The State Council Information Office has released the white paper “China’s Actions for Carbon Peak and Carbon Neutrality,” with the full text attached.

BEIJING, Nov. 8 (Xinhua) — The State Council Information Office on the 8th released the white paper “China’s Actions for Peaking Carbon Emissions and Achieving Carbon Neutrality.” The full text is as follows:

China’s Actions on Peak Carbon Emissions and Carbon Neutrality

(November 2025)

People's Republic of China

State Council Information Office

  Preface

  The Earth is the home on which humanity depends for survival, and addressing climate change and advancing sustainable development are vital to our collective future. Since the advent of the industrial era, while generating immense material wealth, humanity has also accelerated the exploitation of natural resources, disrupting the balance of the Earth’s ecosystems and bringing to the fore deep‑seated conflicts between people and nature. In recent years, the adverse impacts of climate change have become increasingly evident, underscoring the growing urgency of global action.

  Achieving carbon peak and carbon neutrality is a major strategic decision made by China, based on its commitment to sustainable development and its sense of responsibility toward human civilization. General Secretary Xi Jinping has repeatedly underscored China’s unwavering determination to attain these goals at numerous high-level multilateral and bilateral forums. On September 22, 2020, during the General Debate of the 75th Session of the United Nations General Assembly, General Secretary Xi solemnly declared that China will strive to peak its carbon dioxide emissions before 2030 and endeavor to achieve carbon neutrality before 2060. On December 12, 2020, at the Climate Ambition Summit, he announced China’s Nationally Determined Contributions for 2030. On September 24, 2025, at the UN Climate Action Summit, General Secretary Xi further unveiled China’s Nationally Determined Contributions for 2035, injecting greater momentum and greater certainty into global climate governance and fully demonstrating China’s moral responsibility and commitment as a responsible major country.

  China has always honored its commitments and delivered on its word. Over the past five years since making the major announcements to peak carbon emissions and achieve carbon neutrality, China has firmly embraced and put into practice the philosophy that lucid waters and lush mountains are invaluable assets. Through decisive actions and strenuous efforts, it has achieved historic progress in its green and low‑carbon transition: it has established the world’s most comprehensive and systematic policy framework for carbon reduction; built the largest and fastest‑growing renewable energy system globally; forged the world’s largest and most complete new‑energy industry chain; launched the world’s largest‑scale and fastest‑expanding deployment of new‑energy vehicles; contributed roughly one quarter of the world’s additional green cover; become one of the countries with the fastest decline in energy intensity; and pioneered an effective pathway for green and low‑carbon development in developing economies—making significant contributions to addressing global climate change and advancing human sustainable development.

  2025 marks the tenth anniversary of the adoption of the Paris Agreement. Over the past decade, despite facing numerous challenges, global climate governance has ultimately embraced green and low‑carbon development as the defining trend of our times. At present, with the world undergoing rapid and profound changes unseen in a century, global climate governance has entered a new and critical phase. Empty rhetoric is no match for decisive action. Only by implementing concrete measures can we turn the goals of global climate action into tangible results and safeguard our shared home—the Earth—on which all life depends.

  This white paper is issued to provide a comprehensive overview of the significant achievements China has made over the past five years in advancing carbon peaking and carbon neutrality, and to share the country’s approaches, actions, and practical experience in this endeavor.

  I. Unswervingly advance carbon peaking and carbon neutrality.

  China has designated carbon peaking and carbon neutrality as national strategies, launched extensive and in-depth initiatives to achieve carbon peaking, accelerated the comprehensive green transformation of economic and social development, and forged a development path that prioritizes ecology and pursues green, low-carbon growth.

  (1) Advancing carbon peaking and carbon neutrality is the only viable path.

  Achieving carbon peaking and carbon neutrality is an intrinsic imperative for China to address pressing resource and environmental constraints and to realize sustainable development. Humanity and nature constitute a community of life, and harmonious coexistence between humans and nature is the foundation for enduring development. Advancing carbon peaking and carbon neutrality—by shifting economic and social development onto a green, low‑carbon trajectory—will effectively safeguard energy security, the stability of industrial and supply chains, and food security, thereby providing robust resource and environmental underpinnings for higher‑quality, more sustainable development.

  Achieving carbon peaking and carbon neutrality is an inevitable choice for China, in line with the trend of technological advancement and aimed at driving the transformation and upgrading of its economic structure. At present, a new round of scientific and technological revolution and industrial transformation is unfolding at a rapid pace. Advancing carbon peaking and carbon neutrality can leverage green transformation as a catalyst to promote the upgrading and restructuring of the economy, energy systems, and industrial sectors, while vigorously fostering synergistic innovation and integrated development between traditional and emerging industries, thereby forging new momentum and competitive advantages for high-quality development.

  Achieving carbon peaking and carbon neutrality is an urgent imperative for China to meet the growing public demand for a beautiful ecological environment and to promote harmonious coexistence between humanity and nature. A sound ecological environment is the most fundamental public good and the most universally beneficial source of well-being. Advancing carbon peaking and carbon neutrality entails a green, low‑carbon transformation of both production and lifestyle, which helps address environmental challenges at their root, satisfies the public’s rising aspirations for a high‑quality ecological environment, and enhances people’s sense of gain, happiness, and security.

  Achieving carbon peak and carbon neutrality is China’s proactive commitment to fulfilling its responsibilities as a major country and advancing the building of a community with a shared future for mankind. In the face of the climate change challenge, humanity shares a common destiny. Promoting carbon peaking and carbon neutrality means that, as the world’s largest developing country, China will achieve the steepest reduction in carbon intensity globally and transition from carbon peak to carbon neutrality in the shortest timeframe in global history—efforts that will demand extraordinary determination and perseverance. This is a concrete demonstration of multilateralism and underscores China’s unwavering resolve to work with the international community to build a clean and beautiful world.

  (II) Systematically advancing efforts to peak carbon emissions and achieve carbon neutrality

  China is the largest developing country, with a population of over 1.4 billion. It still faces formidable challenges in economic development and improving living standards, and achieving carbon peaking and carbon neutrality is a multidimensional, comprehensive, and systematic undertaking. In advancing this effort, China adheres to a holistic approach that balances development with emissions reduction, integrates national and local priorities, aligns long-term goals with short-term objectives, and coordinates government-led initiatives with market forces, while consistently upholding the following principles.

