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.
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.
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”.
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.
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.”
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.”
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.
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?
Climate Change
China Briefing 28 May 2026: Deadly rains | China pushes back | Examining China’s carbon intensity metric
Welcome to Carbon Brief’s China Briefing.
China Briefing handpicks and explains the most important climate and energy stories from China over the past fortnight. Subscribe for free here.
Key developments
Several dead as record rainfall hit several provinces
DEADLY DOWNPOUR: Multiple rounds of heavy rainfall have hit central and eastern China, with Agence France-Presse reporting that at least 25 people were killed in the first round, which affected provinces including Guangxi, Guizhou, Hunan and Hubei. Shortly afterwards, nine people died in south-western Chongqing province, reported finance news outlet Caixin, after receiving “nearly 300mm of rain in just two hours, a deluge local residents described as the worst in more than 60 years”. The government has dedicated 280m yuan ($41m) to support affected provinces, reported state news agency Xinhua. The Communist party-backed newspaper China Youth Daily reported that more than 20 provinces have been affected so far, with rains expected to continue throughout June.
CLIMATE CONTRIBUTION: National rainfall over 11-23 May was 46% higher than the seasonal norm, said Xinhua. Nearly 500 weather stations nationwide have logged record rainfall levels, according to state-sponsored newspaper Guangming Daily. The rains were described as “quite unusual”, according to Xinhua, with the National Climate Centre’s chief forecaster Gao Hui telling the agency that the heavy rains were caused by a combination of factors. These included a convergence of several climate systems carrying in strong flows of moisture from nearby marine regions, as well as “rapid global warming, compounded by a fast-developing El Niño” increasing the atmosphere’s moisture content.
The EU ‘overcapacity’ debate
‘CONCERNS’ REGISTERED: The EU will debate proposals in June to “step up efforts” to reduce economic reliance on China and protect its industries, including “safeguard investigations” for at-risk sectors and an “overcapacity instrument”, reported Politico. Finance news outlet Yicai said China in turn has registered its “concerns” with the World Trade Organization over the EU’s Industrial Accelerator Act (IAA), which includes local content requirements for industries including clean-energy technologies.
PATIENCE ‘WEARING THIN’: A report by the Hong Kong-based South China Morning Post cited “some observers” as saying a trade war characterised by the EU “clos[ing] its market down to Chinese imports” may be the “only” way in which the EU can get China to fully engage with its concerns. A China Daily editorial states that China’s “patience” over the EU’s “politicisation and over-securitisation of trade and economic issues” is “wearing thin”. An editorial in the state-supporting Global Times says “erecting higher trade barriers” against Chinese cleantech is “clearly unwise”, given the Iran conflict, adding: “China will never sit idly by while the EU unreasonably suppresses Chinese companies.”
MISSING AGREEMENTS: Meanwhile, Bloomberg covered US president Donald Trump’s claims that his counterpart Xi Jinping “likes the idea of buying more US oil”, following Trump’s state visit to China. [None of the Chinese government readouts or press briefings covering trade outcomes have mentioned any energy agreements so far.] Similarly, the “Kremlin said…a general understanding” had been reached on the Power of Siberia 2 gas pipeline following Russian president Vladimir Putin’s visit to China, according to Reuters, but that there was “no mention of any oil and gas deals among documents signed” during his meeting with Xi. A joint statement published by China’s Ministry of Foreign Affairs said China and Russia will “deepen” cooperation around oil and gas, coal, nuclear and renewable energy, adding that they will “strengthen cooperation in addressing climate change”.
Coal-power generation rose in April
‘INFLEXIBLE’ COAL: Thermal power generation in China “grew for a fourth straight month in April”, rising 3.1% year-on-year in the face of reduced wind and nuclear generation, reported Bloomberg. “Unfavorable weather” was not the only reason for weaker clean-energy generation, wrote Centre for Research on Energy and Clean Air lead analyst Lauri Myllyvirta on Bluesky, with “grid congestion due to inflexible operation of coal plants and transmission lines” also a factor. Separately, research by Global Energy Monitor found that Chinese coal-plant developers “requested approval for 51 gigawatts (GW)” of new capacity in January-March 2026, reported Bloomberg.
