(UNOFFICIAL TRANSLATION)
China’s Achievements, New Goals and
New Measures for
Nationally Determined Contributions
1
1
This is an unofficial translation. In case of any divergence, the official text in the
Chinese language shall prevail.
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Contents
INTRODUCTION ........................................................................................................................... 1
I. CHINA’S PHILOSOPHY AND GOALS ON ADDRESSING CLIMATE CHANGE ........... 1
(I) China’s Philosophy on Climate Change ............................................................................... 1
(II) China’s New Goals for NDCs ............................................................................................. 2
(III) Challenges Faced by China in Attaining the New Goals ................................................... 2
II. POSITIVE RESULTS ACHIEVED IN THE NDC IMPLEMENTATION ........................... 4
(I) Continuous Improvement in Institutional System on Climate Change ................................ 5
1. Including climate change into economic and social development plans ....................... 5
2. Improving the systems and mechanisms on climate change ......................................... 5
3. Establishing mechanisms for the decomposition and implementation of carbon
emissions control targets ................................................................................................... 6
4. Making progress in carbon emissions trading market ................................................... 6
(II) Significant Progress in the Control of GHG emissions ...................................................... 8
1. Groping for new low-carbon development models ....................................................... 8
2. Initially building a low-carbon energy system .............................................................. 8
3. Expanding system of green and low-carbon industries ............................................... 13
4. Promoting GHG emissions control from urban-rural development and construction
area .................................................................................................................................. 16
5. Expediting the formation of low-carbon transportation system .................................. 18
6. Energy conservation and efficiency improvement led by public institutions .............. 20
7. Increasing carbon sinks ............................................................................................... 20
(III) Proactive Adaptation to Climate Change ......................................................................... 22
1. Issuing and implementing the National Strategy on Climate Change Adaptation ...... 22
2. Taking actions on climate change adaptation in key areas .......................................... 22
3. Advancing actions on climate change adaptation in key fields ................................... 24
4. Improving monitoring, early warning, and disaster prevention and mitigation
capabilities ...................................................................................................................... 26
(IV) Initial Results Achieved in Supporting and Safeguard Systems ...................................... 26
1. Gradual establishment of GHG emissions statistical accounting system .................... 26
2. Increasing funding and policy support ........................................................................ 28
3. Growing technological support ................................................................................... 29
4. Improving mechanisms for social participation .......................................................... 31
III. NEW MEASURES TO IMPLEMENT THE UPDATED NDC GOALS ........................... 33
(I) Advance the Work on Carbon Peak and Carbon Neutrality in a coordinated and orderly
manner ..................................................................................................................................... 33
1. Boost the comprehensive green transition of socio-economic development .............. 33
2. Deepen the action to peak CO
2
emissions ................................................................... 34
3. Advance energy production and consumption revolution ........................................... 34
4. Intensify the dual control of total energy consumption and energy intensity .............. 34
5. Actively promote a green and low-carbon transformation of the industrial sector ..... 35
6. Comprehensively promote green and low-carbon development in the urban rural
construction ..................................................................................................................... 35
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7. Expedite the construction of green and low-carbon transportation system ................. 36
8. Press for emissions reduction and efficiency improvement in agriculture .................. 36
9. Promote high-level environmental protection ............................................................. 37
10. Strengthen the market-based mechanisms including carbon trading ........................ 37
11. Launch demonstrations on carbon emission peak and carbon neutrality .................. 38
12. Keep consolidating and increasing ecosystem carbon sinks ..................................... 38
13. Effectively control non-CO
2
GHG emissions ........................................................... 39
(II) New Policies and New Measures for Proactive Adaptation to Climate Change ............... 40
1. Develop the Adaptation Strategy 2035 ....................................................................... 40
2. Enhancement of resilience of natural ecosystems to the impacts of climate change .. 40
3. Enhance adaptability in the economic and social fields .............................................. 40
4. Build a regional pattern of climate change adaptation ................................................ 41
(III) Strengthen the Supporting and Safeguard Systems ......................................................... 41
IV. PROMOTING INTERNATIONAL COOPERATION ON CLIMATE CHANGE ........... 43
(I) Construct a Equitable, Mutually Beneficial Global Climate Governance System ............. 43
(II) Positive Results in International Cooperation on Climate Change ................................... 44
(III) Further Expansion of International Cooperation ............................................................. 47
Annex I: Hong Kong Special Administrative Region’s Climate Change Target and Progress
........................................................................................................................................................ 49
Annex II: Macao Special Administrative Region’s Climate Change Target and Progress ..... 53
1
INTRODUCTION
Climate change is a grim challenge facing all mankind. Human activities since the industrial
revolution, especially carbon dioxide (CO
2
) emissions from large-scale fossil fuel
consumption of developed countries, have led to a drastic increase in the concentration of
greenhouse gases (GHGs) in the atmosphere. As a result, global climate change has been
aggravated, posing a huge threat to global ecosystem security and socio-economic
development of developing countries. Man and nature form a community of life. Addressing
climate change is a common cause of the human race. It requires the international community
to uphold multilateralism, pursue green and low-carbon development, and jointly build a
community with a shared future for mankind.
China is a developing country with a population up to 1.4 billion. It is facing multiple
challenges including economic development, people’s livelihood improvement, and
environmental protection, coupled with the prominent contradiction of unbalanced and
inadequate development. China is also among countries most severely affected by climate
change. Climate change has exerted persistent impacts on China’s ecological environment
and socio-economic development, and already brought serious threats to its food, water,
ecology, energy, and urban operation security, as well as people’s safety and property.
China attaches high importance to addressing climate change. As President Xi Jinping
reiterated, to address climate change is not at others’ request but on China’s own initiative. It
is what China needs to do to achieve sustainable development at home, as well as to fulfill its
due obligation to build a community with a shared future for mankind. China regards tackling
climate change as an important starting point to push forward high-quality economic
development, high-level environmental protection, and ecological civilization construction. It
has incorporated climate change into the national economic and social development plans, put
equal emphasis on mitigation and adaptation to climate change, and made every effort to
advance all the work by legal, administrative, technical, market, and other means.
In recent years, China has stepped up efforts to promote low-carbon development by
effectively mitigating GHG emissions, proactively enhancing climate resilience, and
continuously improving systems and mechanisms. China has also played a constructive role
in the finalizing of the Paris Agreement and its rapid entry into force, as well as in the
negotiations on the rules for the full and thorough implementation of the Paris Agreement.
Taking a driving seat in international cooperation to respond to climate change, China has
become an important participant, contributor, and torchbearer in the global endeavor for
ecological civilization.
Earth is our shared home, as clearly put by President Xi Jinping, we must never relax our
efforts to tackle climate change. The human race needs a self-revolution to accelerate the
formation of green development patterns and lifestyles, with a view to an ecological
civilization and a beautiful Earth. China will implement a proactive national strategy on
climate change, promote and lead the establishment of a fair and equitable, mutually
beneficial global climate governance system, and advance the construction of a community
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with a shared future for mankind.
On September 22, 2020, President Xi Jinping declared, at the General Debate of the 75th
Session of the United Nations General Assembly, that China would scale up its Nationally
Determined Contributions (NDCs) by adopting more vigorous policies and measures, and
aims to have CO
2
emissions peak before 2030 and achieve carbon neutrality before 2060. On
December 12, 2020, President Xi Jinping announced some further commitments for 2030 at
the Climate Ambition Summit: China will lower its CO
2
emissions per unit of gross domestic
product (GDP) by over 65% from the 2005 level, increase the share of non-fossil fuels in
primary energy consumption to around 25%, increase the forest stock volume by 6 billion m
3
from the 2005 level, and bring its total installed capacity of wind and solar power to over 1.2
billion kW. On April 22, 2021, President Xi Jinping pointed out at the Leaders Summit on
Climate that China has committed to move from carbon peak to carbon neutrality in a much
shorter time span than what many developed countries might take, and that requires
extraordinarily hard efforts from China. The targets of carbon peak and carbon neutrality have
been added to China’s overall plan for ecological conservation. China is now making an
action plan and is already taking strong nationwide actions toward carbon peak. Support is
being given to peaking pioneers from localities, sectors and companies. China will strictly
control coal-fired power generation projects, and strictly limit the increase in coal
consumption over the 14th Five-Year Plan (FYP) period and phase it down in the 15th FYP
period. Moreover, China has decided to accept the Kigali Amendment to the Montreal
Protocol and tighten regulations over non-carbon dioxide emissions. China’s national carbon
market will start trading. On September 21, 2021, at the General Debate of the 76th Session
of the United Nations General Assembly, President Xi Jinping stated that China will strive to
peak carbon dioxide emissions before 2030 and achieve carbon neutrality before 2060. This
requires tremendous hard work, and China will make every effort to meet these goals. China
will step up support for other developing countries in developing green and low-carbon
energy, and will not build new coal-fired power projects abroad.
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era,
China will thoroughly put into practice Xi Jinping Thought on Ecological Civilization, and on
Diplomacy, and unswervingly pursue the new vision of innovative, coordinated, green, open
and shared development. Adhering to a people-centered approach, China will move faster to
cultivate green and low-carbon new drivers, establish a sound economic structure for green,
low-carbon and circular development, accelerate the construction of a clean, low-carbon and
efficient energy sector while ensuring energy security, and encourage simple, moderate, green
and low-carbon ways of life. In addition, China will improve the system for tackling climate
change, tighten the control on GHG emissions, enhance the capacity and level of adaptation
to climate change, and deepen international cooperation on climate change, so as to promote
the full and effective implementation of the United Nations Framework Convention on
Climate Change (UNFCCC) and its Paris Agreement, and make greater efforts and
contributions in the global response to climate change.
In accordance with paragraph 24 of Decision 1/CP.21 of the Conference of the Parties (COP)
to the UNFCCC and the relevant requirements of the Paris Agreement, China hereby presents
China’s Achievements, New Goals and Measures for Nationally Determined Contributions as
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an update of the Enhanced Actions on Climate Change: China’s Intended Nationally
Determined Contributions submitted in 2015, which encompasses policies and measures
adopted and results achieved by China with respect to NDCs, new goals and measures for
enhanced actions on climate change, and active efforts in international cooperation on climate
change.
The content herein related to climate change adaptation also forms China’s Adaptation
Communication under the Paris Agreement.
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I. CHINA’S PHILOSOPHY AND GOALS ON
ADDRESSING CLIMATE CHANGE
As President Xi Jinping reiterated, to address climate change is not at others’ request but on
China’s own initiative. It is what China needs to do to achieve sustainable development at
home, as well as to fulfill its due obligation to build a community with a shared future for
mankind. China will implement a proactive national strategy on climate change. In line with
Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, China has
integrated climate change as an important part of promoting high-quality development,
stepping up development of an ecological civilization, and constructing a community with a
shared future for mankind.
On April 22, 2021, President Xi Jinping systemically elaborated for the first time on the rich
connotation and core meaning of the philosophy of “Man and nature form a community of
life”, which could be highlighted as: we must be committed to harmony between man and
Nature; we must be committed to green development; we must be committed to systemic
governance; we must be committed to a people-centered approach; we must be committed to
multilateralism; and we must be committed to the principle of common but differentiated
responsibilities.
(I) China’s Philosophy on Climate Change
Proactively respond to climate change to promote high-quality economic development.
China has entered a stage of high-quality development. High-quality development is a
prerequisite for maintaining sustained and healthy economic development, and it is also
essential to mitigating the principal contradiction of Chinese society and building a modern
socialist country in all respects. China will base itself on a new stage of development,
implement its new development philosophy in a full, accurate and comprehensive manner,
build a new development pattern and promote high-quality development. Proactively tackling
climate change and promoting green and low-carbon development are important means to
boost high-quality development. This necessitates the establishment of a sound economic
structure for green, low-carbon and circular development, a clean, low-carbon, safe and
efficient energy system, and green and low-carbon ways of life. The structural adjustments in
economy, industry, energy, transportation and consumption will inject a sustained impetus to
high-quality development towards a win-win situation for economic development and
addressing climate change.
Proactively respond to climate change to promote high-level environmental protection.
Lucid waters and lush mountains are invaluable assets. China adheres to the path of
ecological priority and green development, and endeavors to foster a new pattern of
modernization featuring the harmony between man and nature, so as to realize high-level
environmental protection. This is an inevitable requirement not only for overcoming resource
and environmental constraints, but also for meeting the people’s growing needs for a better
life. Tackling climate change is an important aspect of high-level environmental protection
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that has significant synergistic benefits with pollution control and ecological protection. It can
improve environmental quality from the source while enriching the approaches, increasing the
efficiency, and saving the costs of environmental governance.
Proactively respond to climate change to build a community with a shared future for
mankind. As President Xi Jinping highlighted, the global efforts on addressing climate
change can be taken as a mirror for us to reflect on what models to have for future global
governance and how to build a community with a shared future for mankind. Much valuable
inspiration may thus be drawn. In face of the challenge of climate change, no country can stay
immune. China regards addressing climate change as an important aspect of building a
community with a shared future for mankind. Upholding multilateralism as well as the
principles of common but differentiated responsibilities, equity and respective capabilities,
China promotes and leads the establishment of fair and equitable, mutually beneficial global
climate governance system, and safeguards the concerted efforts to deal with global climate
change, in a bid to protect the shared homeland for future generations.
(II) China’s New Goals for NDCs
In June 2015, the Chinese government submitted the Enhanced Actions on Climate Change:
China’s Intended Nationally Determined Contributions. China determined its actions to
achieve the peaking of CO
2
emissions around 2030 and making best efforts to peak early; to
lower CO
2
emissions per unit of GDP by 60% to 65% from the 2005 level; to increase the
share of non-fossil fuels in primary energy consumption to around 20%; to increase the forest
stock volume by around 4.5 billion cubic meters on the 2005 level; and to take adaptation
actions to enhance mechanisms and capacities for effectively defending against climate
change risks. Moreover, China proposed 15 categories of policies and measures for enhanced
actions on climate change. Since then, China has made significant progress in fulfilling its
commitments in an active and pragmatic manner.
China’s updated NDC goals are as follows: aims to have CO
2
emissions peak before 2030
and achieve carbon neutrality before 2060; to lower CO
2
emissions per unit of GDP by
over 65% from the 2005 level, to increase the share of non-fossil fuels in primary energy
consumption to around 25%, to increase the forest stock volume by 6 billion cubic
meters from the 2005 level, and to bring its total installed capacity of wind and solar
power to over 1.2 billion kilowatts by 2030.
(III) Challenges Faced by China in Attaining the New Goals
China is confronted with enormous challenges and difficulties in its NDCs, which calls for
great efforts. As a developing country with a population of 1.4 billion, China is facing
arduous tasks such as economic development, people’s livelihood improvement,
environmental governance, and addressing climate change. It is still and will long remain at
the primary stage of socialism, where development is unbalanced and inadequate, and the
quality and effect of development are not what they should be. China, a country rich in coal
and poor in oil or gas, is currently in a critical period of transforming growth model,
optimizing economic structure, and shifting growth drivers. With the continuation of
industrialization and urbanization, energy demand will keep rising while it is unlikely to
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fundamentally change the coal-dominated energy mix in the short term. The updated NDC
goals represent new major contributions to global climate governance and raise higher
requirements for China’s work on addressing climate change.
At the same time, new problems and new challenges facing global climate governance have
been on the increase in recent years. Unilateralism, protectionism, and anti-globalization have
risen, which exerts adverse effects on global cooperation in climate change. Uncertainties in
the NDC implementation are even higher for developing countries that see a more complex
external environment.
Nevertheless, China’s determination to proactively tackle climate change will never waver.
China remains unchanged in its commitments to address climate change, as well as its resolve
to promote a fair and equitable, mutually beneficial global climate governance system. In the
process of post-pandemic economic recovery, China will take the new NDC goals as an
opportunity to advance economic transformation and upgrading for high-quality development,
and keep on arduous efforts in pursuit of green and low-carbon development. Besides, China
will work with the international community to establish a new philosophy of innovative,
coordinated, green, open, and shared development, seize the historic opportunity of the new
round of technological revolution and industrial transformation to promote the post-pandemic
green recovery of the world economy, and thereby muster a strong force for sustainable
development.
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II. POSITIVE RESULTS ACHIEVED IN THE NDC
IMPLEMENTATION
China has made positive progress in implementing its NDCs, through a series of measures
such as adjusting industrial structure, optimizing energy mix, promoting energy saving and
improving energy efficiency, using market mechanisms, and increasing carbon sinks.
According to preliminary calculations, China’s carbon intensity(CO
2
emission per unit of
GDP)in 2019 was 51.9% of that in 2005 (as shown in Figure 1), a decrease of about 48.1%
from 2005. It outperforms the 2020 goal of cutting CO
2
emissions per unit of GDP by 40–
45% from the 2005 level, and represents a cumulative reduction of about 5.7 billion tons in
CO
2
emissions. This basically reverses the fast growth trend of CO
2
emissions and makes a
huge contribution to the global response to climate change.
Figure 1. Changes in China’s carbon intensity and its share of non-fossil fuels in primary energy
consumption, 2015–2019
(Note: Data on carbon intensity are sourced from the National Center for Climate Change Strategy and
International Cooperation or NCSC, and data on share of non-fossil fuels in primary energy consumption from the
National Bureau of Statistics or NBS.)
In 2019, non-fossil fuels accounted for 15.3% of China’s energy consumption in 2019, a
significant increase of 7.9% over 2005. According to the ninth National Forest Inventory
(2014-2018), China’s forest coverage rate registered 22.96% and forest stock volume reached
17.56 billion m
3
, rendering the largest growth in green space among all countries.