  National-level coordination. China adheres to a nationwide, unified approach, strengthening top-down planning and making green and low-carbon development a clear guiding principle, integrating it into every sector and link of the national economic cycle. The National Development and Reform Commission of China fully leverages its coordinating role in achieving carbon peaking and carbon neutrality, working closely with all regions and departments to advance these goals in a proactive yet prudent manner.

  Prioritize conservation. China places energy and resource efficiency at the forefront, implements a comprehensive conservation strategy, continuously reduces energy and resource consumption and carbon emissions per unit of output, and vigorously promotes a simple, moderate, green, and low‑carbon lifestyle, thereby establishing effective mechanisms for controlling carbon emissions at the source and at the point of entry.

  Dual-wheel drive. China is committed to leveraging both government and market forces, strengthening innovation in science, technology, and institutional frameworks, and accelerating a green and low-carbon technological revolution. At the same time, it is deepening reforms in the energy sector and related fields, actively harnessing market mechanisms, and establishing effective incentive and constraint systems.

  Ensuring smooth domestic and international flows. China attaches great importance to international exchanges and cooperation, effectively coordinating domestic and international energy resources, and vigorously promoting advanced international green and low-carbon technologies and best practices. At the same time, it is actively advancing the establishment of a global climate governance system that is fair, equitable, and based on win-win cooperation.

  Risk prevention. China adheres to a development approach that is grounded in its national conditions and follows the principle of “establishing the framework before dismantling the old,” ensuring energy security, the stability of industrial and supply chains, food security, and the normal production and daily life of the people as it advances the green and low-carbon transition. It is committed to addressing various risks and potential hazards, thereby guaranteeing a safe and orderly reduction of carbon emissions.

  (III) Establishing a Policy Framework for Peaking Carbon Emissions and Achieving Carbon Neutrality

  To achieve the goals of peaking carbon emissions and achieving carbon neutrality, China has established the world’s most comprehensive and systematic carbon‑reduction policy framework—the “1+N” policy system for peaking carbon emissions and achieving carbon neutrality—clearly defining timelines, roadmaps, and implementation blueprints.

  “1” represents the guiding principle and top-level design for China’s efforts to achieve carbon peaking and carbon neutrality. At the national level, the State Council has issued the “Opinions on Fully, Accurately, and Comprehensively Implementing the New Development Philosophy and Doing a Good Job in Carbon Peaking and Carbon Neutrality” and the “Action Plan for Reaching Carbon Peak Before 2030,” which provide systematic planning and overall deployment for these endeavors. The plan outlines ten major initiatives: the green and low‑carbon energy transition; energy conservation, carbon reduction, and efficiency enhancement; carbon peaking in the industrial sector; carbon peaking in urban and rural development; green and low‑carbon transportation; circular economy–driven carbon reduction; innovation in green and low‑carbon technologies; strengthening and enhancing carbon sink capacity; nationwide green and low‑carbon action; and phased, orderly carbon peaking across regions.

  “N” refers to the implementation plans for peaking carbon emissions and achieving carbon neutrality in key industries, sectors, and regions. Relevant authorities have issued implementation plans for peaking carbon emissions in priority areas such as energy, industry, transportation, urban–rural development, and agriculture and rural affairs; sector-specific plans for key industries including coal, oil, natural gas, steel, non‑ferrous metals, petrochemicals, and building materials; as well as supporting and safeguarding measures covering technological innovation, fiscal incentives, green finance, green consumption, ecological carbon sinks, pollution reduction and carbon mitigation, statistical accounting, standards and metrology, talent development, and cadre training. All 31 provinces (autonomous regions and municipalities directly under the central government) have also released their own regional implementation plans for peaking carbon emissions.

  II. Significant Progress Has Been Made in the Green and Low-Carbon Transformation of the Energy Sector

  Energy is the foundation and driving force of human civilization, vital to national development, people’s livelihoods, and national security and stability. Energy-related activities are the primary source of carbon emissions, making a green and low‑carbon energy transition essential for achieving peak carbon and carbon neutrality. Grounded in its basic national conditions and stage of development, China is vigorously promoting the substitution of renewable energy while ensuring energy security, advancing the construction of a new energy system and a new power system, thereby providing robust support for realizing its “dual carbon” goals.

  (1) Non-fossil energy achieves leapfrog development.

  China has adhered to the principle of “establishing the new before dismantling the old,” giving top priority to the vigorous development of non-fossil energy sources. As a result, it has achieved the world’s largest‑scale and fastest‑paced expansion of new energy, raising the share of non‑fossil energy consumption from 16.0% in 2020 to 19.8% in 2024—an average annual increase of nearly one percentage point.

  Promote leapfrog development of wind and photovoltaic power generation. China adheres to a dual approach of centralized and distributed systems, accelerating the construction of large-scale wind and photovoltaic power bases, with a focus on desert, gobi, and arid regions; advancing the standardized and orderly development of offshore wind power; actively promoting rooftop photovoltaic systems in urban and rural areas; and encouraging the development of decentralized wind power in rural communities. As of the end of August 2025, the installed capacity of wind and photovoltaic power has exceeded 1.69 billion kilowatts—more than three times the level in 2020—accounting for roughly 80% of all new power‑generation capacity added since 2020. Meanwhile, the share of wind and solar power in total electricity generation has steadily risen, increasing by an average of 2.2 percentage points per year.

  Develop hydropower in accordance with local conditions. Hydropower is an important source of clean energy and a flexible power source in China’s western regions. China adheres to a scientifically coordinated approach that balances hydropower development with ecological protection, prioritizing integrated development of hydropower, wind, and solar energy. Focusing on the major rivers of the southwestern region, China is steadily and prudently advancing the construction of large-scale hydropower projects within river basins, while also vigorously and orderly developing pumped-storage hydropower stations. As of the end of August 2025, conventional hydropower capacity stood at approximately 380 million kilowatts, and pumped-storage capacity reached 62.365 million kilowatts.

  Actively, safely, and orderly developing nuclear power. Nuclear energy is a high-quality, efficient, and clean energy source. China has consistently pursued the orderly development of nuclear power on the premise of ensuring safety, while promoting its applications in areas such as clean heating, industrial heat supply, and seawater desalination. As of the end of August 2025, China had 112 operational, under-construction, and approved‑for‑construction nuclear power units, with a total installed capacity of 125 million kilowatts, ranking first in the world. By implementing the strictest safety standards and the most rigorous regulatory oversight, China’s nuclear power industry has maintained a leading global record in safe operations.

  Accelerate the development of green hydrogen, biomass energy, geothermal energy, and ocean energy. China remains committed to innovation-driven progress, advancing the full value chain of hydrogen—from production and storage to transportation and end-use—while speeding up the cultivation of new products, business models, and market formats. By the end of 2024, green hydrogen production capacity exceeded 150,000 tonnes per year, ranking first globally. Tailoring approaches to local conditions, China is promoting diversified development and utilization of biomass energy, steadily expanding agricultural and forestry biomass power generation, biogas‑based power, and municipal solid waste incineration for power, while also scaling up clean heating solutions based on biomass. Clean liquid fuels such as bioethanol and biodiesel are being systematically promoted and applied. As of the end of August 2025, installed biomass power capacity reached 46.88 million kilowatts, 1.6 times the level in 2020. A number of district‑heating projects powered by geothermal energy have been completed, and demonstration projects for generating electricity from tidal and wave energy are underway, marking significant progress in the large‑scale deployment of ocean energy.

  (II) Acceleration of the clean and efficient utilization of fossil energy

  China continues to enhance the clean and efficient utilization of fossil energy, while appropriately curbing its consumption. As a result, the share of fossil energy in total energy consumption has declined from 84.0% in 2020 to 80.2% in 2024.

  China is vigorously promoting the clean and efficient use of coal while pursuing coal‑consumption reduction and substitution. Grounded in its resource endowment—dominated by coal—China is coordinating efforts to ensure a stable coal supply and advance a low‑carbon transformation, stepping up the development of “green mines” and “smart mines,” and continuously cutting carbon emissions from coal extraction. The country has undertaken large‑scale energy‑efficiency and carbon‑reduction upgrades for coal‑fired power units and steadily phased out outdated capacity in the coal‑power sector, with over 100 million kilowatts of such capacity retired over the past decade. China is also intensifying measures to reduce and replace coal in key industries, increasing the share of clean energy and the level of electrification in the industrial sector, and advancing the replacement of loose coal in an orderly and prudent manner. As a result, coal’s share of total energy consumption has declined from 56.7% in 2020 to 53.2% in 2024.

  Continuously advance the green transformation of oil and gas exploration, development, and utilization. Fully implement green production initiatives for oil and gas, promote the construction of green oil and gas fields, and drive the transformation and upgrading of the petroleum refining and petrochemical industries, thereby achieving energy savings and carbon reductions in the production process. Strengthen efforts to substitute conventional fuels with advanced bio‑liquid fuels and sustainable aviation fuels. Launch a special campaign to upgrade refined‑oil quality, achieving three consecutive upgrades from China VI to China VI standards, and completing in less than 10 years a journey that took developed countries nearly 30 years, effectively reducing emissions of pollutants from vehicle exhaust.

  (3) The comprehensive regulation capacity of the power system continues to improve.

  With the large-scale development of new energy, China has vigorously enhanced the safe operation and risk-resilience of its power system, accelerating the construction of a new‑type power system that is clean and low‑carbon, secure and abundant, economically efficient, demand‑supply coordinated, and flexible and intelligent. This effort has promoted integrated development across generation, grid, load, and storage, enabling the large‑scale development and utilization of renewable energy.

  Enhancing the coordinated and optimized operation of the power system. China has fully leveraged the flexible regulation capabilities of coal-fired power, comprehensively implemented flexibility upgrades for coal-fired units, and ensured that over 50% of such units can perform deep peak‑shaving. It has also built natural gas peaking plants tailored to local conditions, strategically deployed pumped storage and concentrating solar power, and accelerated the large-scale application of next‑generation energy storage technologies. Meanwhile, it continues to optimize multi‑energy complementary dispatch and operation on the supply side, fully tapping peak‑shaving potential, thereby steadily improving the safe operation and overall regulatory capacity of the power system.

  Strengthening grid complementarity and mutual support. China has innovated grid architectures and operational models, enhanced the intelligence of its power grids, and promoted their proactive adaptation to the large-scale development of centralized renewable energy sources as well as widespread distributed energy resources. The main grid framework has been refined, solidifying the physical foundation for system stability, and a highly interconnected, mutually supportive six‑region grid structure has taken shape, with continuously improving capabilities for interprovincial and interregional power resource allocation. In 2024, interregional and interprovincial power transmission reached 924.7 billion kWh and 2 trillion kWh, up 50% and 30%, respectively, compared with 2020. Meanwhile, the upgrading and transformation of distribution networks have been accelerated, with a strong focus on enhancing their capacity to integrate renewable energy. Smart microgrids, primarily designed to accommodate renewable energy, are being actively developed to achieve compatibility and complementarity with the bulk power grid.

  Significantly enhance the flexibility of electricity demand. China is systematically integrating demand‑side response resources, guiding users to optimize their energy storage and consumption patterns, and unlocking a high degree of flexibility in residential and general commercial‑industrial electricity loads. In light of the substantial share of industrial electricity demand, large industrial consumers are being encouraged to participate in ancillary services markets, thereby strengthening demand‑side response capabilities and effectively improving the overall flexibility of the power system. By 2025, the goal is to raise demand‑side response capacity to 3%–5% of peak electricity demand, with regions such as East China, Central China, and South China reaching approximately 5% of peak demand.

  Strengthen the development of new‑type energy storage. Energy storage is a critical foundation for building a new‑generation power system. China is promoting the integrated development of energy storage across all segments of the power system. It is actively advancing “new energy plus storage,” integrated source‑grid‑load‑storage systems, and multi‑energy complementary approaches, with a focus on key grid nodes and remote areas, to rationally deploy new‑type energy storage. The country also encourages electric vehicles and uninterruptible power supplies to participate in system frequency and peak‑shaving operations. Furthermore, it is fostering the diversified application of technologies such as lithium‑ion batteries, flow batteries, compressed air energy storage, gravitational energy storage, and flywheel energy storage. By the end of 2024, installed capacity for new‑type energy storage had reached 73.76 million kilowatts/168 million kilowatt-hours—20 times the level in 2020—and its share of global total installed capacity exceeded 40%.