-
Sign up to Carbon Brief’s free “China Briefing” email newsletter. All you need to know about the latest developments relating to China and climate change. Sent to your inbox every Thursday.
SOLAR SLOWDOWN: Total power demand grew 6% year-on-year in April, according to Xinhua. Total capacity rose 14% by the end of April, reported energy news outlet International Energy Net, with China’s total solar-power capacity now exceeding 1,250 gigawatts (GW) and wind reaching 661GW, while thermal capacity rose 7% to 1,556GW. However, the growth rate of new solar installations continued to fall for a “fourth straight month”, said Bloomberg, with 9.5GW added in April 2026 compared to 45.2GW the year before.
POLICY EXPANDS: Meanwhile, the government has expanded its renewable power “direct connection” policy to allow clean-energy generators to supply multiple users directly “through dedicated [power] lines”, rather than just one consumer, reported finance news outlet Caixin. It cited a government official saying the policy is “intended to support cleaner energy use in industrial parks…and other large energy-consuming facilities”, which comprise more than two-thirds of total energy demand. Economic news outlet Jiemian quotes an expert saying the policy enables both “lower electricity prices” and “higher utilisation rates” for renewables, “reducing curtailment rates”.
More China news
- ‘SOLIDARITY AND RESOLVE’: China voted in favour of a UN general assembly resolution to back the International Court of Justice’s (ICJ) landmark 2025 opinion on states’ legal obligations to tackle climate change. The Chinese embassy to Vanuatu said on Facebook this displayed its “solidarity and collective resolve”.
- BOND DISCLOSURE: According to a disclosure report by China’s finance ministry, the country raised 6bn yuan in “green sovereign bonds” in 2025, said finance news outlet EastMoney ($884m), of which 700m ($103m) was spent on clean-energy retrofitting.
- WAR ON SAND: The central government has pledged to “improve” and expand its ecological compensation mechanism, including to now provide compensation for building solar farms in desertified areas, said power news outlet BJX News.
- SPACE-BASED SOLAR: Chinese scientists have begun “initial experiments” in a project to “collect [solar] energy in orbit and beam it wirelessly to Earth”, said PV Magazine.
- MINERAL STRATEGY: China has pledged to “accelerate the construction of strategic mineral-reserve sites”, reported Reuters. It will also work with the US on “reasonable” concerns around its rare-earth export controls, Reuters also reported.
Captured
Hydrogen in China continues to be mostly produced from coal, according to a National Energy Administration report. A new Carbon Brief article explored how a series of new policies in China could help scale hydrogen, particularly “green” hydrogen made with renewable power.
Spotlight
China’s new carbon metric leaves Germany-sized gap in its emissions
A major change in the way that China measures its core climate goal has effectively halved the growth in the country’s carbon dioxide (CO2) emissions over the past five years.
The revised measure of “carbon intensity” implies that China’s emissions have only gone up by 7% from 2020-2025, just half of the 14% rise indicated by previous official statistics.
This spotlight is an excerpt of an analysis explaining how the metric appears to have shifted and its implications for China’s climate goals. The full article can be found on the Carbon Brief website.
Germany-sized gap
Reducing carbon intensity – CO2 emissions per unit of GDP – has been China’s key climate commitment since the Copenhagen climate conference in 2009.
Neither China’s international climate pledges nor other official documents have ever set out a definition of carbon intensity.
However, until this year, it was possible to closely reproduce the reported numbers, based on a straightforward interpretation of what carbon intensity means – combining official GDP data with estimates of emissions from the use of fossil fuels.
Now, the types of emissions that are included in the carbon-intensity metric have changed.