In terms of adapting to climate change, the effective irrigation area of farmland in China
expanded from 55 million hectares in 2005 to 68.3 million hectares in 2019, and the effective
utilization coefficient of agricultural irrigation water increased from 0.45 to 0.56 in this period,
which has enhanced climate resilience of agricultural production. Until June, 2020, more than
30 billion m
3
of water resources have been supplied to northern China via the eastern route
10.0%
11.0%
12.0%
13.0%
14.0%
15.0%
16.0%
40%
45%
50%
55%
60%
65%
2015 2016 2017 2018 2019
Share of non
-fossil fuels
Relative carbon intensity (100% for
the 2005 level)
Share of non-fossil fuels in primary energy consumption (%)
Carbon Intensity（2005=100%）
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and the middle route in Phase I of the South-North Water Diversion Project, improving its
capability of northern China area to cope with the adverse effects of climate change. For key
areas such as coastal provinces, vulnerability assessment, sea-level change impact
investigation, and coastal erosion monitoring and evaluation have been conducted, and coastal
shelterbelts and wave-proof projects have been carried out to enhance the resilience of coastal
zones and coastal ecosystems to climate disasters.
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(I) Continuous Improvement in Institutional System on Climate Change
1. Including climate change into economic and social development plans
The Outline of the 13th Five-Year Plan for the National Economic and Social Development of
the People’s Republic of China unveiled in 2016 included "reducing energy consumption per
unit of GDP by 15% and CO
2
emissions per unit of GDP by 18%" as a binding target. The
Outline of the People’s Republic of China 14th Five-Year Plan for National Economic and
Social Development and Long-Range Objectives for 2035 issued in 2021 also set "reducing
energy consumption per unit of GDP by 13.5% and CO
2
emissions per unit of GDP by 18%"
as a binding target. The two plans both dedicated a chapter to tasks for combating climate
change. In 2016, the Comprehensive Work Plan for Energy Conservation and Emission
Reduction during the during the 13th Five-Year Plan Period and the Work Plan for
Controlling Greenhouse Gas Emissions during the 13th Five-Year Plan Period issued by the
State Council defined the objectives, tasks, requirements, and sector-specific responsibilities
for energy conservation, emission reduction and greenhouse gas emission control. Relevant
plans were then prepared by key sectors of energy use and carbon emissions and provincial
governments to set and implement targets and tasks on climate change. At present, in order to
well execute tasks for CO
2
emission peak and carbon neutrality, China is formulating and
issuing relevant policy documents, including the Opinions on Full, Accurate and
Comprehensive Implementation of New Development Philosophy to Well Execute Tasks for
CO
2
Emission Peak and Carbon Neutrality and the Action Plan for Carbon Dioxide Peaking
before 2030, as well as carbon peak plans and supporting plans of key industries and sectors.
With these, China is structuring a “1+N” policy system for CO
2
emission peak and carbon
neutrality, so as to provide strong support for achieving CO
2
emission peak and carbon
neutrality as scheduled.
2. Improving the systems and mechanisms on climate change
China has been placing great importance on addressing climate change. In recent years, the
National Leading Group on Climate Change, Energy Conservation and Emissions Reduction
was adjusted twice by the State Council to be headed by Premier Li Keqiang. Provincial
leading groups have also been set up in provinces (autonomous regions and municipalities) as
a comprehensive cross-sectoral coordinating body for local work on climate change, energy
conservation and emission reduction. In May 2021, China established the Leading Group on
Carbon Peak and Carbon Neutrality, with Vice Premier Han Zheng as the group leader and an
office set within National Development and Reform Commission to further strengthen
coordination, deployment and promotion of work on carbon peak and carbon neutrality.
2
According to Decision 9/CMA.1, the content related to climate change adaptation herein will be an integral part
of China’s Adaptation Communication.
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Provinces (autonomous regions, municipalities) successively established leading groups on
carbon peak and carbon neutrality to reinforce the coordination of work on CO
2
emission peak
and carbon neutrality. Meanwhile, supporting agencies represented by the National Expert
Committee on Climate Change continued to play advisory roles.
3. Establishing mechanisms for the decomposition and implementation of carbon
emissions control targets
Provincial carbon emissions control targets for the 13th FYP period have been set down by
groups (see Table 1), taking into account factors such as development stage, resource
endowment, strategic positioning and environmental protection. All provinces (autonomous
regions and municipalities) have formulated plans, schemes, or opinions to implement the
targets and tasks of controlling GHG emissions.
Table 1. Provincial carbon emissions control targets for the 13th FYP period
Provinces (autonomous regions, municipalities)
Carbon intensity
reduction target
Beijing, Tianjin, Hebei, Shanghai, Jiangsu, Zhejiang, Shandong, Guangdong
20.5%
Fujian, Jiangxi, Henan, Hubei, Chongqing, Sichuan
19.5%
Shanxi, Liaoning, Jilin, Anhui, Hunan, Guizhou, Yunnan, Shaanxi
18%
Inner Mongolia, Heilongjiang, Guangxi, Gansu, Ningxia
17%
Hainan, Tibet, Qinghai, Xinjiang
12%
In order to meet the above-mentioned targets and tasks, the State has conducted assessments
of provincial governments in fulfilling the responsibility for GHG emissions control, and used
the results as an important basis for the comprehensive evaluation of the main persons in
charge and the leading groups of each province (region, municipality), as well as for the
reward, punishment, appointment, and dismissal of cadres. Most provincial governments have
also carried out such assessments of lower-level administrative regions to strengthen local
government responsibility for target realization and normalized working mechanism for
pressure transmission.
4. Making progress in carbon emissions trading market
The carbon emissions trading pilots have been lunched in seven provinces and cities including
Beijing, covering nearly 3,000 key emission entities in industries such as electric power, steel,
and cement. As of December 31, 2019, a cumulative amount of approximately 368 million
tons of CO
2
emission allowances have been traded on spot in the seven pilot areas, involving
about 8.128 billion yuan.
Pilot Carbon Market: Innovative Policy Instrument to Achieve Carbon Intensity
Reduction Targets
Since 2011, China has launched the carbon emissions trading pilot in Beijing, Tianjin, Shanghai,
Chongqing, Guangdong, Hubei, and Shenzhen, covering key emission industries such as electric
power, steel and cement. A variety of allowance allocation methods have been adopted, such as the
historical emissions method, the benchmark method, while innovative mechanisms have been
7
explored, such as paid allocation, carbon finance, and inclusive carbon. These efforts have provided
effective support for the achievement of carbon intensity reduction targets in the pilot areas and the
whole country.
Overview of China’s carbon emissions trading pilots
Coverage
Allowance allocation
Beijing
Electric power, thermal power, cement,
petrochemicals, other industries, manufacturing and
service, public transportation, etc.
Free
Tianjin
Electric power, thermal power, steel, chemicals,
petrochemicals, oil and gas, building materials,
papermaking, aviation, etc.
Free + Paid
Shanghai
Steel, petrochemical, chemicals, non-ferrous metals,
electric power, building materials, textiles,
papermaking, rubber, chemical fiber, aviation, ports,
airports, railways, businesses, hotels, finance,
automobiles, electronics, medicine, equipment
manufacturing, etc.
Free + Paid
Hubei
Electric power, thermal power, building materials,
cement, ceramic manufacturing, textiles, automobile
manufacturing, chemicals, equipment manufacturing,
nonferrous metals, steel, food and beverage,
petrochemicals, medicine, water production and
supply, papermaking, etc.
Free + Paid
Guangdong
Electric power, steel, petrochemicals, cement,
aviation, papermaking
Free + Paid
Chongqing
Electric power, chemicals, building materials, steel,
nonferrous metals, papermaking
Free
Shenzhen
Manufacturing, electric power, water, gas, public
transportation, airports, docks, etc.
Free + Paid
Elements and characteristics:
Sector coverage: High-emission industries are basically covered, such as electric power,
chemical industry, and steel. The coverage will be expanded on an explorative basis to regional
characteristic industries such as papermaking and ceramics.
Allowance allocation: Paid allocation and free allocation are combined. Depending on the
industries, different allocation methods are adopted, such as the historical emissions method
and the benchmark method.
Market operation: The trading price is mainly maintained in the range of 20 to 70 yuan / ton.
Mechanism innovation: Innovative activities for carbon finance have been carried out, such as
carbon bonds, carbon pledges, carbon futures, etc., to enrich the choices for market players.
The inclusive carbon mechanism has been advanced on a pilot basis, which encourages the
whole society to reduce emissions. Relying on the carbon market, the long-term ecological
compensation mechanism has been explored.
8
Based on the pilot experience, steps have been taken to advance the construction of the
national carbon emissions trading scheme by stages, with the power generation industry as a
breakthrough point. Efforts have been made to promote the legislation on carbon emissions
trading administration, research the national cap setting and allocation plan for carbon
emission allowances, and improve the supporting management systems for GHG emissions
reporting, verification, registration and settlement, as well as trading activities. Work has also
been done in carbon emissions reporting and verification and emissions monitoring plan
formulation, establishment of national carbon emissions registration system and trading
system, and continuous carbon trading capacity building. In July 2021, China officially
launched the national carbon emission trading market. The market took the year 2021 as the
first compliance cycle, included 2162 key emission units of the power generation sector and
covered approximately 4.5 billion tonnes of CO
2
emission, being the largest carbon market
worldwide.
The voluntary GHG emission reductions trading mechanism and its reform have proceeded in
an orderly manner. As of December 31, 2019, nearly 400 voluntary emission reductions
projects have been approved, of which about 90% are new energy and renewable energy
projects. Transactions of voluntary emission reductions have shown a steady upward trend,
with a cumulative trading volume of more than 200 million tons worth over 1.64 billion yuan.
(II) Significant Progress in the Control of GHG emissions
1. Groping for new low-carbon development models
Low-carbon pilots have been carried out in 10 provincial-level units and 77 cities to explore
innovative models and systems for low-carbon development. The pilot regions have made
extensive explorations to strengthen organizational leadership, perfect supporting policies,
establish market mechanisms, improve statistical systems, strengthen evaluation and
assessment, coordinate pilot demonstrations, and conduct cooperation and exchanges, which
brings down their overall carbon intensity faster than the national average. Low-carbon
development models tailored to local conditions and with local characteristics have taken
shape. There are 8 low-carbon pilot cities (towns) and 51 low-carbon pilot industrial parks, as
well as over 400 low-carbon pilot communities across 22 provinces (autonomous regions and
municipalities). In addition, the National Metrology Technical Committee of Carbon
Measurement has been established with approval; the technical specifications for metrology
in carbon measurement have been formulated; and the national carbon measurement pilot has
been kicked off.
2. Initially building a low-carbon energy system
Optimize the energy mix. The Energy Supply and Consumption Revolution Strategy (2016–
2030) released in 2016 set out the goal of "Four Reforms and One Cooperation"
3
for the
energy sector, that is, to actively build a clean, low-carbon, safe and efficient energy system.
3
The goal of "Four Reforms and One Cooperation" refers to one reform to improve the energy consumption
structure by containing unnecessary consumption, one reform to build a more diversified energy supply structure,
one reform to improve energy technologies to upgrade the industry, one reform to optimize the energy system for
faster growth of the energy sector, and and comprehensive cooperation with other countries to realize energy
security in an open environment.
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Low carbon has become a new principle of energy development. The dual control over energy
consumption quantity and intensity and the renewable energy quota system have been
implemented and produced noticeable effects. In 2019, non-fossil fuels accounted for 15.3%
of energy consumption, a sharp rise of 7.9 percentage points compared with 2005. During the
same period, the share of coal fell from 72.4% to 57.7%, indicating significantly smaller
reliance on coal and remarkable results in energy mix optimization. In 2019, non-fossil fuels
contributed to 41.9% of the total installed power generation capacity, and outnumbered fossil
fuels in incremental installed capacity for four years in a row. The installed power generation
capacity of renewable energy amounted to 794 GW, of which wind, solar and biomass power
supported 210 GW, 204 GW, and 23.69 GW respectively (see Figure 2). Photovoltaic poverty
alleviation projects implemented in areas with abundant renewable energy resources but
relatively backward economies have not only boosted the use of renewable energy, but also
improved the living standards of local residents. From 2015 to 2019, China’s annual
investments in renewable energy registered 480.1 billion yuan, 435.4 billion yuan, 522.5
billion yuan, 509.2 billion yuan, and 503.4 billion yuan (see Figure 3).
Promote energy saving and improve energy efficiency. China enforced the dual control of
energy consumption quantity and intensity by advancing energy conservation across the board,
including strengthening target constraint, policy guidance, and energy conservation
management and system building, and deepening energy conservation in key areas. The dual
control has yielded positive results. Support has been given to key energy-saving and
low-carbon technologies to accelerate the advancement of energy-saving technologies.
Energy users are encouraged to adopt advanced and applicable new technologies, equipment
and processes for energy-saving purpose. Energy and resource measurement service
demonstrations have been carried out to push for resource conservation and intensive
utilization. Between 2016 and 2019, China’s energy use intensity dropped by 13.1%, with
an average annual growth of 2.9% in energy use against an average annual economic growth
of 6.6%, indicating that energy efficiency has increased substantially.
Sichuan: A New Model of Green Poverty Alleviation in “Photovoltaic Village”
Figure. Photovoltaic poverty alleviation of Liangshan Prefecture, Sichuan Province
Liangshan, Ganzi and Aba Prefectures in the western part of Sichuan Province are relatively
underdeveloped regions in China, but they are rich in renewable energy resources such as solar power.
In February 2018, when inspecting the hinterland of Daliangshan, General Secretary Xi Jinping
10
Figure 2. China’s installed capacity of non-fossil energy in 2015 and 2019
(Source: National Energy Administration / NEA)
required a solid advancement in poverty alleviation so that the people can live a good life. Through the
implementation of photovoltaic poverty alleviation program, Sichuan Province organically integrates
poverty alleviation and green transformation, and explores new paths for targeted poverty alleviation,
improvement of human settlements, increase in farmers’ income, and new village construction. As of
June 2020, totally 18 concentrated photovoltaic poverty alleviation projects with an installed capacity
of 450 MW have been built, covering more than 20,000 poor households in 17 counties; and 70
grid-connected village-level power stations with an installed capacity of 31 MW have been built for
photovoltaic poverty alleviation, benefiting 3,553 poor households in 20 counties. A cumulative income
of 44.69 million yuan was realized from power generation, and a total of 6,187 public welfare jobs
were created. By means of preferential feed-in prices, reasonable revenue distribution, and innovative
business models for operation and maintenance, the photovoltaic poverty alleviation program has
enabled poor households to increase income and become rich through employment transformation, thus
achieving the win-win of poverty alleviation and ecological protection. (Image source: China News
Service)
Installed capacity (GW)
Ocean energy,
biomass and others
Nuclear
Solar
Wind
Hydro
11
Figure 3. China’s renewable energy investment, 2015–2019
(Source: NEA)
Phase out coal and coal power outdated production capacity, and push forward
energy-saving and environmentally-friendly upgrades of coal power. The structural
reform on the coal supply side has been actively advanced to resolve coal production
overcapacity and boost the clean, efficient, and high-quality development of coal power. From
2016 to 2019, over 30 GW of thermal power capacity were eliminated. Energy-saving
upgrade goals and tasks for coal power have been set out. As of 2019, the average use of
standard coal consumption for power generation by thermal power plants has dropped to
306.4 g/kWh, a decline of 63.6 g/kWh compared with 2005, maintaining the world advanced
level. In 2019, nationwide thermal power reduced 860 million tons of CO
2
emissions
compared with 2005 due to the reduction in coal consumption for power supply.
Qinghai: “Green Power for 15 Days”, A Chinese Example of Clean Energy
Development
Qinghai Province, located in northwest China, has a total area of 722,300 km
2
and a permanent
resident population of 6.0323 million. It is one of the regions with the most abundant clean energy
resources such as solar, hydro, and wind energy in China. In 2018, Qinghai formulated and
implemented the Work Plan for Qinghai Province to Build a National Clean Energy Demonstration
Province (2018-2020), which proposed to foster a national clean energy base with focus on
large-scale new energy development; build a strong province of clean energy supporting industries
underpinned by scientific and technological innovation; create a pioneer area of green energy use
with an aim of 100% clean energy use. From June 9 to 23, 2019, the province relied entirely on
renewable energy supply and used electricity from hydro, solar and wind power generation.