  III. Deepening Low-Carbon Development in Key Areas

  Industry, transportation, construction, and residential life are key sectors responsible for carbon emissions and play a crucial role in achieving peak carbon and carbon neutrality. China has integrated these goals into its overall economic and social development strategy, accelerating the transition to green, low-carbon production and lifestyles, thereby injecting robust green momentum into high-quality development.

  (1) The decarbonization of industries is accelerating.

  China is vigorously promoting synergistic innovation and integrated development between traditional and emerging industries, focusing on optimizing and upgrading the industrial structure, and strongly advancing the growth of green and low-carbon industries, thereby continuously raising the level of industrial greening and decarbonization.

  The green transformation of traditional industries continues to deepen. China has firmly curbed the unchecked launch of high-energy‑consumption, high-emission, and low‑level projects, continuously updated binding standards on environmental protection, energy efficiency, water efficiency, and carbon emissions across key sectors, and steadily phased out outdated production capacity in accordance with laws and regulations. The country is promoting green and low‑carbon upgrades in priority industries, consistently establishing benchmarks for green manufacturing, actively advancing the substitution of clean energy sources, supporting eligible regions in pioneering the development of zero‑carbon industrial parks, advancing the construction of eco‑industrial parks, and accelerating the replacement of low‑carbon raw materials and the utilization of recycled resources. In 2024, China’s output of recycled nonferrous metals reached 19.15 million tonnes, maintaining its position as the world’s largest for the 15th consecutive year; one out of every four tonnes of electrolytic aluminum was produced using green electricity.

  The advantages of developing green and low-carbon industries continue to strengthen. China is steadily cultivating new growth drivers in the green and low-carbon sectors, with their share of the overall economy steadily rising. The country has established the world’s largest and most comprehensive clean-energy industrial chain, and the “new three” — new‑energy vehicles, lithium batteries, and photovoltaic products — have become a hallmark of Chinese manufacturing. In 2024, the “three‑new” economy—comprising new industries, new business forms, and new business models—accounted for more than 18% of GDP, while the value added of high‑tech manufacturing represented 16.3% of industrial output above designated size, up 1.2 percentage points from 2020.

  The digitalization‑driven green transition is accelerating in a coordinated manner. China is actively leveraging the positive role of digital technologies in enhancing resource efficiency and delivering environmental benefits, while deepening the application of artificial intelligence, big data, cloud computing, and other innovations across sectors such as power systems, industrial and agricultural production, transportation, and building design and operations. Efforts are underway to promote the green and low‑carbon development of data centers, integrating the construction of large‑scale wind and solar energy bases with national data hub nodes, and increasing the share of green electricity used by data centers. A total of 246 data centers have been recognized as National Green Data Centers, with more than half of their electricity consumption coming from renewable sources.

  (II) The clean, low-carbon transportation system is being accelerated and improved.

  China is vigorously developing low-carbon transportation vehicles and equipment, continuously optimizing its transport structure, and accelerating the establishment of a modern, integrated transportation system that is safe, convenient, efficient, green, and cost-effective.

  Low‑carbon transportation is being rapidly scaled up. China has accelerated the deployment of new‑energy vehicles, achieving the world’s fastest and largest‑scale rollout of such vehicles. From January to September 2025, the domestic market penetration rate of new‑energy passenger cars reached 52.2%, ranking first among major economies. China leads the world in railway electrification, with an electrification rate of 76.2% as of 2024. The country is promoting the use of clean‑energy propulsion in ships and aircraft; by 2024, fuel efficiency in the civil aviation fleet had improved by 20.5% compared with the 2005 baseline. Efforts to encourage the use of shore power at ports are advancing, with shore‑power coverage at key specialized berths in major ports exceeding 90%. China also boasts a globally leading level of on‑site electrification at civil aviation airports: as of the end of July 2025, electric vehicles accounted for 32% of all ground‑support equipment at these airports.

  The structure of the transportation sector continues to be adjusted and optimized. China is steadily improving its national railway, highway, and waterway networks, promoting a rational division of labor and seamless connectivity among different modes of transport. It is vigorously advancing the development of multimodal transport under “single‑document” and “single‑container” systems, while continuously increasing the share of rail and waterway transport for bulk commodities. In 2024, freight turnover by rail and by waterway rose by 17.5% and 33.6%, respectively, compared with the end of the 13th Five-Year Plan period, and the proportion of green cargo handling—using railways, waterways, enclosed belt conveyors, and new‑energy vehicles—at major coastal ports reached 88.4%.

  Green transportation infrastructure is undergoing continuous upgrading. China has actively undertaken green upgrades and renovations of transport facilities, vigorously promoted the development of green highways and green waterways, and worked to enhance the green and intelligent features of newly built stations, airports, terminals, and other facilities, while strengthening the construction of new‑energy infrastructure in the transport sector. China has established the world’s largest charging‑infrastructure network, serving the widest range of vehicle types and covering the broadest geographic area. As of the end of August 2025, the total number of electric‑vehicle charging facilities in China had reached 17.348 million, ten times the figure from five years earlier. Furthermore, China has deepened its strategy of prioritizing urban public transport and accelerated the development of a green travel system. By the end of June 2025, 330 urban rail transit lines were in operation, with a combined operating length exceeding 11,000 kilometers, ranking first worldwide.

  (III) Enhancing the Quality of Green and Low-Carbon Development in Urban and Rural Areas

  China is accelerating the transformation of urban and rural development approaches, with continuous improvements in the green and low-carbon development of urban and rural areas and in the quality of living environments.