The previous carbon-intensity measure apparently included emissions from the use of fossil fuels to generate energy and as chemical feedstocks, so-called “non-energy uses”. It did not include non-fossil fuel CO2 emissions from industrial processes, such as the production of cement.
Based on reported progress against this old scope, China’s carbon intensity had fallen by 12.4% from 2020-2025, well short of its 18% target under the 14th five-year plan.
Yet the 15th five-year plan reported that China had cut its carbon intensity by 17.7% over the same period, indicating a major shift in which types of emissions are included.
A footnote in China’s latest statistical communique indicates that carbon intensity now includes industrial process emissions and excludes non-energy uses of fossil fuels.
The shift has implications for estimates of the country’s emissions.
China’s total emissions were 11.2bn tonnes of CO2 (GtCO2) in 2020. Based on the original methodology, its fossil-fuel CO2 emissions had grown 14% by 2024, an increase of 1,430m tonnes (MtCO2).
In contrast, the newly reported carbon-intensity figures imply that China’s CO2 emissions only grew by 7% between 2020 and 2025, up just 690MtCO2.
The gap between these figures amounts to 730MtCO2, equivalent to the annual emissions of Germany or South Korea.
Decoding the new methodology
The methodology change could have significant implications, making it important to understand how it is being calculated.
The new scope includes industrial-process emissions. One of the largest sources of these emissions, the cement industry, has been contracting, helping explain the improvement to carbon intensity under the new scope.
In addition, the new scope excludes non-energy use of fossil fuels – largely relating to the chemicals industry – which have seen rapid growth in the past five years.
One way to make the numbers add up would be to assume that the amount of carbon embedded in chemical-industry products has increased by the equivalent of 500MtCO2.
However, the reported output of major chemical-industry products cannot account for this level of embedded carbon.
Neither the change in scope of the carbon-intensity calculation, nor the change in the amount of carbon retained in products, can explain the size of the revision in the newly reported numbers. There must be another explanation.
Either the new scope broadly aligns with the explanation outlined above, but also excludes a subset of the CO2 emissions. Or the scope does not exclude any of the CO2, but there are gaps in the monitoring of some energy or industrial-process emissions.
Either explanation would mean China is not accounting for some of its CO2 emissions.
Implications for China’s targets
This change has the effect of weakening China’s climate targets and introducing more uncertainty into tracking progress.
The new numbers means it will require less effort to hit the 2030 carbon-intensity target in its Paris pledge. This target can now be met even if emissions rise, whereas the previous metric would have required a reduction.
It will also require less effort to hit the carbon-intensity target in China’s 15th five-year plan.
In addition, China would be able to officially meet its target to peak emissions by 2030, even if its overall CO2 emissions do not actually peak. The change could also affect delivery of China’s targets to cut emissions by 2035.
While China may use any definition it wants for carbon intensity under the UN climate framework, retrospective changes or inconsistent accounting could erode the value of its commitments.
Moreover, it will ultimately have to close any gaps in its emissions data and reporting, under the transparency rules of the Paris Agreement.
This spotlight is adapted from an article by Centre for Research on Energy and Clean Air lead analyst Lauri Myllyvirta for Carbon Brief.
Watch, read, listen
MINING ACCIDENT: A column in Bloomberg argued that “continuing to veer…toward cleaner [energy] development” could avoid coal-mine accidents such as the one that claimed 82 lives in Shanxi province.
INDONESIAN NICKEL: The European Guanxi Podcast recorded a discussion with Ember’s Dr Muyi Yang about the role China plays in Indonesia’s coal-reliant nickel industry.
INDUSTRIAL HURDLES: A new article in Yicai investigated the reasons why companies are holding back on relocating to zero-carbon industrial parks.
NEGATIVE PRICES: The Communist party-affiliated People’s Daily published a widely-read article on how the emergence of “negative electricity prices” signals a need for a more “coordinated” buildout of clean energy.
