Carbon Brief has analyzed all central government five-year plans published to date for the 15th five-year plan period and found that 54 of 72 plans released so far include climate-related policies or targets. The analysis covers plans addressing topics ranging from renewable energy development to fossil fuel industries, with the majority of plans incorporating climate considerations at varying levels of detail.
China’s five-year planning system structures policymaking through a hierarchical process beginning with an overarching plan released at the government’s leadership meeting. The highest-level plan, published in March, establishes broad economic and social development objectives for the period. Subsequently, numerous thematic and sectoral plans are released over several months, each focusing on specific industries or policy areas and providing more detailed targets and implementation guidance.
The 15th five-year period is considered particularly significant for climate action as it encompasses the years leading toward China’s commitment to peak carbon dioxide emissions before 2030. Primary targets identified in the overarching plan include reducing carbon intensity by 17 percent over the five-year period. The government has also previously announced commitments to reduce greenhouse gas emissions to 7-10 percent below peak levels by 2035, which serves as a basis for ongoing policymaking.
Carbon Brief’s tracking system categorizes climate and energy targets as either primary goals, which represent the most important objectives listed in policy documents, or secondary policies that provide additional direction. Primary goals include both numerical targets such as emission reduction percentages and non-numerical objectives focusing on capability enhancement and progress toward broader goals. The tracker remains incomplete, as the exact number of remaining unpublished plans for this cycle is unknown, though key climate and energy-related plans have likely already been released.
The analysis provides searchable access to all identified plans, allowing users to identify which documents address specific issues such as coal, clean energy technologies, or climate diplomacy. The complete list encompasses plans from relevant government departments including the Ministry of Ecology and Environment, National Development and Reform Commission, and National Energy Administration.
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