0
1000
2000
3000
4000
5000
6000
2015 2016 2017 2018 2019
Investments (100 million yuan)
Biomass
PV
Wind
Hydro
12
Installed capacity in 2019
(Total: 31.69 GW)
Electricity generated in 2019 (Total: 88.2 TWh)
Source: China Electricity Council / CEC
Figure 4. China’s coal consumption for power generation and CO
2
emission reductions, 2005–
2019
(Source: CEC)
0
50
100
150
200
250
300
350
400
0
1
2
3
4
5
6
7
8
9
10
200520062007200820092010201120122013201420152016201720182019
Power generation/supply coal consumption(g/kwh)
CO
2
emission reduction compare to 2005(100million
tons)
Beijing-Tianjin-Hebei Region: Control over Total Coal Consumption in Key Areas
The Beijing-Tianjin-Hebei region accounts for about one-tenth of both GDP and total energy
consumption of the country. It has common demands for air quality improvement and energy mix
optimization. In 2017, Beijing, Tianjin, and Hebei Province jointly formulated and issued the Action
Plan for Coordinated Energy Development of Beijing-Tianjin-Hebei (2017–2020). It proposed that
Beijing will basically realize the coal-free target in plain areas; Tianjin will basically eliminate bulk
12%
38%
15%
35%
12%
63%
7%
18%
Fossil
Hydro
Wind
PV
power generation coal consumption (g/kwh)
CO
2
emission reduction (10
8
ton)
power supply coal consumption (g/kwh)
13
3. Expanding system of green and low-carbon industries
Optimize industrial structure and vigorously develop low-carbon industries. Efforts have
been made to build green and low-carbon industries into pillar industries, such as new energy
vehicle (NEV), new energy, energy conservation and environmental protection, while
vigorously promoting the rapid development of strategic emerging industries such as
information technology and high-end equipment. In 2019, service industry accounted for
54.3% of China’s GDP, 3.5 percentage points higher than the 2015 level, and 15.7 percentage
points more than that of the secondary industry. High-tech manufacturing and equipment
manufacturing contributed to 14.4% and 32.5% of the added value of above-scale industries
respectively, an increase of 2.6 and 0.7 percentage points from 2015 level. From 2016
onwards, China has imposed strict control over the expansion of high energy-consuming
industries and phased out backward production capacity in accordance with laws and
regulations to speed up overcapacity elimination. At the end of 2018, over 150 million tons of
steel overcapacity was removed, exceeded the goal of the 13th FYP plan two years ahead of
schedule. In 2019, China began to implement the Guiding Catalogue of Green Industries
(2019 Edition) to direct policies and limited capital to industries that are most critical to
promoting green development.
Promote low-carbon industrial development and effectively control emissions from key
industries. The low-carbon benchmark and lead plan has been implemented, in which
companies from key industries are encouraged to carry out carbon emission benchmarking
activities. Management has been tightened for energy consumption and carbon emission
targets in key industries such as electricity, steel, building materials, and chemicals, so as to
drive green production and to promote green industry upgrades. Special energy-saving
supervision for major national industries have been organized and implemented. During the
13th FYP period, supervision has been conducted at more than 23,000
high-energy-consuming enterprises, covering industries such as steel, cement, flat glass, and
electrolytic aluminum, promoting their reasonable energy-use in compliance with laws and
regulations. Industrial energy-saving diagnostic service actions have been carried out with
more than 400 organizations providing the services to 14,000 industrial enterprises. Measures
coal use for heat, except for the use of anthracite briquette in mountainous areas; and Hebei basically
realize zero bulk coal use for heat in plain and rural areas. The coal consumption in
Beijing-Tianjin-Hebei will be controlled at around 300 million tons. The three places have steadily
promoted positive progress in related work.
Table. Coal use in the Beijing-Tianjin-Hebei region (10,000 tons)
Province
2015
2018
Total decline rate
(%)
Beijing
1165
276
76.3
Tianjin
4539
3833
15.6
Hebei
31701
29594
6.6
Total
37405
33703
9.9
(Source: NBS)
14
have been taken to accelerate the promotion and application of high-efficiency energy-saving
equipment products, organize the implementation of energy efficiency improvement actions
for general equipment such as motors and transformers, publish the National Recommended
Catalog of Industrial Energy-saving Technology and Equipment and the Product Catalog of
“Energy Efficiency Star” to recommend more than a thousand advanced energy-saving
equipment and products to the society. According to preliminary calculations, CO
2
emission
per unit of industrial added value in 2019 was reduced by about 18% compared to 2015.
Control GHG emissions from industrial processes and build a low-carbon industrial
system. Measures have been taken to cut GHG emissions of industrial processes, including
substituting raw materials, improving production processes, and optimizing equipment use. In
Guangdong: Develop Strategic Emerging Industries and Cultivate New Drivers of
Green, Low-carbon, and Circular Development
The 13th Five-Year Plan for National Development of Strategic Emerging Industries set out the goal
that the added value of strategic emerging industries will represent 15% of GDP by 2020. Guangdong
Province has a relatively developed economy with advantageous industrial clusters, and therefore, it
has set a higher goal of 16% for 2020. In 2018, the operating income of service industry above the
designated size has increased by 14.0%, while the operating income of strategic emerging service
industry increased by 19.6%.
Table. 2020 development goals for strategic emerging industries
New
generation
information
technology
industry
(trillion
yuan)
High-end
equipment and
new materials
industries
(trillion yuan)
Biological
industry
(trillion yuan)
Green and
low-carbon
industries
(trillion yuan)
Digital and
creative
industries
(trillion yuan)
Nationwide
12
12
8-10
10
8
Guangdong
3
1
0.6
0.8
1
Percentage
of
Guangdong
(%)
25
8
6-8
8
13
Source: The 13th Five-Year Plan for National Development of Strategic Emerging Industries and the 13th
Five-Year Plan for the Development of Strategic Emerging Industries in Guangdong Province.
15
addition to strict control over cement clinker production capacity, new dry process has been
used in 95% clinker production, and low-temperature waste heat to power generation
technology has been widely adopted. The short-process technology of electric furnace
steelmaking–hot rolling is encouraged; the short-process technology for non-ferrous metal
smelting is disseminated; and the production processes of calcium carbide and lime are
improved to curtail CO
2
emissions during the production process. The circular transformation
of industrial parks has been intensified to increase the recycling and utilization of renewable
resources, raise the rate of resource utilization and reduce CO
2
emissions throughout the life
cycle of resources. Pilot projects for the recycling of NEV power batteries have been
implemented in the Beijing-Tianjin-Hebei region and other areas, speeding up the
construction of a power battery recycling system, improving the comprehensive utilization of
power batteries, and promoting GHG reductions in the production and use of power batteries.
As of June 2020, cumulative HFC-23 emission reductions of 65,300 tons have been achieved
with the support of fiscal funds, equivalent to 764 million tons of CO
2
emissions.
Curb GHG emissions in the agricultural sector and improve the quality of agricultural
production. Since 2015, China has accelerated the waste-to-resource utilization in livestock
and poultry breeding, and begun to replace chemical fertilizers with organic fertilizers for
smaller but more efficient use of chemical fertilizers and pesticides, in order to reduce
agricultural GHG emissions and improve soil carbon sequestration, with a view to green and
low-carbon agricultural development. As of 2019, the fertilizer utilization rate for three major
food crops including rice, corn and wheat was 39.2%, and the pesticide utilization rate was
39.8%, increases of 4 and 3.2 percentage points respectively compared with 2015. Soil testing
for formulated fertilization has been used in an area of 1.93 billion mu (about 128.67 million
hectares), presenting a technical coverage rate of 89.3%. Green prevention and control
technology has been applied to over 800 million mu of main crops (about 53.3 million
hectares). As of 2019, the national comprehensive utilization rate of livestock and poultry
manure stood at 75%; the installation rate of manure treatment facilities in large-scale farms
climbed to 93%; and the annual comprehensive utilization rate of straw came to 86%.
Conch Group: Full Implementation of Pure Low-temperature Waste Heat Power
Generation in Cement Production
The waste heat and residual pressure utilization project is
one of the ten key energy-saving projects implemented in
China. As of June 2020, Conch Group’s clinker production
lines are all equipped with waste heat power generation
systems. With a total installed capacity of 1,225 MW, the
annual cumulative production of electricity hits
about 8.6 billion kWh. Based on the same caliber of
thermal power generation, it contributes to an annual
reduction of 8.28 million tons of CO
2
emissions.
16
4. Promoting GHG emissions control from urban-rural development and
construction area
Optimize the territorial space development and protection pattern. Territorial space
planning should be based on the evaluation of the carrying capacity of resources and the
environment and the suitability of territorial space development. It necessitates scientific
research and judgment for proactively coping with challenges brought by climate change.
Territorial space protection and development for the new era has been planned in a holistic
approach. Guidance and impetus has been given to new urbanization in various areas, in order
to build energy-efficient and low-carbon cities. The rural revitalization strategy has been
implemented, which leads rural revitalization with green development to promote intensive
and efficient production space, livable and proper living space, and beautiful and unspoiled
ecological space.
Build energy-efficient and low-carbon urban infrastructure. Efforts have been made to
promote innovative planning concepts and improve planning methods in various regions, and
to integrate such concepts as people orientation, respect for nature, historical inheritance, and
green and low-carbon development into the entire urban planning process. Since 2015, a total
of 58 pilot cities of ecological restoration and urban remediation have been identified to
improve their sustainability and livability. In 2019, the green space rate and green coverage
rate of urban built-up areas across the country registered 37.63% and 41.51% respectively,
and the urban park and green space per capita reached 14.36 m
2
. Urban ecological and human
settlements have been continuously improved.
Sichuan: Actively Develop Rural Biogas Projects
Sichuan, as a leading top livestock and poultry producer in China, is among provinces
most suitable for rural biogas development. In recent years, Sichuan has taken rural biogas
development as an important starting point to promote the transformation and upgrading
of the livestock industry for green development and to respond to climate change in the
agricultural sector. It encourages circular agricultural development that combines planting
and breeding by pushing for livestock manure-to-resource utilization. Making active
use of the voluntary GHG emission reductions trading mechanism, Sichuan has carried
out 11 rural household biogas voluntary emission reduction projects, of which two have
been registered with average annual emission reductions of 104,000 tons.
Table. Rural household biogas voluntary emission reduction projects in Sichuan
Province
Project progress
Project quantity
Average annual emission
reductions (tons)
Trading volume
(tons)
Certified emission
reductions
2
104035
3500
Registered projects
9
459663
-
17
Promote green buildings. Gradually improve the standard system, with revision on the
national standard "green building evaluation standards" and innovatively reconstruction on
green building evaluation standards system , which inspires 25 provinces and cities to issue
local standards. More than 10 provinces and cities have issued green building design
standards to promote green buildings in new buildings. Legislative work in the field of green
buildings has been advanced in an orderly manner. Six provinces (regions), namely Hebei,
Liaoning, Jiangsu, Zhejiang, Ningxia, and Inner Mongolia, have promulgated local green
building regulations, while Jiangxi, Qinghai, and Shandong have issued government
regulations on green buildings. More policy support has been given to green building
development as some provinces and cities have introduced preferential fiscal and financial
policies. Some carried out pilot projects to promote green finance in support of green building
development. In 2015, the central government allocated 875 million yuan in subsidies to
support energy-efficient building demonstrations through the renovation of rural dilapidated
houses for 350,000 poor farmers in Northeast, Northwest, and North China, including walls,
roofs, doors, windows, and other envelopes. As of the end of 2019, green buildings
represented 65% of the newly constructed urban civil buildings; the cumulative area of urban
green buildings exceeded 5 billion m
2
; and over 20,000 projects were rated green buildings.
Improve the energy efficiency of end-use energy products. Since 2015, steady steps have
been taken to promote the energy efficiency standard system and energy efficiency labeling
system for various household appliances, with the product coverage gradually expanding
from household appliances to lighting appliances and commercial products, etc.
Energy-efficient products have been promoted and applied through government procurement
of energy-efficient products, project of energy-efficient product benefiting the people, and
energy efficiency leader system, which greatly raises the overall energy efficiency of end-use
energy products.
Hebei: Leading the Energy Efficiency Design of Ultra-Low-Energy Passive Public
Buildings
The Scientific Research Office Building of Hebei Building Technology Research Center is China’s first
ultra-low-energy office building under Sino-German technical cooperation. It was completed and put
into use in 2015. In accordance with the standard of a 50% reduction in energy use for public buildings
implemented at that time, the annual energy savings in heating and cooling can reach 224 tons of
standard coal, equivalent to CO
2
emission reductions of about 587 tons. The project provides important
technical support for Hebei’s compilation of Energy Efficiency Design Standards for Ultra-Low-Energy
Passive Public Buildings. It has been labeled three stars under China’s green building rating system and
certified by the German Energy Agency.
The LieChe New Town Project in Gaobeidian has a planned floor area of 1.2 million m
2
, including an
ultra-low-energy area of 820,000 m
2
. In accordance with the standards of a 75% reduction in energy
use for residential buildings and a 65% reduction for public buildings implemented at that time, the
energy savings in winter heating are 2,456 tons of standard coal; the energy savings in summer cooling
are 6.87 GWh, equivalent to 1,754 tons of standard coal. This contributes to annual CO
2
and sulfur
dioxide (SO
2
) emission reductions of 11,031 tons and 36 tons respectively.
18
Speed up clean heating in cold areas of northern China. Provinces (autonomous regions
and municipalities directly under the central government) in the northern heating regions have
introduced targeted clean heating programs to improve the heating energy structure, increase
the insulation level of the envelopes of new urban and rural buildings, and enhance the
insulation effect of rural buildings. In the 2018 heating season, the overall energy use
intensity of urban heating in the northern region dropped to 14.6 kg of standard coal / m2
from 17 kg of standard coal / m
2
in 2015. By 2019, the clean heating rate in the northern
region reached around 55% as 140 million tons of bulk coal (including coal for low-efficiency
small boilers) was replaced.
5. Expediting the formation of low-carbon transportation system
Improve green transportation system and standards. System guarantees have been refined
for energy conservation and environmental protection, GHG emissions control, and ecological
progress in the transportation sector. The Green Transportation Standard System (2016) was
released, which contains 221 standards covering energy conservation and carbon reduction,
ecological protection, pollution control, resource recycling, testing and assessment, and
supervision.
Foster urban low-carbon transportation system. As of 2019, urban rail transit lines with an
operating mileage of 6,100 km have been open in 41 cities. Urban public transportation has
steadily increased the mobility sharing rate while providing an increasing level of comfort.
Urban slow traffic system has also developed rapidly. Online bicycle rental services have
been available in more than 360 cities, with more than 300 million registered users. Vigorous
efforts have been made to promote clean and low-carbon urban traffic. By the end of 2019,
the number of new energy buses in the country has exceeded 400,000. All buses in Shenzhen
and taxis in Taiyuan have adopted pure electric vehicles.
Optimize the transportation structure. Adjustment of the transportation structure by
reducing road transportation and increasing rail and water transportation is an important
measure for China to achieve low-carbon development of the transportation. Focusing on
road-to-rail and road-to-water bulk cargo transportation, the comprehensive transportation
network has been continuously improved, and transportation organization has been effectively
enhanced, which brings down the volume of road transportation. In 2016–2019, rail freight
volume increased at an average annual rate of 10.2%, rising from 3.332 billion tons to 4.389
billion tons, while the average annual growth rate of road freight volume was 8.1% over the
same period.
19
Shenzhen: China’s First City of Pure Electric Buses
As of the end of 2019, there were 16,432 pure
electric buses in Shenzhen. Realizing
pure electrification of buses, Shenzhen is among
cities with the largest and widest use of pure
electric buses. Compared with traditional diesel
buses, pure electric buses in Shenzhen save
energy by 72.9%. Their annual energy savings
total about 366,000 tons of standard coal,
equivalent to 345,000 tons of fuels.
With the rapid promotion of full electrification, the fuel consumption of public transportation in
Shenzhen is curtailed by more than 95%, reducing its dependence on fossil fuels. This also optimizes
the energy structure of public transportation and significantly improves the air quality and acoustic
environment.
Accelerate the replacement and optimization of transportation fuels. Emissions standards
and oil standards for vehicles have been updated in a faster manner. The Limits and
Measurement Methods for Emissions from Light-duty Vehicles (Phase VI) and the Limits and
Measurement Methods for Emissions from Heavy-duty Diesel Vehicles (Phase VI) have been
released in succession since 2016. The civil aviation sector has accelerated the construction of
replacement facilities for auxiliary power units, as well as the NEV application. As of 2019,
airports nationwide have been equipped with 2,200 sets of 400 Hz power systems and about
2,700 electric vehicles, and realized photovoltaic power generation of more than 20 GWh.
The water transportation sector has actively encouraged the use of shore power for ships
calling at ports. As of the end of 2019, more than 7000 berths have been covered by shore
power facilities across the country, and over 290 LNG-powered ships and over 20 LNG filling
stations have been built. Besides, green transportation pilots have been carried out, including
4 provinces, 27 cities, 11 ports, and 20 roads. They have generated energy savings of about
630,000 tons of standard coal, equivalent to about 2.13 million tons of standard oil.
Shared Transportation Boosts Low-carbon Travel
In recent years, shared transportation has facilitated the travel of residents and reduced carbon
emissions of urban transportation owning to its smart, convenient and green characteristics. More and
more people in China choose green shared transportation. Using the methodologies for emission
reductions of car-hailing services recommended by the Committee of Experts on Emission Reduction
Methodologies for Clean Development Mechanism under the Kyoto Protocol, the 2018–2019 data
indicate that a single shared transportation platform can generate more than 100 million tons of CO
2
emission reductions. At the same time, shared transportation has produced important social benefits by
bringing flexible work and income opportunities to car owners and drivers. It is conservatively
estimated that 10 billion passenger-times are transported in this model each year.
20
Encourage NEV development. NEV industry development has been boosted with issuing
the parallel management measures for average fuel consumption and new energy vehicle
points of passenger vehicle enterprises and establishing a mechanism that traditional fuel
vehicle manufacturers repay NEV manufacturers. The NEV industry has entered the growth
period from the introduction period, ranking first in the world in both production and sales. In
2019, there were 3.81 million NEVs in China, an increase of 46.05% over the previous year.
Besides, guidance has been provided to help the automotive industry improve energy-saving
technology.
Figure 5. China’s NEV ownership, 2015–2018
6. Energy conservation and efficiency improvement led by public institutions
Totally 1.67 million public institutions such as party and government agencies, hospitals,
schools, and venues have taken the lead in energy conservation and emissions reduction.
