myanmar cookstove project

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