On 22 and 23 April 2026, the General Office of the Communist Party of China (CPC) Central Committee and the General Office of the State Council jointly issued two policies to strengthen energy conservation, carbon reduction, and the assessment of climate-related targets.
The first document, the “Opinions on Advancing Energy Conservation and Carbon Reduction at a Higher Level and with Higher Quality”, sets out a broad policy framework for improving energy efficiency, reducing carbon emissions, controlling fossil fuel consumption, and accelerating green industrial transformation.
The second document, the “Measures on Comprehensive Evaluation and Assessment for Carbon Peaking and Carbon Neutrality”, establishes a formal assessment system for evaluating how provincial-level Party committees and governments implement China’s carbon peaking and carbon neutrality objectives.
Together, the two documents show how China is translating its long-term targets – peaking carbon emissions before 2030 and achieving carbon neutrality before 2060 – into sectoral measures, indicators, monitoring systems, and accountability mechanisms.
This article focuses on the second document: the comprehensive assessment system for carbon peaking and carbon neutrality.
A formal assessment system from 2026 onward
The policy establishes an annual assessment system for provincial-level governments from 2026 onward. It evaluates progress in implementing carbon peaking, carbon neutrality, and related green transition objectives.
The assessment work is coordinated centrally and implemented by the National Development and Reform Commission together with relevant departments. It applies to provincial-level Party committees and governments, including provinces, autonomous regions, and municipalities.
The system is intended to make climate-related targets more measurable through indicators, reporting, verification, and performance classification.
Shift towards carbon-based target control
A key feature of the policy is the shift from controlling both total energy consumption and energy intensity towards controlling both total carbon emissions and carbon intensity.
The assessment framework includes two types of indicators: control indicators and supporting indicators. Control indicators include total carbon emissions, reduction of carbon intensity, total coal consumption, total oil consumption, and the share of non-fossil energy in overall energy consumption. Supporting indicators cover areas such as energy conservation, industry, urban and rural construction, transport, public institutions, and the carbon emissions trading system.
Targets and provincial implementation
During the 15th Five-Year Plan period, China is expected to formulate a national carbon peaking action plan to support achievement of its 2030 targets, including reducing carbon intensity by more than 65% from 2005 levels and raising the share of non-fossil energy consumption to around 25%.
Provincial governments must prepare their own carbon peaking action plans, including five-year and annual targets. These plans will be reviewed by central authorities and used as the basis for future assessment.
The policy recognises regional differences. Provincial plans are expected to reflect differences in development roles, industrial and energy structures, and resource conditions, while still contributing to national targets.
Assessment procedures and consequences
The assessment process combines provincial self-assessment, departmental evaluation, on-site verification, and third-party checks.
Assessment results are divided into three categories: excellent, qualified, and unqualified. A province may be rated “unqualified” if one or more control indicators are not met, or if three or more supporting indicators are not met.
Assessment outcomes may lead to recognition, warnings, rectification requirements, or accountability measures. Provinces rated “unqualified” must submit written rectification plans within 30 working days after receiving feedback.
The results will also be used as a reference in evaluating provincial leadership teams and relevant officials. Serious failures, data falsification, concealment, or manipulation of assessment materials may lead to disciplinary or accountability procedures.
Data monitoring and verification
The policy places strong emphasis on data quality. Assessment should mainly rely on national statistical data, but may also use carbon market data and departmental statistics, surveys, monitoring, and accounting systems where required.
The National Development and Reform Commission, the Ministry of Ecology and Environment, and the National Bureau of Statistics are tasked with improving carbon emissions accounting systems and strengthening the data basis for assessment.
The policy also requires dynamic monitoring and early-warning systems for key indicators, including carbon emissions, coal consumption, oil consumption, additional electricity demand, and additional clean electricity consumption.
Integration into the broader policy framework
The policy builds on the 2025 Provisional Regulations on the Ecological and Environmental Protection Accountability System for Local Party and Government Leaders, which established a formal ecological accountability system for local officials. The new measures extend this framework by introducing specific, quantitative assessment and tracking mechanisms for carbon emissions, carbon intensity, and fossil fuel consumption.
The framework was further expanded on 7 May 2026, when the CPC Central Committee and the State Council issued the Measures on Assessment of Beautiful China Construction Effectiveness. This policy establishes an annual assessment framework that evaluates provincial authorities on a 100-point scale across five main categories: implementation of leadership responsibility, environmental quality targets (covering air, water, marine ecology, soil, solid waste, and ecological conditions), annual key ecological tasks (including green and low-carbon development), fiscal performance, and public satisfaction.
The two 2026 policies are also directly connected: Article 6 of the May 2026 policy states that assessments relating to green and low-carbon development should be coordinated with the carbon peaking and carbon neutrality assessment system introduced in April.
Together, all three documents indicate closer integration between ecological governance, carbon transition targets, and the evaluation framework for local Party and government officials.
Original policy:
