On 27 July 2026, the Ministry of Ecology and Environment (MEE) and 18 other national authorities jointly issued the “National Climate Change Plan for the 15th Five-Year Plan Period”. The plan covers the period 2026–2030 and addresses mitigation, adaptation, carbon markets, product carbon footprints and climate governance.
The plan builds on the objectives of the general 15th Five-Year Plan (FYP) for National Economic and Social Development, adopted in March 2026, and of the State Council’s “Action Plan for Carbon Peaking during the 15th Five-Year Plan Period”, issued earlier this month. While the “Action Plan for Carbon Peaking” focuses mainly on energy and sectoral carbon dioxide (CO2) reductions, the new national climate plan also addresses non-CO2 gases, climate risk and the data systems needed to implement climate policy.
Targets for ETS, carbon footprints and non-CO₂ gases
As stated in the “Action Plan for Carbon Peaking”, by 2030, CO2 emissions per unit of gross domestic product (GDP) are to fall by 17% from 2025 levels. Sectors covered by the national emissions trading system (ETS) are to reduce CO2 emissions per unit of output by around 3%. The plan also aims to establish the main elements of a national product carbon-footprint system, and create the capacity for non-CO2 emission reductions equivalent to 30 million tonnes of CO2.
Consistent with the general 15th FYP, the national climate plan calls for controls on both total emissions and emissions intensity, but it does not set a national cap on absolute emissions. Its main quantitative mitigation targets are therefore expressed as reductions in emissions intensity relative to GDP or industrial output.
Non-CO2 gases gain dedicated measures
The plan sets out measures for methane, nitrous oxide and fluorinated gases. Methane measures cover coal mines, oil fields, agriculture, landfill and wastewater. Nitrous oxide controls focus on chemical production, fertiliser use and waste treatment, while fluorinated gases are to be addressed through alternatives, recovery and destruction. Production and use quotas for hydrofluorocarbons will continue, and a separate control plan is envisaged for sulphur hexafluoride.
New requirements for carbon markets and footprints
In addition to the ETS measures mentioned in the “Action Plan for Carbon Peaking”, the plan also envisages an allowance reserve and market-stabilisation mechanism. Eligible financial institutions may participate under controlled conditions, while digital monitoring and AI-assisted review are intended to strengthen data oversight.
For product carbon footprints, the plan further calls for accounting standards and emissions limits for priority products. It proposes certification pilots, stronger oversight of third-party certifiers and research for establishing a tiered system for managing and disclosing product footprints. Carbon-footprint requirements are also to be incorporated into government procurement, green finance, trade and industrial policy.
Strengthened adaptation measures
Building on the adaptation objectives of the general 15th FYP, this plan introduces more detailed implementation measures, including climate-risk zoning, early-warning systems and improved disaster-prevention and emergency-response mechanisms for extreme weather. Responsibilities are assigned across provincial, municipal and county governments. Cities are encouraged to prepare climate-risk maps, while further measures cover agriculture, public health, infrastructure, ecosystems, coastal areas and climate-sensitive industries. Provinces are also expected to develop adaptation action plans.
Delivery depends on data and local action
Beyond the carbon emissions reporting systems and provincial greenhouse gas inventories set out in the Action Plan for Carbon Peaking, the new plan also calls for updated electricity emission factors and stronger reporting for non-CO2 gases. MEE and the National Development and Reform Commission will coordinate implementation, with progress tracked through ongoing monitoring, a mid-term review and a final evaluation.
Overall, the plan translates many of the climate objectives set out in the 15th FYP into more detailed implementation measures, particularly for non-CO₂ emissions, carbon markets, product carbon footprints and climate adaptation.
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