  The pace of low-carbon transformation in urban and rural planning and development is accelerating. China is actively leveraging green and low-carbon planning as a guiding force, integrating these principles into every stage—planning, construction, and management—while steadily advancing urban renewal initiatives and prioritizing the restoration of urban ecosystems. Green construction practices are being promoted, with prefabricated building technologies expanding and green building materials increasingly adopted. In 2024, newly commenced prefabricated construction totaled 672 million square meters, accounting for over 30% of all new buildings. As of June 30, 2025, the number of certified green building materials had surpassed 10,000. Efforts to enhance urban climate resilience and improve urban ecosystems are ongoing, ensuring adequate ecological space for rivers and lakes and sufficient flood‑control and drainage capacity; to date, 90 sponge city projects and 39 climate‑adaptation pilot programs have been launched. By the end of 2024, the green coverage rate in built-up urban areas reached 43.49%, and per capita park and green space in cities stood at 15.91 square meters.

  Building energy efficiency has improved significantly. China has continuously raised energy‑efficiency standards, vigorously promoted green building development, and undertaken energy‑saving retrofits of existing buildings. In 2024, green buildings accounted for 97.9% of all newly constructed urban buildings. During the 14th Five-Year Plan period, energy‑saving renovations were advanced for existing urban buildings, with public buildings seeing an average improvement in energy performance of 20% after retrofitting. By the end of 2024, energy‑efficient buildings represented more than 66% of the total floor area of existing urban buildings.

  Energy use in the building sector is becoming increasingly clean and low‑carbon. China has steadily raised the level of end‑use electrification in buildings, promoted the integrated application of photovoltaic power generation with buildings tailored to local conditions, and expanded the deployment of clean, low‑carbon heating technologies such as heat pumps, biomass energy, geothermal energy, and solar energy, thereby effectively reducing carbon emissions in the building sector. In 2024, electricity accounted for more than 55 percent of total building energy consumption in China. The country has also vigorously advanced clean heating in northern regions, with over 40 million rural households in the north having completed clean‑heating upgrades. By the end of 2024, the clean‑heating penetration rate in northern China reached 83 percent, an increase of nearly 20 percentage points compared with 2020.

  (4) A green and low-carbon lifestyle has become the new norm.

  China has vigorously implemented a nationwide green and low-carbon initiative, with a simple, moderate, green, low-carbon, civilized, and healthy lifestyle increasingly becoming the conscious choice of more people.

  A green, low-carbon lifestyle is taking shape at an accelerated pace. China champions the principles and practices of green, low‑carbon living, actively guiding and encouraging citizens to adopt environmentally responsible behaviors, and advancing initiatives to promote sustainable lifestyles. The share of residents opting for green, low‑carbon modes of transport continues to rise: on average, about 200 million trips per day are made by public transit, and roughly 25 million people choose shared bicycles. Comprehensive household waste sorting has been fully implemented; by the end of 2024, waste‑sorting facilities had reached 98.5% of residential communities in cities at or above the prefecture level. Efforts to develop and scale up carbon‑inclusive mechanisms are also underway, with 27 provinces having introduced relevant policies that cover green travel, energy conservation, secondhand‑goods recycling, and waste sorting, among other aspects of sustainable living.

  Green and low-carbon consumption is expanding across the board. China continues to enhance both the scale and quality of its supply of green and low-carbon products, vigorously implementing initiatives to encourage the trade-in of old consumer goods for new ones. By leveraging green and low-carbon consumption, China is simultaneously boosting economic growth and advancing carbon reduction, while guiding and incentivizing the adoption of such products. At the same time, it is firmly curbing luxury waste and irrational consumption, carrying out the “Clean Plate Campaign,” resisting food waste, and encouraging the public to conserve water and electricity and reduce the use of single‑use items.

  IV. Comprehensive Implementation and Effective Results of Key Carbon-Reduction Pathways

  Energy conservation is a key lever for reducing carbon emissions at the source, while the circular economy plays a vital role in advancing decarbonization, and ecosystem carbon sinks represent an important pathway to achieving emission reductions and carbon sequestration. China has vigorously implemented initiatives to enhance energy efficiency and reduce carbon emissions, leverage the circular economy to support decarbonization, and strengthen and expand carbon sink capacity, yielding significant results.

  (1) The initiative to conserve energy, reduce carbon emissions, and enhance efficiency is being vigorously advanced.

  China has consistently adhered to the principle of prioritizing energy conservation, spearheaded an energy consumption revolution, and worked vigorously to build an energy‑saving society. After excluding feedstock use and non‑fossil energy consumption, China’s energy intensity—measured as energy consumption per unit of GDP—fell by a cumulative 11.6% over the first four years of the 14th Five-Year Plan period.

  Energy‑saving management capabilities have improved markedly. China has continuously refined its energy‑conservation laws, regulations, standards, and policies, establishing a mature and effective energy‑management system. It has put in place a comprehensive institutional framework, including energy‑conservation reviews for fixed‑asset investment projects, and since 2020 has conducted industrial energy‑conservation inspections at more than 20,000 enterprises, while carrying out industrial energy‑saving and carbon‑reduction diagnostics at over 12,000 enterprises and industrial parks. The country has clarified energy‑management requirements for key industries and priority enterprises, encouraging major energy‑using entities to adopt sophisticated, data‑driven energy‑management practices. Furthermore, it has actively promoted market‑based mechanisms such as energy‑performance contracting, bolstering enterprises’ intrinsic motivation to enhance energy efficiency. Today, the total output value of the energy‑service sector exceeds RMB 500 billion, with new investments in energy‑performance contracting surpassing RMB 170 billion in 2024.

  Key projects for energy conservation and carbon reduction have been fully implemented. China has carried out energy‑saving and carbon‑reduction upgrades in priority industries, enhanced the sophistication of energy‑use management, and unlocked systemic potential for energy efficiency and emissions reductions. It has also launched park‑level energy‑conservation and carbon‑reduction initiatives, promoting optimization of energy systems and cascaded utilization. To date, 491 national green industrial parks have been cultivated, with energy consumption per unit of industrial value added at two-thirds of the national average.

  Breakthroughs have been achieved in energy conservation and efficiency improvements for key equipment. China has accelerated the promotion and application of advanced, high‑efficiency, energy‑saving equipment. Through a large‑scale equipment‑upgrade initiative, more than 20 million units of equipment in priority sectors were replaced in 2024, resulting in energy savings equivalent to approximately 25 million tonnes of standard coal. Focusing on motors, fans, pumps, compressors, transformers, heat exchangers, industrial boilers, and other types of equipment, China has comprehensively raised energy‑efficiency standards. By the end of 2024, energy‑efficiency labeling covered 44 categories of energy‑using products across five major energy‑consumption sectors, essentially achieving full coverage of key energy‑intensive products and equipment.