163
In billion tonnes, the amount of carbon dioxide (CO2) that China could avoid between 2025-2060 by transitioning to clean energy, according to a new study published by several leading academic institutions in Nature Reviews Earth & Environment. Scientists estimate that the remaining global budget for keeping temperatures below 1.5C is 130bn tonnes of CO2.
New science
- Population exposure to heatwave-drought events “increased markedly” across China during between 1961-90 and 1991-2020, driven by a combination of population growth and more frequent heatwave-drought events | Atmospheric Research
- Fossil-fired power generation accounts for three-quarters of China’s total water consumption for energy production | Mitigation and adaptation strategies for global change
Recently published on WeChat
China Briefing is written by Anika Patel, with contributions from Lekai Liu, and edited by Simon Evans. Please send tips and feedback to china@carbonbrief.org
The post China Briefing 28 May 2026: Deadly rains | China pushes back | Examining China’s carbon intensity metric appeared first on Carbon Brief.
A new book examines “renewable portfolio standard” laws and the ways utilities drove the bus.
Not long ago, the rise of U.S. renewable energy was largely tied to state policies that required or encouraged utilities to meet benchmarks for obtaining wind and solar power.
How Utility Companies and States Shaped America’s Clean Energy Transition
Europe has been hit by a searing heatwave, which has shattered temperature records across France, Spain and the UK.
In London, for example, the mercury hit a record high for May of 35.1C at Kew Gardens on Tuesday 26 May, breaking the former record-high May temperature by more than 2C.
Multiple people have died as a result of the high temperatures, including 14 people across the UK and France who drowned.
The heatwave was driven by a “heat dome”, in which warm air moving up from northern Africa has become trapped under a high-pressure system over western Europe.
Experts have been quick to point out the link between extreme heat and global warming, with one saying it was “beyond a shadow of a doubt” that climate change was making such events “more likely and more severe”.
In this article, Carbon Brief examines the impacts of the heatwave and the role of climate change.
- What is happening with the May heatwave in Europe?
- What is driving the record-shattering heat?
- What are the impacts of the extreme heat?
- How has the media responded?
What is happening with the May heatwave in Europe?
Europe has been hit by “mind-bogglingly crazy” temperature records in May, according to the Financial Times, quoting Peter Thorne, director of the ICARUS Climate Research Centre at Maynooth University in Ireland.
In London, on Tuesday 26 May, temperatures hit a record high for May of 35.1C at Kew Gardens – breaking the previous record of 34.8C, set just the day before.
This was more than 2C above the previous May temperature high of 32.8C recorded in 1922 and again in 1944, reported the Times.
The Associated Press added that the UK capital also recorded a rare “tropical night”, when temperatures did not fall below 20C overnight.
The Daily Telegraph reported that Wales and Northern Ireland also saw record-high temperatures, of 27.4C in Cardiff and 23.4C in Armagh, on Sunday.
As with the UK record, these were quickly surpassed. BBC News reported that temperatures hit 32.9C in Bute Park, Cardiff and 24.5C in Thomastown, County Fermanagh, on Tuesday.
BBC News quoted a spokesperson from the Met Office, who said:
“This heat would be exceptional in the UK even in mid-summer, let alone in May.”
The broadcaster added that the average temperature in the UK at the end of May is usually 14-20C.
The Associated Press reported that temperature records have also fallen across Europe.
This includes in France, where temperatures reached 36C on Monday in the country’s south-west and remained above 20C at night across much of the country. The newspaper Libération declared that “it has never been so hot, so early, in France”.
The Guardian reported that the weather agency Météo France said the heatwave could last through the week and bring temperatures as high as 39C in some areas in the country.
As well as the UK and France, other nations have been seeing temperatures soar. France24 reported that temperatures in Spain were expected to reach 38C, with Italy also facing high temperatures.
The Irish Times reported that the May high-temperature record was broken twice in Ireland on the same day, with 29.7C recorded in Carlow and then 30.5C at Shannon Airport on Tuesday.