Green life activities have been vigorously carried out, such as conservation-oriented agencies,
green travel, green buildings, and green schools. Conservation-oriented models have been
created and energy efficiency leaders selected to give further play to the demonstration and
leading role of public institutions. A raft of energy efficiency standards for public institutions
have been introduced to promote energy use quota management. A relatively complete
management system has gradually formed, covering organization and management,
technology promotion, accounting and monitoring, supervision and evaluation. They offer
energy conservation and emissions reduction solutions for public institutions in the whole
society. In 2019, the comprehensive energy use per capita of public institutions nationwide
was 333.81 kg of standard coal; the energy use per unit of floor area was 18.89 kg of standard
coal; and the water use per capita was 22.29 tons, down by 10.0%, 8.1%, and 12.1%
respectively compared with 2015.
7. Increasing carbon sinks
Step up the cultivation of forest and grass resources to effectively increase carbon sinks.
The comparison of the results of the Eighth (2009–2013) and Ninth (2014–2018) National
Forest Resources Inventories indicates that China’s forest stock volume increased by 2.423
-
50
100
150
200
250
300
2015 2016 2017 2018
Numbers (10,000)
纯电动汽车
新能源汽车
Number
(10,000)
Pure electric vehicles
NEVs
21
billion m
3
and forest coverage rate increased from 21.63% to 22.96%. Between 2016 and
2019, trees have been planted in a cumulative area of 444 million mu (about 29.6 million
hectares). Projects for national forest tending and forest quality precision improvement have
been implemented; and forest management model bases and sustainable management pilots
have been launched. From 2016 to 2019, forest quality was steadily improved as forest
tending was completed in an area of 518 million mu (about 34.53 million hectares). Efforts
have also been intensified in the development of reserve forests and forestry biomass energy.
As of 2018, a total of 42.154 million mu (2.81026 million hectares) of reserve forests have
been built nationwide.
Saihanba: China’s Green Miracle
Figure. Before and after the implementation of Saihanba Afforestation Project
1n 1962, the first group of afforestation teams entered Saihanba, unveiling the legend of afforestation
through three generations. Saihanba has been altered from inaccessible wasteland to a "natural oxygen
bar" with a forest coverage rate of 80%, as well as 1.12 million mu (about 74,667 hectares) of
woodland and 200,000 mu (about 13,333 hectare) of meadow. Forest ecosystems in Saihanba
contribute to water conservation, water purification (137 million m
3
), carbon sequestration
(747,000 tons), and oxygen release (545,000 tons) every year. President Xi Jinping stated that we must
adhere to the concept of green development, carry forward the spirit of Saihanba, and persevere in
advancing the construction of ecological civilization. Through work from generation to generation, we
will strive to form a new pattern of harmonious development between man and nature, and create a
more beautiful environment with blue skies, lush mountains, and lucid waters for future
generations. (Image source: China News Service)
Strengthen all-round resource protection and strive to reduce carbon emissions. In 2016,
an end was put to commercial harvesting in natural forests across the board, basically meeting
the goal of "trying to take all natural forests under protection". As of the end of 2019, the
national area of natural forests expanded to 140 million hectares and the stock volume
increased to 14.108 billion m
3
. The National Forest Fire Prevention Plan (2016–2025) was
issued and implemented to strengthen forest disaster prevention and control. From 2016 to
2019, there was a continuous sharp decline in the average annual number of forest fires and
the affected area and associated casualties. Compared with the 12th FYP period, the annual
average number of forest fires was reduced by 36%, and the disaster rate of major forestry
pests was limited to below 0.45%.
22
(III) Proactive Adaptation to Climate Change
4
1. Issuing and implementing the National Strategy on Climate Change Adaptation
China has issued the National Strategy on Climate Change Adaptation. The strategy laid out
clear guiding thoughts and principles for climate change adaptation from 2014 to 2020, as a
guidance for various policies and institutional arrangements; set out specific adaptation goals
such as significant enhancement of adaptation capacity, full implementation of key tasks, and
basic formation of regional framework for adaptation; identified key tasks in seven areas,
including infrastructure, agriculture, water resources, coastal regions and coastal waters,
forests and other ecosystems, human health, tourism and other industries; proposed adaptation
tasks with respective emphasis for urbanized areas, agricultural development areas, and
ecological security areas. Pursuant to this strategy, departments concerned and local provinces
and cities have carried out a considerable amount of comprehensive and systematic work,
adjusted and improved relevant policies and institutional arrangements, and proactively
implemented policies and actions on climate change adaptation, which yields positive results.
2. Taking actions on climate change adaptation in key areas
Cities. In 2016, China formulated an action plan for climate change adaptation in cities. In
2017, the climate-resilient city pilot was launched in 28 cities. In each pilot area, a leading
group for building climate-resilient cities was established, and a plan for urban adaptation to
climate change was prepared. Adaptation actions that seek advantages and avoid
disadvantages have been explored and implemented, including taking into account climate
change in urban planning; improving urban monitoring, early warning and emergency
response capabilities; carrying out adaptation actions in key areas such as infrastructure, water
resources, natural ecosystems, and public health; exploring innovative systems and
mechanisms for climate change adaptation, and strengthening international exchanges and
cooperation in climate change adaptation. These efforts have produced positive results.
Lishui: Building a Disaster Prevention, Mitigation and Relief System for the New Era
Lishui in Zhejiang Province is a typical mountainous city where mountains accounts for 90% of the
area and waters and croplands 5% each. It is prone to regional meteorological disasters such as
typhoons, rainstorms, and floods. Lishui has set up the Municipal Emergency Management
Headquarters and City Management Command Center to assist the Municipal Emergency Management
Bureau in undertaking the city brain construction plan, promoting the digital transformation of disaster
prevention and relief and emergency management, and establishing a unified emergency response
command platform that covers geological disasters, floods and droughts. In 2020, Lishui issued China’s
first local standard for natural disaster emergency command system, and formulated the layout plan for
disaster avoidance and resettlement sites, and achieved the full coverage of natural disasters in public
liability insurance. The city has also actively provided ecological meteorological services, strengthened
climate disaster early warning and prediction capabilities, and initially fostered an ecological
meteorological observation data collection network that integrates environmental protection, forestry,
tourism, and electric power.
4
According to Decision 9/CMA.1, the content related to climate change adaptation herein will be an integral part
of China’s Adaptation Communication.
23
Coastal erosion areas. The China Sea Level Bulletin and the China Marine Disaster Bulletin
are published every year. Seawall heightening and reinforcement projects have been
implemented. Protection standards for coastal cities and major engineering facilities have
been raised, while strategies for protecting coastal areas against sea level rise have been
strengthened. Since 2016, the Blue Bay Remediation Action has been carried out in coastal
cities, improving marine ecological functions. In 2017, warning tide levels in 11 coastal
provinces were re-verified, and the technical methodology for risk assessment and zoning was
developed for five risks, i.e. storm surges, tsunamis, sea ice, ocean waves, and sea level rise,
which improve the level of scientific protection of coastal areas against marine disasters. In
2020, China completed the First Scientific Assessment Report on the Ocean and Climate
Change, which assessed the changes in China’s marine environment and the basic situation of
sea level, and predicted the future trends of ocean and climate change.
Qinghai-Tibet Plateau. Observation stations for plateau glaciers and frozen soils have been
created, which also conducts the monitoring and forecasting of dam-burst floods in ice lakes.
The system of nature reserves such as the Sanjiangyuan National Park has been strengthened
to comprehensively protect the ecosystems of mountains, waters, forests, farmlands, lakes,
grasslands, sands and ice. Grassland protection and development projects such as returning
pasture to grassland have been implemented, effectively alleviating the degradation of alpine
grassland. Integrated demonstration of ecological restoration technology system has been
carried out, including ecological re-sowing and photovoltaic sprinkling of degraded grassland
for adapting to climate change. As it is effective to mitigate the adverse effects of seasonal
droughts, the practice was cited as a successful case of climate change adaptation, ecological
restoration of alpine grasslands, and ecological function improvement in the Fifth Assessment
Report of the Intergovernmental Panel on Climate Change (IPCC). To cope with the impacts
of climate change on the Qinghai-Tibet Railway and other major projects, ground temperature
monitoring was added along the Qinghai-Tibet Railway. Based on estimated future annual and
seasonal warming characteristics of the Qinghai-Tibet Plateau and along the Qinghai-Tibet
Railway, a variety of structural adaptation measures have been adopted to reduce the
degradation of frozen soil and ensure the stability of frozen soil roadbed.
Other key ecological areas. Highlighting vulnerability, sensitivity and main ecological
functions, work has been planned for climate adaptation and ecological restoration in
ecologically vulnerable areas, such as northwest agro-pastoral transition zone, southwest
rocky desertification area, Yangtze River Basin, Yellow River Basin, and other major river
and lake basins. Key areas with differences and their ecological vulnerabilities have been
actively identified, taking into account the relative integrity of administrative regions and the
relative consistency of climate change characteristics. Differentiated measures for ecological
protection, management and restoration have been taken, such as comprehensive soil erosion
management, vegetation restoration, land use adjustment, and natural forest protection plan,
in order to optimize the adaptive allocation of water and soil resources, improve
environmental carrying capacity, enhance ecosystem stability in ecologically vulnerable areas,
and improve climate resilience in a coordinated manner.
24
3. Advancing actions on climate change adaptation in key fields
Agriculture. Great efforts have been made to promote research on agro-meteorological
disaster prevention technologies and advance measures such as agricultural climate zoning
and agricultural irrigation. More than 60 new technologies for agro-meteorological adaptation
have been developed and promoted, such as disaster prevention and mitigation and production
increase, and climate resource utilization. Through national key research and development
plans, adaptation strategies for stable production have been explored, including sowing date
adjustment, population optimization, and water and nitrogen migration. Crop varieties which
are resistant to heat, drought, low light and low temperature are selected. Totally 3,564
agricultural climate zones at provincial, city and county levels and 5,303 agro-meteorological
disaster risk zones have been delineated, which lays an important foundation for optimizing
the agricultural structure and reducing losses from agricultural disasters. Effective irrigation
area was enlarged from 55 million hectares in 2005 to 68.3 million hectares in 2019.
Forestry and grassland. The Action Plan for Adaptation to Climate Change in the Forestry
Sector (2016–2020) required more efforts in monitoring and early warning, risk management,
and team building to comprehensively improve climate resilience of the forestry sector. A
wildlife refuge system with national parks as the mainstay has been established. The
protection and management of national public welfare forests, natural forests, and other types
of forests has been strengthened, by strictly implementing forest land conservation and
utilization plans at national, provincial and county levels and upgrading forest land quota
management. The central government has arranged forestry funds to support the protection of
natural forest resources, new-round return of farmland to forest and grassland, cultivation of
forest resources, and compensations and subsidies for ecological benefits of forested wetland.
In view of climate characteristics and grassland degradation in different regions, major
grassland protection and restoration projects have been initiated, such as returning pasture to
grassland, Beijing-Tianjin sandstorm source control, and artificial grass planting on degraded
grassland, in an effort to speed up the restoration of degraded grassland vegetation and
improve ecological functions and productivity of grassland. In severely overloaded and
overgrazed areas, grazing ban through enclosure has been tightened, and combined with
measures such as grass seed replanting, soil loosening and fertilizing, and rodent and pest
control, to facilitate grassland recovery and vegetation restoration. Grassland that has been
cultivated is returned to farmland in a planned way. The systems for grassland management
and protection, grazing ban and suspension, and grass-livestock balance have been
implemented to reduce the grazing pressure on natural grassland. In 2019, the national
grassland comprehensive vegetation coverage reached 56%; the total fresh-grass output of
natural grasslands surpassed 1.1 billion tons; and the average livestock overload rate of key
natural grasslands fell to 10.1%. The ecological functions of grassland, such as wind
prevention and sand fixation, soil and water conservation, carbon fixation and oxygen release,
and climate regulation, have been restored and strengthened, and the ecological environment
in some grassland areas has been significantly improved.
Water resources. The flood prevention and disaster reduction system has been perfected to
enhance capability to guard against and cope with floods. Efforts have been made to speed up
major river backbone projects, while accelerating the work to make up for weak links in flood
25
control of small and medium-sized rivers. The responsibility system for flood control and
drought relief has been improved, of which the core is that the administrative chief assumes
full responsibility. A flood control and disaster mitigation system that combines structural
measures such as reservoirs, dikes and flood storage and detention areas with non-structural
measures has been basically formed. In a stronger move to build a water-saving society, the
most stringent water resource management system has been put into effect, which contains
three red lines for water use, water efficiency, and water pollution in water functional zones.
Water resource storage and allocation projects have been implemented in river basins or
regions. Regarding the construction of national water-saving cities, a total of 96 cities across
the country have been recognized, whose annual water savings are about 5 billion m
3
,
equivalent to 10% of their annual water supply. Aquatic ecological protection and rural
hydropower green development have made progress. River chief and lake chief systems have
been fully implemented, and special action has been carried out to clear four behaviors
(arbitrary occupation, mining, heap and construction), so that the national water environment
and ecology and waterfront management and protection have been significantly improved. In
2015, 30 pilot sponge cities were created, and to date, about 33,000 sponge city projects have
been completed nationwide.
Public health. The impacts of climate change on public health have been assessed, which
takes into account the demand of traditional climate services and various industries including
health for responding to climate change. The National Health Commission and departments
concerned have compiled technical guidelines related to climate change and public health,
such as guidelines for health protection in air pollution and environmental health emergencies
in natural disasters, and 12 health and epidemic prevention guidelines and programs,
including the investigation and control of infectious diseases in flood-stricken areas. They
have also organized a series of research projects related to health risk assessment and
adaptation to climate change, and formulated technical guidelines for health risk assessment
of climate change.
Infrastructure. Vigorous urban renewal projects have been launched, such as the
transformation of old and dilapidated urban communities. Urban construction methods have
been further changed by incorporating the transformation and upgrade of water supply,
drainage and other pipe networks into urban renewal, and improving the green space of
housing and surrounding areas. Prefabricated buildings have been promoted. In 2019,
nationwide 420 million m
2
of prefabricated buildings were newly constructed, accounting for
13.4% of the newly added floor area. Urban greenways have effectively alleviated the urban
heat island effect and related climate risks. As of 2018, a total of 56,000 km of greenways
have been built across the country. On the basis of analyzing the impacts and requirements of
climate change on highway infrastructure construction, targeted measures are integrated in the
design and construction process to improve project safety and durability. While strengthening
the maintenance of transportation facilities, design and construction standards are
continuously raised for roads, railways, airports, pipelines, urban rails, water buses, etc. With
faster-pace transformation of old and dilapidated roads, improvement has been achieved in
the resilience of national highway network to extreme weather such as low temperature, snow,
floods, and typhoons.
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4. Improving monitoring, early warning, and disaster prevention and mitigation
capabilities
The National Comprehensive Disaster Prevention and Mitigation Plan (2016–2020) was
released to guide the work of disaster prevention, mitigation and relief in the context of
climate change and strengthen the capacity building of climate disaster prevention and
mitigation services. A comprehensive assessment model for climate change has been
developed; a disaster information management system has been completed; and a nationwide
long-time-series disaster database has been established, covering a variety of meteorological
disasters such as regional droughts, heavy rain, heat, sand and dust, typhoons, snows, low
temperature and freezing injury. Since 2014, a total of over 19 billion yuan in the central
government budget has been used to advance projects of meteorological satellites, radars,
meteorological guarantees for mountain torrents and geological disasters, and marine
meteorology. The layout of observation station network has been optimized, contributing to
greater capability of monitoring and forecasting meteorological disasters and extreme weather
and climate events. Emergency warning system functions have been improved and
information dissemination channels broaden, thereby raising the public awareness of risk
prevention. An air-ground-space integrated disaster monitoring system covering the whole
country has been put in place, and the China Climate Change Monitoring Bulletin is issued
every year. Urban areas have explored the establishment of inter-departmental early-warning
information release centers, multi-hazard early warning systems, and risk management
business systems. Rural areas have gradually accelerated the construction of meteorological
disaster monitoring, early warning and emergency response systems.
(IV) Initial Results Achieved in Supporting and Safeguard Systems
1. Gradual establishment of GHG emissions statistical accounting system
Improve the basic statistical system for GHG emissions. A statistical indicator system for
response to climate change has been built, containing 36 indicators in 5 categories on climate
change and its impacts. The division of responsibility for basic statistics on GHG emissions
has been defined. By incorporating basic statistics on GHG emissions into the government
statistical indicator system and departmental statistical reports, a basic statistical system that
matches the GHG emissions inventories has been established and improved. In addition, the
leading group on climate change statistics consisting of 23 departments has been set up, and
the working mechanism with comprehensive government statistics as the core has been
created for the division of labor and coordination among relevant departments. In 2017, the
reduction rate of CO
2
emissions per unit of GDP was included for the first time into the
Statistical Bulletin of the People’s Republic of China on National Economic and Social
Development. In 2021, the Office of the Leading Group on Carbon Peak and Carbon
Neutrality set up a working group on carbon emissions statistical accounting to accelerate the
improvement of carbon emission statistical accounting system.
27
Shanghai: Establishing a Sound Statistical Survey System on Climate Change
In accordance with the Opinions on Strengthening the Statistical Work Related to Combating Climate
Change, Shanghai has formally implemented the Shanghai Statistical Report System on Climate
Change since 2013, which was renamed Shanghai Comprehensive Statistical Report System on Climate
Change and Green Development in 2018. It reports to NBS and gets the official reply every year. In
order to effectively implement the above-mentioned system, special personnel have been employed in
Shanghai Municipal Bureau of Statistics to be responsible for the collection and evaluation of statistical
indicators on climate change, as well as basic statistics on GHG emissions, and related funds have been
arranged to provide a guarantee for normalizing the working mechanism.