  (II) The circular economy has yielded significant results in reducing carbon emissions.

  China is vigorously developing a circular economy, comprehensively enhancing resource-use efficiency, and fully leveraging the synergistic benefits of reducing resource consumption and lowering carbon emissions.

  The waste‑recycling management system is becoming increasingly robust. China has adopted targeted measures tailored to the different sources of waste, continuously advancing the development of its recycling‑management framework to achieve refined waste management and effective recovery. In the industrial sector, the ledger‑based management system for general industrial solid waste has been improved, promoting the segregated collection and storage of such waste. In agriculture, a comprehensive system for the collection and treatment of livestock and poultry manure, crop residues, and other agricultural wastes has been established, while efforts to recycle used agricultural inputs have been strengthened. In the residential sector, a three‑tiered recycling network—comprising collection points, stations, and central hubs—has been put in place, enhancing the capacity for standardized collection of end‑of‑life materials. By the end of 2024, approximately 150,000 collection points and around 1,800 large‑scale sorting centers had been built.

  The level of waste resource utilization has been steadily improving. China adopts tailored policies based on the different modes of waste utilization, promoting the standardized, large-scale, and clean use of recycled resources. Efforts to comprehensively utilize bulk solid waste have been strengthened, with the in-depth implementation of 100 demonstration projects for the integrated utilization of such waste. In 2024, the comprehensive utilization rate of seven major categories of bulk solid waste—including coal gangue, fly ash, and tailings—reached 59%, an increase of 3 percentage points compared with 2020. The deep processing of recycled resources is encouraged, and the promotion and application of resource‑recycled products are being enhanced. In 2024, the annual utilization of key recyclable materials—such as scrap steel, scrap nonferrous metals, waste paper, waste rubber, and waste glass—exceeded 400 million tons; meanwhile, the volume of scrapped motor vehicles and used household appliances collected and dismantled in accordance with regulations reached 8.46 million units and 630,000 tons, respectively, up sharply by 64% and 20% year on year. The remanufacturing industry has also seen robust development, with its output value surpassing RMB 200 billion in 2024.

  (3) Enhancing the Carbon Sequestration and Sink‑Enhancing Efficiency of Natural Ecosystems

  China adheres to a systems-based approach, advancing integrated conservation and systematic governance of mountains, rivers, forests, farmland, lakes, grasslands, and deserts. As a result, the carbon sink capacity of its ecosystems has continued to strengthen. China has taken the lead globally in achieving “zero growth” in land degradation and reducing both the area of desertified land and the area of land affected by sandification. Over the past two decades, it has contributed roughly one-quarter of the world’s新增绿化面积.

  The pattern of carbon sequestration within ecosystems continues to improve. China rigorously safeguards natural ecological spaces and strives to minimize the encroachment of human activities on these areas. It has established a nationwide land‑use planning system that is unified, clearly defines responsibilities and powers, and is both scientific and efficient, delineating three control lines—arable land and permanent basic farmland, ecological protection redlines, and urban development boundaries—as well as various marine‑area protection lines. A nature‑conservation‑area system has been put in place, with national parks as the mainstay, nature reserves as the foundation, and diverse natural parks serving as supplementary components. The first batch of five national parks has been designated, and approximately 10,000 nature‑conservation‑area sites at all levels have been established, covering about 18% of China’s land territory, thereby steadily enhancing ecosystem stability and service functions.

  Artificially enhanced ecosystem carbon sinks continue to strengthen. China has deepened the implementation of major national projects for the protection and restoration of key ecosystems, vigorously advanced nationwide afforestation initiatives, and steadily expanded the total volume of forest and grassland resources, thereby leveraging the critical role of forests as carbon reservoirs. As a result, China now boasts the largest increase in global forest resources and the greatest area of artificially planted forests. In 2024, forest coverage reached 25.09%, with a total forest stock volume of 20.988 billion cubic meters, while the comprehensive vegetation cover of grasslands stood at 50.52%. Currently, the annual carbon sequestration capacity of forests and grasslands exceeds 1.2 billion tonnes of CO₂ equivalent. China has also coordinated water resources, water environment, and aquatic ecology to carry out ecological governance of rivers and lakes, and promoted integrated marine ecological management. By the end of 2024, China’s wetland area remained stable at over 800 million mu, ranking first in Asia and fourth worldwide.

  Agricultural emissions reduction and carbon sequestration are steadily advancing. China is developing green, low-carbon, and circular agriculture; in 2024, the comprehensive utilization rates of crop straw and livestock and poultry manure reached approximately 88% and 80%, respectively. The country supports the development of low-carbon agricultural models such as agrivoltaics and “photovoltaics plus facility agriculture,” actively promotes efficient fertilization technologies, encourages the substitution of chemical fertilizers with organic fertilizers, and implements measures to appropriately curb greenhouse gas emissions from crop production. Efforts to conserve energy and reduce emissions in agricultural machinery are being deepened, with region-specific development of multi-functional, high-efficiency, and new-energy‑powered farm equipment, while phasing out outdated machinery that is energy‑intensive, highly polluting, and has poor safety performance. The National Black Soil Protection Project is being implemented, degraded farmland is being restored, conservation tillage is being promoted, and the carbon sequestration capacity of farmland soils and their resilience to cultivation are being enhanced. Furthermore, large‑scale ecological aquaculture is being actively developed to bolster the sector’s potential for carbon sequestration.

  V. The support and guarantee system continues to be strengthened.

  China continues to strengthen its foundational capacities in carbon emissions accounting and statistics, standards and metrology, enhance its scientific and technological innovation capabilities, refine economic support policies, and improve market-based mechanisms, with steadily bolstered institutional and operational safeguards.