Le Monde explained that a “heat dome” of warm air from northern Africa is behind the high temperatures across Europe. (See: What is driving the record-breaking heat?)
The Financial Times quoted ICARUS’s Thorne saying that the records being set in Europe, “particularly in the UK and France, are mind-bogglingly crazy”. He added:
“We have more than 100 years of observational records. To break the all-time May record by more than 2C…is hard to comprehend.”
What is driving the record-shattering heat?
The immediate driver of the extreme heat seen over Europe this week is a “heat dome”, according to Politico.
The outlet explained that the phenomenon is driven by “warm air moving up from northern Africa [that] has become trapped under a high-pressure system over western Europe”. It added:
“The effect is similar to that of a lid on a pot, with warm air forced downward and baking affected regions with prolonged, blistering heat.”
Spain’s El Correo explained that the phenomenon is “not a simple heatwave”, adding that such “high-pressure systems trapped over Europe are not usually seen before summer”.
However, many publications have linked the severity of the extreme heat to climate change. The Associated Press quoted ICARUS’s Thorne, who said:
“We know beyond a shadow of a doubt that heatwave events such as this have been made more likely and more severe due to climate change arising from our emissions of heat-trapping greenhouse gases.”
The Guardian quoted Dr Chloe Brimicombe, a researcher at the University of Oxford, who said:
“The record-breaking heat is a reminder of how climate change is impacting our lives in the UK. It highlights the urgency of recent calls for heat adaptation.”
France’s Le Figaro described the event as an “unequivocal sign of global warming”.
The Independent reported that the heatwave “has the fingerprints of climate change all over it”. Other outlets, including Inside Climate News and Scientific American, also covered the links between extreme heat and climate change.
BBC News noted that over the last 30 years, Europe has been warming by 0.56C per decade – more than twice the global average.
The outlet quoted Prof Erich Fischer, professor at the Institute for Atmospheric and Climate Science at ETH Zurich in Switzerland, who compared the record-breaking temperatures to setting a new record in sports.
He explained that “if someone beats a world record in high jump, you would expect them to beat it by one centimetre and not suddenly by 20, 30 centimetres”. Similarly, he said that in the case of temperature, you would expect new records to be broken by a fraction of a degree, rather than 2 or 3C.
However, the broadcaster explained that “when a relatively rare weather system, such as this week’s heat dome, comes around in a warming climate, the margin of record can be huge”.
Simon Stiell, the executive secretary of UN Climate Change, called the heatwave a “brutal reminder of the cost of global warming”, according to Politico.
The Guardian also quotes Stiell, who said:
“The science is clear that human-induced climate change is making these heatwaves more frequent and extreme”.
What are the impacts of the extreme heat?
The heatwave has already been linked to multiple deaths.
This included seven people in France, five of whom died by drowning and two who suffered heat-related deaths while competing in sporting events, said the Guardian.
Separately, the Guardian reported that at least nine people have died in the UK from “water-related incidents” during the heatwave.
France24 reported that “restrictions on outdoor work were imposed in parts of Italy” and that “farmers reported accelerated harvests as temperatures went beyond 30C across [south-west France]”.
The Guardian reported that tennis players at the French Open were “forced to adjust their games while trying to find their best level through obvious discomfort”, amid 33C temperatures in Boulogne-Billancourt, Paris, on Monday.
CNN added that, in the UK, “a wildfire broke out near Arthur’s Seat, a hill in Edinburgh, Scotland, and hundreds of properties in south-east England were left without water as demand spiked”.
BBC News reported on a warning from a chief nurse that hospitals in the south-west of England were busier than usual amid the heatwave.
BBC News reported that the UK saw a surge in emergency calls on Tuesday. The Daily Telegraph added that “Britain’s roads started melting and rail commuters were left stranded for hours”.
Meanwhile, the Guardian reported on a warning from climate campaigners that the government “urgently” needs to start installing air conditioning units in schools and care homes.