▪ Departments involved: 11 departments including Shanghai Municipal Bureau of Statistics and
Bureau of Ecology and Environment.
▪ Reports contained: 38 forms such as Fact Sheet on Tackling Climate Change and Green
Development.
▪ Indicators included: 111 indicators including GHG emission statistics, accounting and assessment,
climate change adaptation research and other capacity building investment.
Gradually normalize the compilation of national GHG inventories. In 2017, China
submitted the first Biennial Update Report, including the 2012 national GHG inventory. In
2019, China submitted the third National Communication and the second Biennial Update
Report, including 2010 and 2014 national GHG inventories respectively. In accordance with
the relevant requirements of the Paris Agreement, a mode of submitting the national GHG
inventory every two years has been gradually formed.
Gradually standardize the compilation of local GHG inventories. In accordance with the
unified national requirements, all provinces (autonomous regions and municipalities)
compiled provincial GHG emission inventories for 2012 and 2014, and conducted
cross-assessment in 2018. Beijing and some regions have also prepared their provincial level
of GHG inventories for other years, and Zhejiang has made unified plans for prefecture-level
GHG inventory compilation. In some areas, data management platforms have been set up to
support the compilation of GHG emission inventories and carbon emission data analysis and
assist the government in low-carbon supervision and scientific decision-making.
Zhenjiang: Urban Carbon Emissions Accounting and Management Platform
Zhenjiang City of Jiangsu Province is among the second group of low-carbon pilot cities in
China. Zhenjiang Low-Carbon City Construction Management Cloud Platform is an independently
developed intelligent low-carbon management platform, which represents the leading exploration and
innovation in terms of digitalization, networking and spatial visualization of low-carbon city
construction. The platform uses cloud computing, Internet of Things, business intelligence, geographic
information system, and other information technology to realize the spatial visualization of urban GHG
emissions and the informatization of inventory compilation.
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2. Increasing funding and policy support
Increase greatly government financial support. The central government budget has scaled
up investments in climate change mitigation and adaptation and technological support. In the
energy sector, additional subsidies for tax have been provided to encourage renewable power
generation. In the transportation sector, support has been given to the adjustment of
transportation structure, emission reduction of planes and ships, development of drop and
pulls transportation, and promotion of NEVs. In the building sector, low-income farmers have
been subsidized to carry out energy-saving renovation of houses. In the forestry sector,
support is focused on the construction of key shelterbelt systems, preservation of natural
forests, and protection of grassland ecosystems. In the agricultural sector, financial support
covers the waste-to-resource of livestock and poultry manure, comprehensive utilization of
straw, and replacement of chemical fertilizer with organic fertilizer. In terms of science and
technology, special funds have been arranged to support basic research and climate change
mitigation and adaptation.
CCDMF Supports Activities on Climate Change
The China Clean Development Mechanism Fund (CCDMF), established in 2007, is committed to
national climate change mitigation and adaptation. It serves as a seed fund to provide grants and
organize corresponding investment and financing activities for projects with significant benefits in
climate change mitigation. The grants of the fund are mainly used to assist countries and institutions in
capacity building on climate change, carbon market construction, low-carbon publicity, training and
other activities, and to comprehensively support national strategies on climate change. The paid use of
the fund supports, by means of equity investment, entrusted loans, and financing guarantees, industrial
activities that are conducive to tackling climate change, such as the Caoqiao Combined-Cycle Thermal
Power Plant Cogeneration Project in Beijing, and Binhai New Area Waste Incineration Project in
Tianjin.
Use tax policies to support green and low-carbon development. In 2016, new energy &
energy conservation and resources & environment were included in the High and New Tech
Fields under the Key Support of the State. Accredited companies can enjoy tax revenue
concessions according to the provisions. In January 2015, the tax rate for gasoline and diesel
consumption tax was raised in a move to guide reasonable consumer demand and promote
energy conservation. From September 2014 to the end of 2022, NEVs are exempted from
vehicle purchase tax, and this policy was maintained in 2018. For small displacement vehicles,
the vehicle purchase tax was reduced from October 2015 to the end of 2017. In July 2016, the
reform of ad valorem resource tax calculation started across the board, and an automatic tax
adjustment mechanism was established. Since 2012, policies have been implemented to
exempt new energy vehicles and vessels from vehicle and vessel tax and halve the tax on
energy-efficient vehicles and vessels. In 2018, the certification standards for energy-efficient
vehicles and NEVs were updated and adjusted.
Strengthen innovation in climate investment and financing policies. Comprehensive
supporting policies for climate investment and financing have been introduced, forming a
support system comprised of environmental economic policies, financial policies,
29
macroeconomic policies, and sector-specific industrial policies. The system of climate
investment and financing standards has been built in a coordinated manner, and the market
mechanism to guide funding strengthened. Local efforts in differentiated models and tool
innovations are supported, while climate investment and financing pilots are quickened. The
market mechanism has been refined and market financing tools developed for carbon
emissions trading, and the Interim Provisions on Accounting of Carbon Emission Trading was
issued. Besides, a climate investment and financing support institution was established. The
Climate Investment and Finance Association was created under the Chinese Society of
Environmental Sciences to serve green and low-carbon development with a view to a
climate-resilient society.
Vigorously develop green finance. Great effort has been devoted to green credit. In addition
to improvement in supporting facilities for green bonds, the Guiding Catalogue of Green
Industries was published to effectively guide the flow of social capital to economic activities
for tackling climate change. Green finance performance evaluations have been carried out
among depository financial institutions, as a part of the efforts to inspire and encourage
financial institutions to provide green financial services. At the end of the third quarter of
2020, the national balance of green loans registered 11.55 trillion yuan, an increase of 16.3%
over the beginning of the year and an annual growth rate of 22.4%. Among them, the balance
of green loans to entities was 11.51 trillion yuan, accounting for 10.5% of the outstanding
loans to enterprises and public institutions during the same period. Support has been given to
the issuance of green bonds by financial institutions. At the end of the third quarter of 2020,
the inter-bank market issued a total of 608 billion yuan of green financial bonds, with a
year-on-year growth of 2.6%. Financial institutions are also encouraged to offer innovative
green financial products and services, from 2016 to the end of September 2020, 70 securities
companies perform as the lead bearers or managers of green assets, total value of 268.192
billion yuan of green bond products (including asset securitization products) was traded.
Encourage innovation on green mortgage and guarantee methods and a variety of green credit
businesses development. For example, the Export-Import Bank of China has established a
green credit product system that encompasses energy conservation and environmental
protection loans, transformation and upgrading loans, and traditional superior credit varieties,
providing an important reference for banks to participate in the construction of green credit
mechanism. Through full mobilization, China’s social capital has become an important
guarantee for and source of financial support to address climate change.
3. Growing technological support
Scale up research & development investment. Issued in 2017, the 13th Five-Year Plan for
Science and Technology Innovation to Address Climate Change laid down a comprehensive
plan on science and technology to cope with climate change. Key national research and
development programs have become the main channel for science and technology investment
in this respect. In 2016–2018, both 11 key projects, including “Global Change and the
Response”, “Clean and Efficient Use of Coal and New Energy-saving Technology”, and 2
major projects, i.e. “Development of Large Oil and Gas Fields and Coal-Bed Methane” and
“Large-scale Advanced Pressurized Water Reactor Nuclear Power Plants”, contained
technology research & development on climate change. They have received a funding of
30
12.756 billion yuan in total from the central government. Since 2018, the Chinese Academy
of Sciences has deployed strategic technology pioneer projects, such as transformational and
key clean energy technologies and demonstrations; scientific project on Earth big data;
pan-tertiary environmental changes and the Green Silk Road construction; and science and
technology project on a beautiful Chinese and ecological civilization, for which about 1.2
billion yuan was financed from 2018 to 2019.
Strengthen the guidance of technological innovation and build a market-oriented green
technological innovation system. In 2019, China issued the Guiding Opinions on Building a
Market-Oriented Green Technology Innovation System, aiming to basically establish a
market-oriented green technology innovation system by 2022. To this end, the opinions
proposed to strengthen the principal position of businesses, improve the guidance mechanism,
and build some demonstration zones for green technology innovation, to cultivate a group of
national engineering research centers and national technology innovation centers, and to
optimize the rule-of-law, policy, and financing environment for green technology innovation.
Facilitate the promotion and utilization of green and low-carbon technologies. China
released the Guiding List of the Deployment of Energy Conservation and Emission Reduction
Technologies and Low-Carbon Technologies (Second Group) in 2016 and the National
Promotion Catalogue of Key Energy-saving and Low-Carbon Technologies the next year to
accelerate the transformation, application, and promotion of low-carbon technologies with
good demonstration effect and high mitigation potential, encourage enterprises to adopt
advanced and applicable energy-saving and low-carbon new processes and new technologies.
They have provided an important reference for promoting low-carbon upgrading and
transformation of related industries. Under the framework of the International Partnership of
Energy Efficiency Cooperation (IPEEC), China has taken the lead in establishing a working
group on "Best Energy-efficient Technologies and Best Energy-efficient Practices" ("Top
Tens"), and in 2019 released the second batch of domestic "Top Tens" lists to promote energy
efficiency and energy transition. In 2020, China issued the Green Technology Promotion
Catalogue (2020) to support the promotion of technologies regarding energy-saving and
environmental protection, clean production, clean energy, ecological environment and green
infrastructure.
Consolidate the foundation of adaptation research and technological development. In
response to industry and local needs, basic research has been carried out, including the
assessment of climate change impacts and disaster risks and the mechanism of adapting
climate change. The China National Assessment Report on Management and Adaptation to
Risks of Extreme Weather and Climate Events and Disasters was completed. The Research on
National Science and Technology Development Strategy for Adapting to Climate Change was
published, which clarified the basic framework of scientific and technological system with
Chinese characteristics for adapting to climate change, and suggested the establishment of
technical chain for adapting to climate change, as well as the comprehensive layout, key
directions and tasks of scientific and technological development for adapting to climate
change.
31
4. Improving mechanisms for social participation
Enhance continuously the whole society’s awareness of responding to climate change.
The National Energy Conservation Publicity Week and Low-carbon Day have been organized
as before, to showcase the actions and results of the government and all sectors in energy
conservation and low-carbon development, disseminate the concept of energy-saving and
low-carbon development, and vigorously share outstanding local stories of low-carbon
development. These activities have strengthened the understanding of low-carbon
development from all walks of life, and stimulated public participation in actions on climate
change. As a result, a low-carbon development pattern of common concern and extensive
participation by the whole society has gradually formed.
Conduct extensive publicity, education and training. Traditional and emerging media with
respective advantages are given full play to step up the publicity of activities on climate
change. Government agencies have publicized and discussed trends and impacts of climate
change at the levels of public participation, public opinion and policy advocacy, and called on
the public to pay attention to climate change. Multilingual videos and albums on the theme of
Addressing Climate Change––China’s Actions have been produced and released to enhance
science popularization on climate change. In educational scenarios inside and outside schools,
climate change has been incorporated into teaching curricula, practical education and family
education. Training on climate change has been provided for officials, enterprises and service
organizations, and training in specialized fields such as carbon market has been organized in
batches by regions across the country.
National Low-Carbon Day: Encourage Low-carbon and Green Lifestyle in the Whole
Society
In 2013, China set the National Low-carbon Day, which fells on a day of every June. Adhering to the
people-oriented concept, the campaign of National Low-Carbon Day plays a catalytic role in
strengthening publicity and education on climate change, mobilizing the public to practice the concept
of green and low-carbon development, and promoting ecological progress and sustainable economic
and social development.
Year
Theme
2013
Practice the Low-carbon Way, Build a Beautiful Home
2014
Join Hands in Low-carbon Development to Create a Good Environment
2015
Livable and Sustainable Low-carbon City
2016
Green Development, Low-carbon Innovation
2017
Industrial Low-carbon Development
2018
Raise Awareness of Climate Change, Step up Low-carbon Actions
2019
Low-carbon Action, Defend the Blue Sky
2020
Green and Low-carbon, Prosperous in All Respects
In 2020, the National Low-carbon Day campaign was held online for the first time due to the
COVID-19 epidemic. During the campaign, activities were officially launched to solicit worldwide
papers on climate investment and financing for the year 2020; the 2022 Winter Olympics Low-carbon
32
Miniprogram was put online; environmental protection volunteers and business representatives shared
their experiences and actions in practicing the concept of green and low-carbon in different fields; and
the miniprogram of the 11th Charity Exhibition with the theme of Green Development and
Low-Carbon Life was officially released.
Actively promote low-carbon lifestyle. The Code of Conduct for Environmental Protection
(Trial) was released to encourage the public across the country to practice low-carbon
lifestyles through measures such as energy conservation and green consumption. Public
attention has been specially drawn to food security in the context of climate change, and the
“empty-plate” campaign has been launched nationwide to reduce food waste. Local efforts are
accelerating to improve the public transportation system. Institutional and mechanism
innovations are also introduced to boost the development of shared economy, such as bicycle
sharing and car rental sharing, which provides the public with efficient solutions for
low-carbon travel. Local exploration in inclusive carbon mechanism has also been active. A
positive guidance system for public low-carbon behavior has been formed, which combines
commercial incentives, policy incentives, and certified emission reduction transactions.
Hangzhou: Low-carbon Science & Technology Museum
Hangzhou Low-Carbon Science & Technology Museum is the world’s first large-scale science and
technology museum with a low-carbon theme. This non-profit science education institution integrates
low-carbon technology popularization, green building display, low-carbon academic exchanges, and
low-carbon information dissemination. Under the theme of "Low-carbon Life, Inevitable Future for
Human Beings", the museum provides over 100 scientific, interesting and interactive divisions on the
main line of low carbon, including the formation and existence of carbon, global warming, aspects of
low-carbon life, wandering in a low-carbon future, low-carbon robots for guidance. It is devoted to
promoting the spirit of science, advocating scientific methods, spreading scientific ideas, and
popularizing scientific knowledge to the public. Female employees account for 87% of the explanation
and guidance team of the exhibition department, demonstrating the contribution of women to work on
climate change.
Picture: Layout of the Exhibition Hall on the Second Floor of Low-Carbon Science and Technology
Museum: Global Warming, Carbon Cycle, Low-Carbon City
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III. NEW MEASURES TO IMPLEMENT THE UPDATED
NDC GOALS
Guided by Xi Jinping Thought on Ecological Civilization, China will unswervingly
implement its new development philosophy. Led by green and low-carbon transition of social
economic development, China will put green and low-carbon development of energy as key,
and will firmly continue to prioritize ecological conservation and pursue a green and
low-carbon path to development. To implement the updated NDC goals, China will step up
the implementation of proactive national strategies on climate change, integrate climate
change into the national plans for economic and social development, construct the policy
system of carbon peak and carbon neutrality, with equal emphasis on mitigation and
adaptation, and speed up low-carbon development. At the same time, China will continue to
improve the overall coordination mechanism in the field of ecological progress, and build the
system of developing an ecological civilization. China will keep on with endeavor to improve
environmental quality and enhance ecosystem quality and stability, with the aim of
fundamental improvement in the ecological environment. By pushing for high-quality
economic development and high-level environmental protection, China will make greater
contributions to addressing global climate change.
(I) Advance the Work on Carbon Peak and Carbon Neutrality in a coordinated
and orderly manner
1. Boost the comprehensive green transition of socio-economic development
China will stay committed to the new vision of innovative, coordinated, green, open, and
shared development. The target and requirements of carbon peak and carbon neutrality will be
integrated into mid-term and long-term planning for socio-economic development. Support
and safeguard to national development planning, territorial development planning, special
planning, regional planning and local planning at all levels will be strengthened, together with
the consolidated coordination and coherence between multilevel and various plannings.
Layouts of major productivity, major infrastructure and public resources will be constantly
optimized, and a new pattern of territorial development and protection conducive to carbon
peak and carbon neutrality will be shaped. During the implementation of regional significant
strategies, the orientation and task requirements of green and low-carbon development will be
reinforced. China will vigorously promote energy conservation and emission reduction,
propel clean production across the board, and expedite the development of circular economy,
consistently uplifting the level of green and low-carbon development. In the meantime, China
will expand the supply and consumption of green and low-carbon products, and advocate
green and low-carbon lifestyles. Green and low-carbon development will be included in the
national education system. Demonstrations of green and low-carbon social actions will be
initiated. Public consensus will cohere and a favorable pattern of public participation will be
speedily forged.
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2. Deepen the action to peak CO
2
emissions
China will formulate the Action Plan for Peaking CO
2
Emission before 2030, which will be
enforced continuously during the periods of 14th and 15th FYPs. “Ten Key Actions for
Carbon Emission Peaking” includes green and low-carbon transition of energy system, energy
conservation and carbon emission reduction with efficiency improvement, carbon emission
peaking in industrial sector, carbon emission peaking in urban and rural construction, green
and low-carbon transportation, promoting circular economy, innovation on green and
low-carbon science and technology, enhancement of carbon sinks capability, public
involvement, and achieving carbon emission peaking target in a staged manner for different
regions. Each sector will propose policies and measures to promote carbon peak actions in
accordance with its responsibilities, and strengthen sectoral coordination and cooperation to
yield synergy. Local carbon peak targets are to be crystalized with formulated implementation
plans and complementary measures, and regions with favorable conditions are encouraged to
peak the emissions ahead of the schedule. China will also organize key industries to develop
their carbon peak plans. Key projects of Nationally Determined Contributions will be
supported throughout their development. Means of supervision and assessment will be
tightened up to ensure that the carbon peak targets are eventually met.