  (1) Continuous Enhancement of Core Capabilities

  Establish a unified and standardized carbon emissions accounting system. Improve the national and provincial-level carbon emissions accounting frameworks, standardizing data definitions and accounting methodologies. Refine the carbon emissions accounting mechanisms for key sectors, and promulgate greenhouse gas emission accounting methods and relevant national standards for priority industries such as power generation, iron and steel, and non‑ferrous metals. Enhance the national greenhouse gas inventory compilation process, instituting routine management and periodic update procedures. Launch the National Greenhouse Gas Emission Factor Database and release, for the first time, the initial version containing nearly 300 emission factors.

  Improve the “dual carbon” standards and metrology system. Establish and refine a comprehensive “dual carbon” standards framework, having issued a total of 110 national standards in areas such as corporate carbon‑emission accounting, energy efficiency and consumption, circular‑economy‑based carbon reduction, green products, and carbon‑reduction technologies. Strengthen capacity building in carbon metrology by approving the establishment of 11 national measurement baselines related to carbon emissions, 71 types of metrological standard devices, and 134 types of reference materials, and advancing the development of the National Carbon Metrology Center.

  Enhance carbon footprint management. Strengthen the foundational standards for carbon‑footprint accounting by issuing the general rules for product carbon‑footprint calculation, “Greenhouse Gas—Product Carbon Footprint—Quantification Requirements and Guidelines,” and releasing 13 national standards on product carbon footprints covering key sectors such as electrolytic aluminum, livestock products, plastic goods, and internal combustion engines. Two batches of recommended group standards for industrial product carbon‑footprint accounting have also been published, encompassing a total of 38 group standards that cover priority products including steel, non‑ferrous metals, and cement. Data on electricity‑related carbon‑footprint factors for 2023 and 2024 have been released. Efforts to bolster the product carbon‑labeling certification system have been intensified, with pilot projects on product carbon footprints launched for 10 key product categories and 26 certification bodies. In addition, targeted supervisory inspections of carbon‑emission verification, inspection, and testing institutions have been conducted to enhance their technical support capabilities.

  (II) Support policies are robust and effective.

  Improving economic policies that support green and low-carbon development. China has established and refined fiscal, tax, and pricing policies to promote green and low-carbon growth. In government procurement, mandatory and priority purchasing of energy-saving and environmentally friendly products has been implemented; currently, such purchases account for more than 85 percent of the total volume of similar product acquisitions. Green electricity pricing policies have been enhanced, and green investment policies have been optimized. A comprehensive system of green finance standards has been put in place, along with structural monetary policy tools such as carbon‑reduction support facilities. The climate‑related investment and financing policy framework has been improved, with 23 local pilot programs launched to guide the development of regional climate‑investment project pipelines. By the end of 2024, the outstanding balance of green loans in both domestic and foreign currencies reached RMB 36.6 trillion, with nearly 70 percent of these loans directed toward projects that deliver carbon‑reduction benefits. In 2024, premium income from green insurance totaled RMB 333.149 billion, while green bond issuance amounted to RMB 681.432 billion—2.5 times the level recorded in 2020.

  Implement large-scale equipment upgrades and a trade-in program for consumer goods. China has launched an ambitious initiative to modernize equipment and encourage the replacement of old consumer products with new ones, vigorously promoting the production and application of advanced technologies, steadily increasing the share of cutting-edge manufacturing capacity, and ensuring that high-quality, durable consumer goods become more widely available in households. This effort is not only an economic policy but also a climate‑oriented strategy aimed at fostering a long-term green transition. From January to August 2025, during vehicle and home appliance trade-in campaigns, new‑energy vehicles accounted for over 60% of purchases, while sales of Class‑1 energy‑efficiency appliances reached 92%; nationwide, more than 9,000 smart community recycling facilities were added. The “Two New” policies for 2024 and 2025 are expected to generate energy savings equivalent to over 69 million tons of standard coal and reduce carbon emissions by more than 170 million tons.

  (3) Deep Empowerment through Technological Innovation

  Strengthen cutting-edge, disruptive low-carbon technology innovation. Attach great importance to foundational research on key technologies for the “dual carbon” goals, and continue to achieve breakthroughs in critical areas such as renewable energy, energy storage, and smart grids. In 2024, China’s publicly disclosed PCT international patent applications in green and low-carbon technologies reached 6,356, 2.3 times the level of 2020, maintaining its position as the world’s leader for the fourth consecutive year.

  Promote the practical application of advanced, low‑carbon, and environmentally friendly technologies. China has launched demonstration projects for cutting‑edge green and low‑carbon technologies, releasing two batches totaling 148 advanced demonstration projects and five batches comprising 227 nationally prioritized low‑carbon technologies, while intensifying efforts to translate mature, advanced, and applicable low‑carbon technologies into industrial applications. It has also published lists of energy‑saving and carbon‑reduction technologies and equipment, as well as major environmental protection technologies and equipment, guiding enterprises to actively adopt technologies that conserve energy, reduce carbon emissions, and minimize pollution.

  (4) Market-based mechanisms are steadily improving.

  Improving the institutional framework of China’s carbon emissions trading market. In July 2021, China officially launched its national carbon emissions trading market, bringing sectors such as power generation, steel, cement, and aluminum smelting under its scope and covering more than 60 percent of the country’s total carbon emissions. As of the end of September 2025, the cumulative trading volume of allowances in the national carbon emissions trading market stood at approximately 728 million tonnes, with a total transaction value of about RMB 49.83 billion.

  New progress has been made in advancing the development of China’s voluntary greenhouse gas emission reduction trading market. In January 2024, China launched a national voluntary greenhouse gas emission reduction trading market and introduced methodologies for six project types, including afforestation carbon sinks. As of the end of October 2025, a total of 31 projects have been registered, with verified emission reductions amounting to 15.04 million tonnes; cumulative transaction volume reached approximately 3.23 million tonnes, and the total transaction value stood at around RMB 270 million.

  Enhancing the vitality of the green certificate and green electricity markets. China’s green certificates now cover all renewable energy generation; as of the end of August 2025, a cumulative total of 6.924 billion green certificates had been issued, with 4.656 billion of them available for trading. In September 2021, China officially launched its green electricity trading market. By the end of August 2025, power trading centers across the country had facilitated green electricity transactions totaling 205 billion kilowatt-hours, up 43.3% year on year.