The extreme heat has also affected Europe’s renewable energy generation. Bloomberg said that “the heat dome has blocked clouds and fueled booming solar generation”, but added that “by clearing clouds and calming the atmosphere, the heat dome has had the opposite effect on wind speeds”.
How has the media responded?
The unseasonably high temperatures have caught the attention of news outlets in the UK, France and other affected nations.
Often, news stories were accompanied by photos of people relaxing at the beach, eating ice cream and swimming in the sea.
Such images of “fun in the sun” have often drawn criticism from climate researchers for “misrepresenting” the risks of heatwaves.
This choice of imagery – and the way right-leaning newspapers in the UK tend to focus on the positive aspects of hot weather – was highlighted by journalist and media critic Mic Wright in a Substack post. He wrote:
“Most British newspapers write about extremely hot weather with the tone of a frog in a boiling pot pretending it’s a jacuzzi.”
Despite blanket news coverage of the record heat in media outlets across western Europe, there has been relatively little commentary from their opinion pages.
No major UK newspapers have published editorials about the heat and there has been no space dedicated to it in the comment sections of the largest French and Spanish newspapers.
One exception in UK media was the Daily Mail’s climate-sceptic columnist Richard Littlejohn writing an article mocking heat-safety measures and warnings issued by the Met Office and the UK Health Security Agency (UKHSA).
In contrast, the Guardian published an article by Bill McGuire, professor emeritus of geophysical and climate hazards at University College London, warning of the dangers facing the UK as extreme heat becomes “the norm”. He wrote:
“We need, then, to face the fact that life in the 2050s is going to be very different from today, and act now. The sooner we recognise this and begin – as a nation – to prepare and adapt accordingly, the better we will be able to meet these enormous challenges to our everyday lives.”
Oliver Duff, editor-in-chief of the i newspaper, wrote that the UK is “emotionally underprepared”, as a nation, for the heat:
“Worries about climate change are forgotten in the giddy determination to enjoy our brief, unreliable summers, whichever month of the year they deign to visit.”
Writing in the Independent, journalist Kat Brown reflected on the Climate Change Committee’s recent advice to the UK government on adapting to climate change. She stressed the need to “take heatwaves seriously”.
James Wallace, chief executive of the charity River Action, was given a guest column in the Daily Express in which he wrote: “As the nation swelters in record-breaking temperatures, England is sleepwalking into a water crisis.”
In reference to water shortages and increasingly extreme weather, Wallace also emphasised that “this is climate breakdown in real time”.
The post Media reaction: UK and Europe’s ‘mind-boggling’ May heat and climate change appeared first on Carbon Brief.
Media reaction: UK and Europe’s ‘mind-boggling’ May heat and climate change
The real cost of 1 tonne of CO2: Translating carbon into hectares
China Briefing 28 May 2026: Deadly rains | China pushes back | Examining China’s carbon intensity metric
How Utility Companies and States Shaped America’s Clean Energy Transition
-
Climate Change10 months ago
Guest post: Why China is still building new coal – and when it might stop
-
Greenhouse Gases10 months ago
Guest post: Why China is still building new coal – and when it might stop
-
Greenhouse Gases2 years ago嘉宾来稿：满足中国增长的用电需求 光伏加储能“比新建煤电更实惠”
-
Climate Change2 years ago嘉宾来稿：满足中国增长的用电需求 光伏加储能“比新建煤电更实惠”
-
Climate Change2 years ago
Bill Discounting Climate Change in Florida’s Energy Policy Awaits DeSantis’ Approval
-
Renewable Energy7 months agoSending Progressive Philanthropist George Soros to Prison?
-
Carbon Footprint2 years agoUS SEC’s Climate Disclosure Rules Spur Renewed Interest in Carbon Credits
-
Greenhouse Gases11 months ago
嘉宾来稿：探究火山喷发如何影响气候预测