3. Advance energy production and consumption revolution
Upholding the belief of leading the energy revolution with low-carbon development and
responding to the development requirements of both a more synergistic allocation of energy
resources and a significant increase in utilization efficiency, China will proactively fulfill the
goal of “Four Reforms, One Revolution”. China will move faster towards a clean, low-carbon,
safe and efficient energy system, follow the principle of prioritizing energy conservation,
improve policy framework for the dual control of total energy consumption and energy
intensity, and further increase the proportion of non-fossil fuels in the energy mix. Non-fossil
fuels will dominate the future increment of energy consumption. China will stringently curb
coal-powered projects, set strict limitation on the increase in coal consumption over the 14th
FYP period and to phase it down in the 15th FYP period. The large scale development of
wind and solar power will be accelerated, hydro power in accordance with local condition
will be developed, nuclear power will be advanced in an ordered manner with the premise of
ensured safety, and peaking power including energy storage and gas-powered electricity will
be stepped up rapidly. Faster pace will be adopted to realize clean winter heating in the
northern region, upgrade oil quality, and eliminate backward production capacities of coal
and coal-fired power industry. China will make comprehensive efforts to improve energy
production, supply, storage and marketing systems, foster smart energy systems, and enhance
consumption and storage capabilities of new energy. A new power system will be constructed,
and allocation of clean power resources will be optimized on a large scale.
4. Intensify the dual control of total energy consumption and energy intensity
The dual control of total energy consumption and energy intensity have been perfected
through strict control of energy intensity, reasonable control of the total energy consumption,
control of the consumption of fossil fuels, curb of unreasonable energy consumption and
promotion on a more reasonable allocation of energy resources and a substantial increase in
35
utilization efficiency. In addition to improving the energy conservation regulations and
standards, management systems such as energy budgets have been established and improved,
the construction of national energy utilization rights trading market have been accelerated.
Key energy-consuming organizations have strengthened energy-saving management. The
implementation of key energy-saving and carbon emission reduction projects have been
quickened, further promoting energy-saving and consumption reduction in key areas such as
industry, construction, transportation, and public institutions, and enhancing energy efficiency
and carbon emission reduction of new infrastructure.For the 14th FYP period, control of
carbon intensity will be at the center of emission control framework, while the control of
carbon emission will also play its role. On the basis of continuing to retain the target of
carbon emission intensity reduction as a binding indicator in the national economic and social
development plan, China will coordinate and establish the system of controlling total CO
2
emissions.
5. Actively promote a green and low-carbon transformation of the industrial sector
Implementation plans of carbon peak for fields and sectors such as energy, iron&steel,
non-ferrous metals, petrochemicals and chemicals, building materials, transport and
construction. Guided by the principle of energy conservation and carbon reduction, the
catalogue of guiding industrial restructuring targets will be revised. China will adopt a “look
back” approach when cutting overcapacity of steel and coal so as to consolidate its progress
and resolutely curb the haphazard development of energy-intensive and high-emission
projects. China will actively promote low-carbon, circular and intensive industrial
development. Efforts will be made to improve resource utilization efficiency in
manufacturing. Life-cycle green management of products will be further strengthened, and an
efficient, clean, low-carbon, and circular green manufacturing system will be built. China will
optimize the industrial structure and energy consumption pattern, continuously increase the
proportion of clean and low-carbon energy use, speedily develop low-emission advanced
manufacturing and strategic emerging industries, and encourage factories and industrial parks
to develop and utilize renewable energy. Implementation plan will be designed for promoting
major low-carbon technologies in the industrial sector by facilitating the promotion and
application of advanced and applicable low-carbon technologies, processes, equipment and
materials. While promoting the energy conservation standardization, diagnosis and
supervision for energy conservation, the implementation of energy-saving and water-saving
transformation and the construction of micro-grids in the industrial sector will be accelerated.
6. Comprehensively promote green and low-carbon development in the urban rural
construction
China will fully implement green and low-carbon requirements in all aspects of urban
and rural planning and construction management. China will propel the development of urban
clusters, build urban ecological and ventilation corridors, and enhance urban greening. The
development target of urban floor space will be rationally devised, with the construction of
highly energy-consuming public buildings being strictly controlled. Green construction will
be implemented throughout the engineering construction process and a building demolition
management system will be framed. Green communities will also burgeon. In conjunction
36
with the action of rural construction, China aims to drive green and low-carbon development
of county towns and the rural areas. China will unremittingly improve energy efficiency
standards for new buildings and accelerate the development of ultra-low energy-consuming,
near-zero energy-consuming and low-carbon buildings on a large scale. China will vigorously
support the energy-saving renovation of existing buildings in cities and towns as well as
municipal infrastructures, improving their energy-saving and low-carbon level. Meanwhile,
China will apply green building standards to all new urban buildings by 2025. China will
gradually launch limits management of energy consumption in buildings, practice building
energy efficiency labeling and conduct performance assessment of low-carbon development
in the building sector. Green and low-carbon materials and their recycling will be
comprehensively promoted. Green rural houses will be well-developed. China will deepen the
application of renewable energy in buildings, and accelerate the electrification and
decarbonization of energy use in buildings. An initiative of rooftop photovoltaic will be
launched, and the penetration rate of electrification will be increased for house heating, water
heating, cooking, etc. In terms of heating, China will expedite the central heating of combined
power and heat in northern cities and towns, rapidly scale up heating of industrial waste heat,
steadily utilize waste heat from nuclear power for heating, and develop clean energy heating
including heat pumps, gas, biomass and geothermal energy considering local conditions.
7. Expedite the construction of green and low-carbon transportation system
China will accelerate the construction of a comprehensive transportation network, channel
energy into multi-modal transportation, and increase the share of railways and waterways in
the integrated transportation, constantly reducing the energy consumption and carbon
intensity of transportation. At the same time, China will optimize passenger transport, and
guide the scale-up and intensive operation of those passenger transport enterprises. Green
logistics will be developed speedily, transport resources will be optimized and the overall
utilization efficiency will be advanced. Measures will be taken for expediting vehicles and
vessels that are powered by new energy and clean energy, popularizing intelligent
transportation, pushing forward the electrification of railways, giving impetus to constructing
hydrogen filling stations, and normalizing the utilization of shore-end cable for vessels at
ports. China will move faster to put in place a convenient, efficient and moderately advanced
network system for battery charging and swap. Energy efficiency standards for fuel-powered
vehicles and vessels will be upgraded, energy efficiency labeling system for transport
equipment will be improved, and timeworn vehicles and vessels that are highly
energy-consuming and of high emissions will be phased out. China will further actively guide
low-carbon travel. China will quicken the construction of large-capacity public transport
infrastructure including urban railways, special traffic lanes and bus rapid transit systems, and
strengthen the construction of urban slow traffic systems, namely, special bicycle lanes,
pedestrian walkways, etc. By making comprehensive use of legal, economic, administrative
and other management measures, China will put particular emphasis on combating urban
traffic congestion.
8. Press for emissions reduction and efficiency improvement in agriculture
Efforts will be intensified to enhance the reduction and efficiency of chemical fertilizers and
pesticides, including deepening the implementation of soil testing and formulated fertilization,
37
promoting the fertilization technology of agricultural machinery and agronomy and the
substitution of organic fertilizers for chemical fertilizers, and promoting green and efficient
control technology models such as ecological regulation, physical and chemical inducement,
and biological control. While improving livestock and poultry productivity, ways to treat and
utilize livestock and poultry manure will be refined in order to reduce GHG emissions from
livestock and poultry breeding. The planting structure will be adjusted according to the
endowment of water resources to adapt production and planting to water resources.
Energy-saving and emission-reduction technology and equipment in agriculture and fishery
will be selected, tested and demonstrated to promote their maturation and promotion.
9. Promote high-level environmental protection
China will promote the coordination, innovation and integration of climate change mitigation
and adaptation, environmental pollution prevention and control, and biodiversity conservation
in terms of planning goals, policy actions, institutional systems, pilots and demonstrations.
The synergistic control of air pollutants and GHG emissions will be deepened by building a
coordinated control system and a coordinated monitoring and statistical reporting system with
respect to basic data, in a bid to peak carbon emissions and meet air quality standards.
Nature-based solutions will be proactively explored and adopted to strengthen ecosystem
services and biodiversity conservation, tap potentials for emission reduction and carbon sink
increase, and enhance green development and climate resilience in key sectors and regions.
China’s Initiative and Practice in Nature-Based Solutions
The Chinese government attaches great importance to the role of nature-based solutions in reducing
GHG emissions, improving climate resilience, and pursuing sustainable development. For example,
China has formulated and implemented an ecological red line policy. By scientifically delineating and
effectively implementing ecological red lines, the departments concerned have coordinated horizontally
and vertically to strictly control and protect areas with important ecologic functions such as
biodiversity maintenance, wind prevention and sand fixation, as well as areas ecologically sensitive and
vulnerable to land desertification and rocky desertification. Up to now, ecological red lines have been
drawn for provinces in the Beijing-Tianjin-Hebei region and the Yangtze River Economic Belt. While
mitigating and adapting to climate change, China has been working hard to improve environmental
quality, guarantee ecological functions, and promote green, low-carbon and sustainable development.
10. Strengthen the market-based mechanisms including carbon trading
Carbon market will be kept as a policy instrument to control GHG emissions, and will
effectively leverage the carbon market to control GHG emissions and reduce mitigation costs
for the whole society. While perfecting the national carbon market management system, the
registration system, trading system and other infrastructure will be enhanced. The trading
system of voluntary GHG emission reductions will be improved. Carbon sink trading will be
integrated into the national carbon emissions trading market, and a sound compensation
mechanism for ecological protection that reflects the value of carbon sinks will be established.
Based on the well functioning of national carbon market for power sector, China will enlarge
38
the coverage of industries, especially to include more the high emission industries, enrich
trading varieties, methods and participants, and enhance market activity, contributing to stable
and effective operation and sound and sustainable development of the national carbon market.
The system of paid use and trading of energy use rights will be further improved. Altogether,
China will coordinate electricity trading, energy-use rights trading and carbon emissions
trading as a whole.
11. Launch demonstrations on carbon emission peak and carbon neutrality
Regions, key industries and key enterprises with favorable conditions will be supported by the
State to peak carbon emissions ahead of schedule. Through organizing pilot demonstrations of
carbon peak and carbon neutrality, China will keep exploring effective models and beneficial
experience. Representative cities and industrial parks will be chosen to conduct carbon peak
pilots, granted with supporting policies, funds, technologies, etc. By moving faster to
actualize green and local-carbon transition, these pilot demonstrations can make contribution
to the whole nation with operable, replicable and transferable experience and practices.
Regions are encouraged to issue relevant supporting policies to form a policy synergy. China
will strengthen research on basic and cutting-edge technologies, and accelerate the
development and promotion of advanced and applicable technologies. In particular, the
demonstration and industrial application of large-scale carbon capture and storage
technologies will be pushed forward.
Name
Location
Scale
Content
Time
Research and Demonstration
of CO
2
-EOR in
PetroChina Jilin Oilfield
Jilin Oilfield
300,000 tons / year
CCUS-EOR
Put into
operation
in 2008
Shanghai Shidongkou
CO
2
Capture and Storage
Demonstration Project of
Huaneng Group
Shidongkou,
Shanghai
120,000 tons
captured per year
Post-combustion
capture
Put into
operation
in 2009
Coal-to-Liquids CO
2
Capture
and Storage Demonstration
of Shenhua Group
Ordos, Inner
Mongolia
100,000 tons
captured and
stored per year
Coal liquefaction
plant + saline
aquifer
Put into
operation
in 2011
CO
2
Capture from Coal
Chemical Industry and
CO
2
Flooding
Demonstration of Yanchang
Petroleum Group
Yulin,
Shaanxi
300,000
tons captured per
year
CO
2
CCUS-EOR
from coal
chemical industry
Put into
operation
in 2016
EOR Demonstration in
Sinopec East China Oilfield
Dongtai,
Jiangsu
160,000 tons
captured per year，
Accumulated 700，
000 tons
EOR
Put into
operation
in 2005
Put
12. Keep consolidating and increasing ecosystem carbon sinks
China will tighten the spatial planning and use of territories, firmly adhere to the ecological
39
protection red line, strictly guard ecological space from being occupied, and stabilize the
carbon sequestration role of existing forests, grasslands, wetlands, seas, soils, permafrost,
karst, etc. The scale of new construction land will be stringently controlled, whereas available
urban and rural stock of construction land will be fully revitalized and utilized. Furthermore,
China will enforce land use standards in a strict manner, enhance the assessment of land
saving and intensive use, and promote land-saving technologies and models. With respect to
ecological restoration, China will implement major ecological protection and restoration
projects, and press on integrated protection and restoration of mountains, waters, forests,
farmland, lakes, grasslands and sands. China will intensify efforts to carry out a large-scale
greening campaign, consolidate its achievements of returning farmlands to forests and
grassland, apply projects for precisely improving forest quality, and continue to increase
forest area and accumulation. Protection and restoration of grassland ecosystems will also be
strengthened, so as the protection of wetlands. Based on systematic investigation to the
distribution of national marine carbon sink (blue carbon) ecosystems, China will protect and
restore the existing blue carbon ecosystems by means of various blue carbon pilot projects
and marine ecological protection and restoration projects, giving full play to the role of blue
carbon in mitigating climate change. Carbon sequestration capacity of mangroves, seagrass
beds, salt marshes and others will be tapped. Quality of arable lands will be improved, the
national blackland protection project will be executed, and the carbon sink of ecological
agriculture will be enhanced. Moreover, China will proactively boost the development and
utilization of karst carbon sinks.
13. Effectively control non-CO
2
GHG emissions
China will step up the control of key non-CO
2
GHG emissions. China will research and
implement an action plan to control non-CO
2
GHG emissions; continue to improve the
technical system for monitoring, reporting and evaluation of non-CO
2
GHG emissions; and
gradually establish sound statistical accounting system, policy system and management
system for non-CO
2
GHG emissions. Furthermore, it will form a raft of applicable non-CO
2
GHG emission control technologies, build a batch of major projects with great emission
reduction effects, and promote a group of replicable pilot and demonstration projects.
Measures will be taken to effectively curb methane emissions from coal, oil and gas mining,
such as rational control of coal production capacity, increase of gas extraction and utilization
rate, control of volatile organic compound emissions in the petrochemical industry,
encouraged use of green completions, and application of technologies for recovering
associated gas. China will continue to push for HFC-23 destruction, study and formulate
nitrous oxide emission reduction plans for key industries, promote low-warming-potential
power facilities, and strengthen the emission control of HFC, nitrous oxide, and sulfur
hexafluoride. China has already deposited its instrument of ratification of the Montreal
Protocol (Kigali Amendment), and the amendment has come into force since September 15,
2021.
40
(II) New Policies and New Measures for Proactive Adaptation to Climate
Change
5
In order to fulfill the NDC commitments in the new situation, China will develop the National
Strategy for Climate Change Adaptation 2035 (hereinafter referred to as Adaptation Strategy
2035) based on experiences in post-2015 policy practice. While taking into account policies
and measures committed in 2015, China will further propose and deepen actions on climate
change adaptation in terms of improving the climate resilience of natural ecosystems and
economic and social systems.
1. Develop the Adaptation Strategy 2035
China will develop the Adaptation Strategy 2035, which strengthens the integration of
adaptation actions with the goals of economic and social development and beautiful China,
and makes work plan for climate change adaptation in the next 15 years. China will
vigorously improve the national guarantee capacity for climate security and comprehensively
enhance climate resilience in natural ecological, economic and social fields to build a
climate-resilient and climate-smart society.
2. Enhancement of resilience of natural ecosystems to the impacts of climate change
Focusing on water resources and terrestrial and marine coastal ecosystems, China will
strengthen the monitoring and early warning of climate change risks and will
comprehensively improve the climate resilience of natural ecosystems to ensure ecological
progress and sustainable development. China will maintain the structural measures for water
resource allocation, flood control and drought relief, implement the most stringent water
resource management system, speed up the construction of water-saving society and
water-saving cities, improve the capacity of water resource allocation and management, and
promote sustainable economic and social development with water resources as rigid
constraints. China will step up the protection of natural ecosystems such as forests, grasslands,
rivers, lakes, wetlands and oceans, to improve their climate resilience, functionality and
stability. China will strengthen the adaptability of ocean and coastal zones while improving
the capacity of climate disaster prediction, warning and prevention, so as to ensure the safety
of people in coastal areas. China will carry out ecological protection and restoration in
accordance with the trends and characteristics of climate change.
3. Enhance adaptability in the economic and social fields
Focusing on areas that are vital to livelihood development, national security and sustainable
social development, China will promote the research & development, promotion and
application of key adaptation technologies, and establish a sound system of adaptation
standards for related industries to enhance climate resilience. China will improve agricultural
climate zoning, make full use of agricultural climate resources brought about by warming to
develop characteristic agricultural products, strengthen agricultural biodiversity conservation
and coordinated and sustainable agricultural development, and build a complete food security
guarantee system. China will advance urban ecological restoration projects, establish a
5
According to Decision 9/CMA.1, the content related to climate change adaptation herein will be an integral part
of China’s Adaptation Communication.
41
continuous and complete ecological infrastructure system, and improve urban ecosystems.