  VI. Injecting Strong Momentum into Global Climate Governance

  Climate change is a shared challenge facing all of humanity, requiring broad global participation and concerted action. China remains committed to upholding multilateralism and advancing international cooperation, leveraging Chinese vision and practices to steer a new paradigm in global climate governance.

  (1) Deeply engage in and lead global climate governance

  China has taken the lead in advancing global climate governance, actively promoting the signing, entry into force, and implementation of the Paris Agreement. It firmly upholds the objectives, principles, and framework set forth in the United Nations Framework Convention on Climate Change (hereinafter referred to as the “Convention”) and its Paris Agreement, adheres to the principles of equity, common but differentiated responsibilities, and respective capabilities, and works to build a global climate governance system that is fair, equitable, and based on win-win cooperation.

  Actively participating in the formulation of international rules. China has engaged in the global climate negotiation agenda in a proactive and constructive manner, making historic and significant contributions to the adoption, signature, entry into force, and implementation of the Paris Agreement. It has also actively taken part in negotiations and practical efforts under various fora outside the Convention, including the G20, the Intergovernmental Panel on Climate Change, the International Maritime Organization, and the International Civil Aviation Organization, thereby fostering broad consensus.

  China has earnestly implemented the Convention and its Paris Agreement. In line with the requirements of the Paris Agreement, China has demonstrated its utmost efforts in setting its Nationally Determined Contributions and has strengthened its actions to the greatest extent possible, firmly advancing the implementation of these goals. China has also actively fulfilled its reporting obligations, preparing and submitting on schedule its national greenhouse gas inventory, as well as its National Communications on climate change, biennial update reports, and biennial transparency reports, thereby ensuring high‑quality, regular compliance.

  (II) Promoting Green Development in the Joint Construction of the Belt and Road Initiative

  China continues to deepen cooperation with countries participating in the Belt and Road Initiative in areas such as green infrastructure, green energy, and green transportation, making green development a defining feature of high-quality Belt and Road cooperation.

  Strengthen practical cooperation in green energy. China has established energy cooperation platforms with six major regional groups—ASEAN, the Arab League, the African Union, Central and Eastern Europe, the Shanghai Cooperation Organization, and the Asia-Pacific Economic Cooperation—and has forged Belt and Road energy partnerships with 34 countries, while engaging in green energy project collaborations with more than 100 countries and regions. Over the years, China has actively undertaken clean‑energy projects in Belt and Road partner countries, effectively advancing the host nations’ green energy transition and high‑quality development.

  Strengthening the “soft connectivity” of green standards and rules. China continues to deepen the alignment of technical standards for green and low-carbon industries with countries participating in the Belt and Road Initiative, actively promoting mutual recognition of standards related to green electricity, green certificates, and carbon footprints. Efforts are being made to enhance soft connectivity with these countries in areas such as green project screening and environmental and climate information disclosure. China has also launched the Principles for Green Investment under the Belt and Road Initiative, fostering a conducive investment environment.

  Strengthening hard connectivity in green infrastructure. China has engaged in infrastructure cooperation with Belt and Road partner countries in sectors such as power and transportation, integrating low-carbon and environmentally friendly principles throughout the entire lifecycle of projects—from planning and construction to operation. For example, the China–Laos Railway boasts a high level of electrification, cutting carbon emissions by more than 70% compared with conventional diesel locomotives; meanwhile, Ethiopia’s Addis Ababa Ring Road project employs comprehensive renewable energy systems and rainwater‑recycling facilities, effectively reducing energy and resource consumption.

  (III) A Rich Array of Highlights in International Cooperation on Green and Low-Carbon Development

  China is advancing high-level, high-quality international cooperation on green and low-carbon development, upholding the principle of common but differentiated responsibilities, and providing support within its capabilities to countries in the Global South in areas such as finance, technology, and capacity-building.

  Vigorously develop trade in green products. China continues to provide high-quality, efficient, low-carbon energy equipment to the world, particularly to a broad range of developing countries. Products such as wind turbines, photovoltaic systems, and new-energy vehicles are exported to more than 200 countries and regions worldwide, with China supplying 70% of global wind‑energy equipment and 80% of photovoltaic‑module equipment. This has helped drive down the costs of wind and solar power generation by over 60% and 80%, respectively. During the 14th Five-Year Plan period, exports of wind and photovoltaic products have cumulatively enabled other countries to reduce carbon emissions by approximately 4.1 billion tonnes.

  Strengthening cooperation on green technologies. China has adopted an open and inclusive approach to expanding innovation-driven collaboration in the green and low-carbon sectors, implementing the International Science and Technology Innovation Cooperation Plan for Carbon Neutrality, and establishing regional low-carbon international organizations and international platforms for green and low-carbon technology cooperation. As of the end of October 2025, China has established scientific and technological partnerships with more than 160 countries and regions, signed 120 intergovernmental agreements on science and technology cooperation, and joined over 200 international organizations and multilateral mechanisms related to science and technology.

  Deepening South–South cooperation in the field of climate change, China has adopted an integrated approach that combines green principles, green technologies, and clean energy to help developing countries enhance their capacity to address climate change. Since 2016, China has provided and mobilized project funding exceeding RMB 177 billion. As of the end of October 2025, China has signed 55 memoranda of understanding on South–South cooperation on climate change with 43 developing countries. Meanwhile, China has cumulatively implemented more than 300 capacity-building projects.

  Conclusion

  Humanity is a single community, and Earth is our shared home. In the face of climate change, we are a community with a common destiny—sharing both prosperity and adversity—and must strengthen our actions and foster solidarity and cooperation.

  China is a steadfast actor and a major contributor to global climate governance. Over the past five years, guided by the goals of peaking carbon emissions and achieving carbon neutrality, China has coordinated efforts to reduce carbon emissions, curb pollution, expand green spaces, and promote economic growth, accelerating a comprehensive green transformation of its economy and society. By resolutely pursuing a path of civilized development that balances productive growth, prosperous living standards, and a sound ecological environment, China has opened up broad prospects for the sustainable development of the Chinese nation and injected strong momentum into the global response to climate change.

  Looking to the future, China stands ready to work with the international community to lay the foundations of ecological civilization, pursue a path of green development, and join forces in addressing global climate challenges, thereby safeguarding our shared green home and building a cleaner, more beautiful world.