China will step up the construction of health emergency system to reduce the adverse effects
of climate change on public health. To strengthen planning and guidance, China will
formulate urban lifeline and industrial emergency plans, and urge sensitive industries to build
adaptation infrastructure; raise the awareness of risk planning and introduce nature-based
solutions into urban adaptation to climate change, in a bid to comprehensively enhance
climate resilience in economic and social aspects.
4. Build a regional pattern of climate change adaptation
According to climate change impacts and regional pattern, China will comprehensively
examine the territorial space characteristics of different regions and their adaptation levels
from the perspectives of ecological environment and economy & society, scientifically
harness climate resources and carrying capacities to enhance the adaptability of main
functional spaces of various kinds, and build a regional pattern of climate change adaptation
in a coordinated manner, so as to further enhance the climate resilience of territorial space.
China will carry out regional climate risk assessment, build demonstration zones, and deploy
and implement key demonstration projects. Guided by national major regional development
strategies, climate change adaptation will be integrated into these strategies including
Beijing-Tianjin-Hebei coordinated development, Yangtze River Economic Belt,
Guangdong-Hong Kong-Macao Greater Bay Area, and high-quality development of the
Yellow River Basin, and appropriate efforts will be made for climate change adaptation in
other key areas such as Qinghai-Tibet Plateau, so as to form a regional coordinated adaptation
pattern.
(III) Strengthen the Supporting and Safeguard Systems
China will comprehensively clear existing laws and regulations that are incompatible with the
work of carbon peak and carbon neutrality, fortify the coherence of laws and regulations,
research the formulation of special laws on carbon neutrality, expedite the formulation of
energy conservation law, electricity law, coal industry law, renewable energy law, circular
economy promotion law, etc., and strengthen the pertinence and effectiveness of relevance
laws and regulations. A tax policy system conducive to green and low-carbon development
will be established and improved, and preferential tax policies on energy and water
conservation, comprehensive utilization of resources, etc. will be implemented and enhanced,
giving better play to the role of taxation in promoting green and low-carbon development of
market entities. Together with improving green tariff policies, China will reinforce the
residential tariff system and time-of-use tariff system, and explore the establishment of a
dynamic adjustment mechanism for time-of-use tariffs.
China will promote the development of green low-carbon financial products and services in an
orderly manner, prepare monetary policy tools for carbon emission reduction, incorporate green
credit into the macro-prudential assessment framework, and guide the banking industry and other
financial institutions to provide long-term, low-cost funding for green and low-carbon projects.
Developmental policy-oriented financial institutions are encouraged to, in accordance with
market-oriented and legal principles, provide long-term and stable financing for achieving carbon
peak and carbon neutrality. China will support eligible enterprises to raise funds through listing
42
and refinancing for constructing and operating green and low-carbon projects, and will expand the
scale of green bonds. China will also study and set up a national low-carbon transition fund,
meanwhile encouraging social capital to initiate investment funds for green and low-carbon
industries. Financial support to high pollution and high emission sectors are to be strictly
controlled. Financial institutions will also be guided to actively guard against and respond to
risks associated with climate change, and incorporate related risks into the risk management
framework. The standardization system of green finance will be established and improved.
Furthermore, China will press on the capacity-building of carbon emission statistical
accounting, and accelerate the construction of a unified and standardized statistical
accounting system for carbon emission. In regard to standardization, China will expedite the
updating and upgrading of energy conservation standards, and urgently revise a number of
mandatory national standards and engineering construction standards relevant to energy
consumption limits as well as energy efficiency of products and facilities. China will tighten
energy consumption limits, enlarge the coverage of energy consumption limits standards, and
perfect complementary standards of energy accounting, testing and certification, assessment
and auditing, etc. The working mechanism for national and local GHG emission inventories
will be improved, and a compliance reporting system with full participation of all sectors will
be established. The national, local, enterprise, and project carbon emission accounting and
verification systems will be refined, while implementing the basic statistical system on
tackling climate change and push forward the establishment of an authoritative GHG
emission data release mechanism. China will further proactively engage in formulating
relevant international standards, and reinforce the coherence between domestic and
international standards.
Capacity building and working mechanism guarantees will be strengthened to
comprehensively enhance the management capability in responding to climate change.
Next-generation information technology will be harnessed to provide more support for
climate change monitoring, impact and evaluation, and a dynamic and systematic climate
change monitoring and evaluation system will be established. Climate feasibility will be
discussed for territorial space planning, and early warning and risk management of extreme
climate events will be implemented. Work in the field of climate change will be linked with
economic support policies, and a diversified policy support system will be fostered, including
financial support, ecological protection compensation, transfer payments, and risk sharing.
Sound coordination and information sharing mechanisms will be established for work on
climate change, and cross-field cooperation and collaborative innovation will be encouraged.
More official training, professional skill training, public publicity and education will be
provided. A working mechanism involving multi-sectoral participation, coordination and
linkage, and an action mechanism involving extensive participation by the whole society will
be formed.
43
IV. PROMOTING INTERNATIONAL COOPERATION
ON CLIMATE CHANGE
Climate change is a common challenge facing mankind, making human race a community
with a shared future. The Paris Agreement clarifies the general direction of future green and
low-carbon transition, which requires the collaboration of all countries around the world. The
conclusion and effective implementation of the Paris Agreement is a concrete practice of
jointly coping with global challenges by international community relying on multilateralism.
Upholding the concept of building a community with a shared future for mankind, China is
committed to promoting the establishment of a fair, reasonable, cooperative, and win-win
global climate governance system and the global transition to green, low-carbon,
climate-resilient and sustainable development.
(I) Construct a Equitable, Mutually Beneficial Global Climate Governance
System
Maintain the fundamental status of multilateralism and common but differentiated
responsibilities in global climate governance. As the world’s largest developing country,
China firmly upholds multilateralism in tackling climate change. Regarding the UNFCCC and
its Kyoto Protocol and Paris Agreement as the core and main channel, China is committed to
promoting the construction of a fair, reasonable, cooperative, and win-win global climate
governance system based on common but differentiated responsibilities, equity and respective
capabilities. Some countries have planned to implement a carbon border adjustment
mechanism, which goes against the spirit of win-win cooperation of the Paris Agreement and
the mechanism arrangements for NDCs and does not conform to the principles and
regulations of the World Trade Organization. China resolutely opposes all forms of
unilateralism and protectionism, insists on comprehensive and accurate understanding of the
Paris Agreement, especially its goals and principles, and supports countries in their NDC
implementation.
Persist in the full and effective implementation of the UNFCCC and its Paris Agreement.
Upholding the principle of common but differentiated responsibilities, equity and respective
capabilities, China will firmly honor its NDC commitments and work with other countries to
advance mitigation and adaptation actions. Developed countries should step up efforts to
support developing countries in funding, technology development and transfer, and capacity
building. In the stage of implementing the Paris Agreement, developed countries should
confront their historical responsibilities, continue to drastically take the lead in absolute
reduction of emissions across the economy and press on actions, pay close attention to the
adaptation of developing countries to climate change, and help developing countries
formulate and implement strategic plans for climate change adaptation. They should provide
developing countries with new, additional, adequate, predictable and sustainable financial,
technology, and capacity-building support, improve funding transparency, and help
developing countries leverage fair opportunities and more resources for sustainable
development. Developing countries should continuously intensify their efforts to control
44
emissions, make a gradual transition to economy-wide emission limit or emission reduction in
consideration of different national conditions. They should carry out adaptation actions with
matching financial, technology, and capacity-building support, and fulfill information
transparency obligations on the basis of flexibility.
(II) Positive Results in International Cooperation on Climate Change
Strengthen high-level diplomacy on climate change. Chinese state leaders have actively
pushed for coordination and cooperation on climate change in their foreign exchanges. On 30
December 2015 President Xi Jinping delivered an important speech entitled “Work Together
to Build a Fair and Equitable, Mutually Beneficial Global Climate Governance” at the Paris
Climate Change Conference, which together with other state leaders, provided a strong
political impetus to the early conclusion of the Paris Agreement. China was among the first to
sign the Paris Agreement, and deposited its instrument of rectification to the Paris Agreement
in September 2016 at the Group of Twenty (G20) Hangzhou Summit, thus playing a
significant leading role to the signing and entry into force of the Paris Agreement. In the face
of unilateralism and protectionism, President Xi Jinping has stressed on many occasions that
"the Paris Agreement is a milestone in the history of global climate governance. We must
ensure this endeavor is not derailed. All parties should work together to implement the Paris
Agreement. China will continue to take steps to tackle climate change and fully honor its
obligations." In recent years, China has issued joint declarations and signed memorandums of
cooperation with the United States, the European Union, Germany, France, Norway, India,
Brazil, South Africa, Canada, New Zealand, etc. to advocate multilateralism and improve
global climate governance, which demonstrates the firm resolution to jointly address climate
change. On the basis of common but differentiated responsibilities, China has mobilized more
countries in international cooperation to step up climate action and fully implement the Paris
Agreement.
China Donates a Multispectral Microsatellite and Ground-based Measurement and
Control Application System to Ethiopia
On October 4, 2016, China and Ethiopia signed the Memorandum of Understanding on Donating a
Microsatellite System for Combating Climate Change. According to this memorandum of
understanding, China presented Ethiopia with a multispectral microsatellite and ground-based
measurement and control application system for monitoring droughts, floods, water resources, forest
45
area changes, etc., to help Ethiopia improve the capability to respond to climate change. On December
20, 2019, the microsatellite donated to Ethiopia under China’s South-South cooperation on climate
change was successfully launched in Taiyuan Satellite Launch Center. At the launching ceremony,
Ethiopian Minister of Innovation and Technology Getahun Kuma conveyed the Egyptian Prime
Minister Abiy Ahmed’s thanks to the Chinese gift satellite, and said that Ethiopia is expecting further
cooperation with China in the fields of aerospace and technology development, environmental
protection and climate change.
Deepen South-South cooperation on climate change. China has been actively engaged in
South-South cooperation with developing countries in addressing climate change. In
September 2018, President Xi Jinping stated, at the opening ceremony of the Beijing Summit
of the Forum on China-Africa Cooperation, that China is willing to strengthen exchanges and
cooperation with Africa in areas such as climate change and environmental protection. On
April 22, 2021, President Xi Jinping stated, at the Leaders Summit on Climate, that as we in
China often say, "It is more important to show people how to fish than just giving them fish."
China has done its best to help developing countries build capacity against climate change
through various forms of results-oriented South-South cooperation. On September 21, 2021,
at the General Debate of the 76th Session of the United Nations General Assembly, President
Xi Jinping stated that China will step up support for other developing countries in developing
green and low-carbon energy, and will not build new coal-fired power projects abroad.
In November 2018, Chinese President Xi Jinping met with leaders of Pacific Island countries
that have diplomatic relations with China in Papua New Guinea, and stated that China would
provide assistance to these countries within its capacity. April 22, 2019, President Xi Jinping
announced, at the Second Belt and Road Forum for International Cooperation, that China
would work with relevant countries to jointly implement the Belt and Road South-South
Cooperation Initiative on Climate Change; and China and its partners have set up the Belt and
Road Initiative Green Development International Coalition to advance work on
environmental protection and climate change in the Belt and Road countries for green and
sustainable development.
The Belt and Road Initiative International Green Development Coalition
In May 2017, President Xi Jinping proposed to establish the Belt and Road Initiative International
Green Development Coalition at the opening ceremony of the First Belt and Road Forum for
International Cooperation. On April 25, 2019, the Belt and Road Initiative International Green
Development Coalition was formally established at the Sub-forum on Green Road of the Second Belt
and Road Forum for International Cooperation, creating a platform for policy dialogue and exchange,
environmental knowledge and information, and green technology exchange and transfer. It has
over 130 members, including government agencies, enterprises, think tanks, and international
organizations. The work is embodied in the biennial Belt and Road green development policy dialogues
and thematic partnership activities. The coalition has so far launched ten thematic
partnerships, covering biodiversity and ecosystems, green energy and energy efficiency, green finance
and investment.
In the past five years, China has implemented the “10-100-1000 Program” that provides
46
financial, technology and capacity support to developing countries, such as least developed
countries, small island developing states, and African countries, to help improve their
capability to cope with climate change. This encompasses packaged projects, technical
assistance, climate change mitigation and adaptation projects, donations of low-carbon,
energy-efficient and environment-friendly materials and monitoring and early warning
equipment, human resources development cooperation, and training courses on South-South
cooperation on climate change. As of 2019 year-end, under the framework of South-South
cooperation, China has signed 38 memorandums of understanding with other developing
countries to jointly build low-carbon demonstration zones, assisted 28 countries in 37 climate
change mitigation and adaptation projects, and organized over 100 training courses on climate
change, energy conservation and emission reduction that benefit more than 4,000 people.
China-assisted Meteorological Technology Cooperation Project in the Democratic
Republic of Congo
The Democratic Republic of Congo (DRC), with a large land area, is prone to meteorological disasters,
which greatly affects agricultural production and people’s life. Located in Kinshasa, Matadi, Mbuji
Mayi, Lubumbashi, etc., the project mainly refers to China’s provision of meteorological observation
hardware and software, equipment training, and overall system technical services to DRC. From
December 2016 to December 2019, China sent four groups of technical experts including
18 person-times to DRC. The project has effectively enhanced DRC’s meteorological disaster
monitoring, forecasting and warning capacity, and played a substantial role in supporting and
demonstrating disaster preparedness and mitigation and response to climate change. With positive
contributions to the protection of the safety and property of local people, the project has received
unanimous praise of the local government and the local community and boosted the friendship between
China and DRC.
Promote exchanges and cooperation with international organizations. China has
conducted extensive and practical cooperation on climate change with international financial
institutions and international organizations, such as the World Bank, Asian Development
Bank, Asian Infrastructure Investment Bank, New Development Bank, United Nations
Development Programme, Global Environment Facility, and Green Climate Fund. As one of
the 17 convening countries of the Global Commission on Adaptation, China has collaborated
with the Global Center on Adaptation to open the China Office in June 2019. Chinese Premier
Li Keqiang, Dutch Prime Minister Mark Rutte, and former United Nations Secretary-General
Ban Ki-moon attended the inauguration ceremony. In September 2019, at the United Nations
Climate Action Summit held in New York, China as the co-leader shared the positive progress
47
in nature-based solutions, released the compendium of contributions, published the
Nature-Based Solutions for Climate Manifesto, and proposed follow-up cooperation
initiatives. China has also been deeply involved in the IPCC system construction and future
planning, with 61 Chinese experts selected as authors of the IPCC Sixth Assessment Report,
ranking first among developing countries in number. In recent years, with focus put on issues
of common concern for China and the world such as climate change, China has leveraged
platforms such as the China Council for International Cooperation on Environment and
Development to promote the construction of a reasonable global environmental governance
system. Actively participate in ship greenhouse gas emission reduction negotiations under the
International Maritime Organization (IMO) framework, promote IMO to formulate a
preliminary international ship greenhouse gas emission reduction strategy, and propose a
constructive ship operation energy efficiency evaluation mechanism.
Global Alliance of Universities on Climate Showcases Chinese youth leadership
At the Davos Forum in January 2019, the Global Alliance of Universities on Climate (GAUC) was
jointly launched by Tsinghua University and several world-renowned universities. It is made of
world-renowned universities including Australian National University, University of California at
Berkeley, University of Cambridge, Imperial College London, Massachusetts Institute of Technology,
and University of Tokyo. Through efforts in the aspects of joint research, talent training, student
activities, green campus, and public participation, the Global Alliance of Universities on Climate
aims to promote global youth cooperation and exchanges, raise public awareness and mobilize more
climate actions. At the end of 2019, student representatives of the Global Alliance of Universities on
Climate sent a letter to President Xi Jinping, reporting lessons learnt and practical gains from activities
of the Alliance and expressing the thought that young people should consciously assume the
responsibility of the times in addressing climate change and promoting ecological progress. On January
6, 2020, President Xi Jinping replied, expressing his appreciation for common concern about issues
relating to the future of mankind and expecting the positive action of students to protect the shared
homeland of mankind.
(III) Further Expansion of International Cooperation
First, China is willing to continuously strengthen international cooperation on climate
change. China is willing to cooperate with other countries in addressing climate change under
the framework of the UNFCCC and its Kyoto Protocol and Paris Agreement, support COP26
to the UNFCCC in achieving positive outcomes. China will get extensively involved in
inter-governmental cooperation and exchanges on climate change, and at the same time,
encourage and support local governments and the private sector to actively engage in
international cooperation on climate change.
Second, China will step up international technological and industrial cooperation in
tackling climate change. In the global response to climate change, countries should
accelerate low-carbon transition and achieve carbon neutrality in order to ensure effective
resilience to climate change. This urgently needs the in-depth research & development and
promotion of low-cost, safe, and controllable modern technologies with high economic
benefits and strong mitigation and adaptation effects, and requires cooperation to boost the
48
development of low-carbon industries. China will push forward technological breakthroughs
in various fields to support the green and low-carbon transition, such as renewable energy,
hydrogen energy, smart grid and energy storage, CCUS, circular economy, low-carbon
transportation and smart cities, climate change impact and risk assessment. China will call on
countries to uphold multilateralism and strengthen technological and industrial cooperation;
to establish international cooperation platforms, centers and networks for advanced
technology research & development and technology transfer; and to conduct joint research on
breakthrough technologies, expedite the mature application of advanced technologies, and
facilitate the international application of applicable technologies.
Third, China will carry out, within its capacity, South-South cooperation on climate
change with other developing countries to jointly build capacity against climate change.
China will continue to push for and step up cooperation to help other developing countries,
including African countries, least developed countries, and small island developing states,
cope with the challenges of climate change. China will explore more effective use of China
South-South Climate Cooperation Fund to help others developing countries respond to
climate change. China will strengthen the green and low-carbon construction, operation and
management of infrastructure, taking full account of the impacts of climate change in
construction. China will steadily implement cooperative projects such as low-carbon
demonstration zones, material donations, and training, and advance cooperation in the fields
of clean energy, disaster prevention and mitigation, ecological conservation, climate-resilient
agriculture, low-carbon smart cities, and nature-based solutions. These efforts will help
developing countries improve financing capacity and create more development opportunities
and space; and help other developing countries shake off poverty and achieve sustainable
development.
Fourth, China will promote the Belt and Road South-South cooperation on climate
change. With a view to jointly promoting green and low-carbon development and building a
green Silk Road, China will actively push forward the implementation of Belt and Road
South-South Cooperation Initiative on Climate Change, with focus placed on pragmatic
cooperation and joint development in the fields of low-carbon infrastructure, low-carbon
industrial parks, low-carbon energy, low-carbon transportation, low-carbon technology
research & development, low-carbon product and service trade, carbon trading market
connection, climate finance, low-carbon talent training and exchanges, donation and
assistance in low-carbon materials. On the basis of multilateral and bilateral cooperation
platform including the Belt and Road Initiative International Green Development Coalition,
China will foster thematic partnerships on global climate governance and green transition to
channel more forces into international cooperation on climate change.
49
Annex I: Hong Kong Special Administrative Region’s
Climate Change Target and Progress
(I) Hong Kong’s Climate Change Target and Progress
The Government of the Hong Kong Special Administrative Region (HKSAR) attaches great
importance to addressing climate change. In 2010, the HKSAR published Hong Kong’s
Climate Change Strategy and Action Agenda, proposing for the first time the greenhouse
gases mitigation target to reduce Hong Kong’s carbon intensity by 50% to 60% between 2005
and 2020. In order to strengthen action to combat climate change, the HKSAR Government
announced Hong Kong’s Climate Action Plan 2030+ in 2017, which set out in detail the key
mitigation and adaptation measures, as well as the target to reduce Hong Kong’s carbon
intensity by 65% to 70% between 2005 and 2030, which is equivalent to an absolute carbon
emission reduction of 26% to 36%. The HKSAR is moving steadily towards this target. In
2018, Hong Kong’s carbon intensity reduced by 36% from 23 tonnes carbon dioxide
equivalent (CO
2
-e) per million Hong Kong Dollars in 2005 to 15 tonnes CO
2
-e per million
Hong Kong Dollars.
(II) Policies and Actions to Combat Climate Change and their Effectiveness
1. Institutional Arrangements
In 2016, the HKSAR Government established the “Steering Committee on Climate Change”
to steer and co-ordinate climate actions of various bureaux and departments. In the same year,
the HKSAR Government established the “Climate Change Working Group on Infrastructure”
to enhance the capacity of various departments in coping with climate change and extreme
weather.
2. Reduce greenhouse gas emissions
To achieve the 2030 emission reduction target, the HKSAR implemented the following major
measures in accordance with Hong Kong’s Climate Action Plan 2030+:
First, in the energy sector, coal is gradually replaced by natural gas for electricity generation.
HK$2 billion has been earmarked to implement various renewable energy projects at
government premises. “Feed-in Tariff” has been introduced to encourage different sectors to
install renewable energy systems. The launch of “Solar Harvest” to install solar photovoltaic
panels for eligible schools and non-governmental welfare organisations has achieved good
results. Second, to save energy and reduce carbon emissions associated with buildings, a
series of measures have been rolled out, including tightening statutory energy efficiency
standards for buildings; constructing district cooling systems; promoting
“retro-commissioning”, energy audit and green building certification, etc.; launching the
“Energy Saving for All” campaign, and encouraging different sectors of the community to
work together to combat climate change. The HKSAR has also set the “Green Energy Target”
to improve the energy performance of government buildings and infrastructure by 6% from
2020 to 2025 by saving energy and adopting renewable energy. Third, in the transport sector,
50
we encourage the public to use public transport and to walk more, and have fostered a
bicycle-friendly environment. Railways continue to serve as the backbone of the public
transport system, and new railway projects are being taken forward. The “New Energy
Transport Fund” has been set up to encourage the industry to test out green and innovative
transport technologies, and subsidies have been provided for the franchised bus companies to
purchase single-deck electric buses for trial, etc. Fourth, in the waste sector, reduction in
waste and carbon emissions have been achieved by promoting waste reduction at source and
the development of the circular economy to turn waste into resources. Fifth, to raise public
understanding and awareness, a variety of publicity and education activities, including “Low
Carbon Living Calculator”, have been supported to promote behavioural change towards
low-carbon living.
3. Improve climate change adaptation and resilience
The measures that have been taken by HKSAR in respect of adaptation to climate change
pursuant to Hong Kong’s Climate Action Plan 2030+ include:
First, the Climate Change Working Group on Infrastructure oversees the review of design
standards by various departments, examines and undertakes enhancement works to strengthen
the resilience of existing infrastructure under the effect of climate change. Second, the
“Sponge City” concept of “following the nature with resilience” has been adopted for
large-scale drainage improvement works projects by simulating the natural water cycle and
facilitating the infiltration and natural purification of rainwater, thereby reducing runoff and
improving the flood resilience of the city. Third, the “Total Water Management Strategy” has
been implemented, which includes promoting water conservation and expanding the use of
lower grade water (i.e. seawater and recycled water) for non-potable purposes, with a view to
containing fresh water demand and achieving the target of reducing the per capita fresh water
consumption by 10% by 2030 (compared to 2016). Fourth, in respect of land development, a
smart, green and resilient city development strategy has been adopted to enhance and balance
environmental and development capacities. Fifth, the Contingency Plan for Natural Disasters
has been devised. It includes Government’s alert system and the organisational framework, as
well as the functions and responsibilities of government departments and other organisations
in responding to natural disasters (including tropical cyclones). Sixth, in respect of public
participation and action, community awareness of climate change has been raised to prepare
the public for extreme weather events that may be caused by climate change. A cloud
geographic information system “Common Operational Picture” has been developed to allow
the relevant departments to share real-time “incident information” (i.e. landslides, flooding
and major road incidents, etc.) and “supporting information” (e.g. weather and traffic
information and mapping data, etc.). Weather warning system has been used to disseminate
important information to the public in a timely manner, and provide storm surge alerts for
low-lying locations vulnerable to seawater inundation.
4. Relevant research and support measures
The HKSAR Government encouraged the academia to collaborate with the Government to
conduct research on climate change to provide useful support for related policy-making.
Research covers areas such as energy supply, energy conservation, green building, water
51
efficiency, urban low-carbon materials, smart city, biodiversity, waste-to-energy and climate
change science, etc. In 2014-2018, the Innovation and Technology Fund had devoted about
HK$85 million to support about 50 projects related to environmental technologies. Most of
the projects are related to energy saving and new energy development. In addition, the
HKSAR Government launched its first Government Green Bond Programme in 2019 to
encourage more entities to raise funds for green, low-carbon and climate-resilient projects
through Hong Kong’s capital markets. In accounting for greenhouse gas emissions, the
HKSAR Government regularly compiles and releases the greenhouse gas inventory. The
Government is also conducting regular carbon audits on major government buildings with an
annual electricity consumption of more than 500,000 kWh to explore room for carbon
reduction, and has published a set of nine carbon management guidebooks covering different
types of premises.
5. International and regional cooperation
Hong Kong’s Climate Action Plan 2030+ attaches great importance to international and
regional cooperation. The HKSAR Government participates in various associations and
organisations related to climate change. The HKSAR’s representatives participate in the
Conferences of the Parties to the United Nations Framework Convention on Climate Change
as a member of the Chinese delegation. HKSAR also participates in the C40 Cities Climate
Leadership Group as a Steering Committee member, and the Global Covenant of Mayors for
Climate and Energy. In addition, the HKSAR actively participates in the work of the United
Nations World Meteorological Organization and has been designated as the Regional
Specialized Meteorological Centre for Nowcasting for the Asian region. At the regional level,
the HKSAR maintains frequent exchanges and cooperation on climate change with the
Guangdong Province and the Macao Special Administrative Region. Under the guidance of
the “Outline Development Plan for the Guangdong-Hong Kong-Macao Greater Bay Area”,
the HKSAR is exchanging and cooperating with other cities in the Greater Bay Area on
combating climate change, and take forward the ecological civilization of the Greater Bay
Area.
(III) Further strengthen policies and actions
Looking ahead, the HKSAR Government will continue to implement Hong Kong’s Climate
Action Plan 2030+. In respect of mitigation, in order to achieve the 2030 target, the HKSAR
Government will continue to improve the fuel mix for electricity generation, improve energy
efficiency, develop low-carbon transportation systems, and promote the development of a
green and low-carbon community. To formulate a long-term decarbonisation strategy for the
HKSAR, the Government has invited the Council for Sustainable Development to collect
views from various sectors of the community and submit its report and recommendations. In
respect of adaptation, the HKSAR Government will continue to keep track of the latest
scientific reports, update design standards and development plans as and when necessary, and
will continue to conduct research related to climate change, facilitate community engagement,
and implement various measures to combat climate change.
As a Special Administrative Region of China, the HKSAR will continue to actively
participate in global climate actions, promote the effective implementation of the Paris
52
Agreement, and further promote international and regional cooperation on such platforms as
the C40 Cities Climate Leadership Group and Hong Kong-Guangdong Joint Working Group
on Environmental Protection and Combating Climate Change to actively combat climate
change.
53
Annex II: Macao Special Administrative Region’s Climate
Change Target and Progress
(I) Macao’s Climate Change Targets and Progress
The Government of Macao Special Administrative Region (Macao SAR) has been actively
promoting mitigation and adaptation efforts to address climate change. In order to align with
the national target of addressing climate change of China, the Macao SAR Government has
set a greenhouse gas mitigation target of 40%-45% reduction of carbon intensity in 2020
compared to 2005. Macao’s carbon intensity in 2019 is 6.21 tons of carbon dioxide equivalent
(CO
2
-e) per million Macao Pataca (MOP), a 67.1% decrease compared to 18.9 tons of CO
2
-e
per million MOP in 2005. Therefore, the Macao SAR Government has achieved the
mitigation target ahead of schedule.
(II) Policies and Actions to Address Climate Change and their Effectiveness
1. Institutional and policy innovations to address climate change
As early as in the 2010 Policy Address, the Macao SAR Government put forward the concept
of “Building a Low Carbon Macao and Sharing a Green Life” to ensure the sustainable
development of Macao, develop low-carbon technologies, encourage the development of
green and low-carbon industries, and facilitate the transition to a low-emission and
low-consumption economic model, so as to actively support and cooperate with the country’s
policies and actions to address climate change.
In the same year, the “Environmental Protection Planning of Macao (2010-2020)” was
formulated, focusing on four core principal concepts, namely, sustainable development, low
carbon development, public participation and regional cooperation, with improving the living
environment and ensuring residents’ health as the important goal. The plan is divided into
three phases: short-term (2010-2012), medium-term (2013-2015) and long-term (2016-2020).
In the “Five-Year Development Plan of the Macao SAR (2016-2020)” formulated in 2016, the
Macao SAR Government determined the action plan to actively cooperate with the country’s
green development strategy and vigorously encourage a green, low carbon, low emission,
civilized and healthy lifestyle.
2. Reduce greenhouse gas emissions
In order to achieve the emission reduction targets, the Macao SAR Government has continued
to implement various policies and actions to address climate change in recent years, and is
committed to promoting the construction of a low-carbon economy and society to mitigate
climate change through policies and measures such as optimizing the energy structure,
controlling emissions in the transportation sector, promoting energy conservation and
efficiency, encouraging the hotel industry to reduce emissions, increasing carbon sinks, and
advocating low-carbon lifestyles.
54
First, optimize the energy structure. With the development of social economy and the increase
of electricity demand, the power purchased by the Macao SAR from mainland China is on the
rise year by year. At the same time, in order to reduce electricity-related emissions, the Macao
SAR introduced natural gas instead of heavy oil and formally launched natural gas power
generation in 2008. The proportion of electricity generated using natural gas increased from
30.9% in 2008 to 72.6% in 2019. In addition, the Macao SAR has made efforts to encourage
renewable energy by conducting pilot projects of solar water heating systems and
photovoltaic systems in various public sectors and social housing, providing the industry with
technical specifications for photovoltaic power generation, and establishing a feed-in tariff
system to encourage investors to install photovoltaic systems to improve the structure of
energy consumption in the Macao SAR, thereby reducing greenhouse gas emissions.
Second, control emissions in the transportation sector. In 2016, the Macao SAR Government
formulated the “Short-, Medium- and Long-term Planning for Promotion of
Environment-friendly Vehicles” to vigorously encourage environment friendly vehicles,
including the introduction of natural gas buses and electric taxis, as well as the promotion of
the use of electric private cars and the construction of additional car charging spaces in public
parking lots and roads. As of October 2020, 200 additional charging spaces have been
installed in public parking lots and roads.
Third, promote energy conservation and efficiency. In 2017, the Macao SAR Government
implemented the LED street light replacement program, gradually replacing about 14,000
street lights in Macao from high-pressure sodium lamps to LED lamps, making street lighting
more energy efficient. By September 2020, LED street lights have accounted for about 41%
of all street lights in Macao.
Fourth, encourage the hotel industry to reduce emissions. The Macao SAR Government
organizes the “Macao Green Hotels Award” to encourage the hotel and related industries to
achieve environment friendly, low carbon and clean development, and set emission reduction
targets.
Fifth, encourage low-carbon lifestyle. The Macao SAR Government requires schools to
provide relevant curricula at all levels of education, and provides guide schools to integrate
climate change and environmental protection issues into their courses. The Macao SAR
Government also actively encourages public education activities, such as Earth Day, World
Car Free Day, Earth Hour and others, and encourages green and low-carbon lifestyle through
various media such as TV and the internet.
Sixth, increase carbon sinks. The Macao SAR Government continues to construct plant
shelters in squares and streets, increase the green space in all districts of Macao through road
greening, vertical planting, and rooftop greening. Since 2015, more than 10,000 mangrove
saplings have been planted along the shoreline of the leisure area on Taipa Waterfront, more
than 4,000 trees have been planted in Coloane for forest area renovation, and more than 3,600
trees have been planted in parks, leisure areas and sidewalks.
3. Improve the capability of climate change adaptation
With global climate change and sea level rise, the risk of the Macao SAR being affected by
55
extreme weather and severe storm surges has also increased. The Macao SAR Government is
committed to improving capability to withstand extreme weather from various aspects. In
addition, due to the small size of the Macao SAR, the land available for building water
storage facilities is very limited, and more than 96% of the drinking water source is imported
from Zhuhai, Guangdong Province. Therefore, the Macao SAR Government is committed to
taking measures to stabilize water resources.
First, improve the capability to withstand extreme weather. In 2017, the Macao SAR
Government established the “Committee for the Review of the Mechanism for Responding to
Major Disasters and Its Follow-up and Improvement” to assist in monitoring and formulating
crisis management plans for major disasters, strengthening the coordination of civil defense
work and information dissemination. In 2018, more than 100 substations in low-lying areas
were raised and waterproofed, and the standards for the installation of electrical facilities in
new buildings were revised. The storm surge warning system and rainstorm warning system
were optimized to improve the capability of government departments and citizens to respond
to climate change.
Second, stabilize water resources. In order to stabilize water resources supply, the Macao
SAR Government has adopted a series of water resources adaptation measures in recent years
to improve the effectiveness of the water supply system and secure emergency water.
Construction of the Coloane Seac Pai Van Waste Water Treatment Plant began in 2018.
4. Support mechanisms and measures
In 2015, the Macao SAR Government established an Inter-departmental Working Group on
Climate Change consisting of 14 government departments to regularly collect information on
energy activities in the Macao SAR in verification for greenhouse gas emissions, as well as to
collect information on policies and measures related to energy conservation and emission
reduction. As a member of the Chinese delegation, the Macao SAR participated in the
Conference of the Parties to the United Nations Framework Convention on Climate Change,
actively participating in the global efforts to address climate change.
(III) Further strengthen policies and actions to address climate change
In line with the country’s climate actions and target to address climate change, the Macao
SAR Government has proposed an enhanced target for 2030: a 60%-65% reduction in carbon
intensity in 2030 compared to 2005.
In terms of optimizing the energy structure, the Macao SAR Government is promoting the
development of renewable energy such as photovoltaic power generation and expects to
complete the construction of a new natural gas generating unit in Coloane to replace the old
inefficient diesel generating unit in 2022. In terms of controlling emissions in the
transportation sector, it will continue to implement the public transport priority policy and
encourage the use of environment friendly vehicles.
In terms of adaptation to climate change, firstly, in accordance with the “10-Year Plan for
Disaster Prevention and Mitigation (2019-2028) of the Macao SAR”, the government is to
improve early warning and emergency response mechanisms, etc. Secondly, it is planned to
56
build additional flood control walls and other comprehensive water management support
projects along the coast of the inner harbor, while carrying out flood control planning work on
the western side of Coloane. Thirdly, in order to improve the reserve capacity of freshwater
resources, the project of Capacity Expansion of Ká Hó Reservoir has been implemented, and
the total capacity will increase from about 340,000 cubic meters to about 740,000 cubic
meters.
