China Strengthens Fossil Fuel Controls: New Policies Signal Climate Commitment Ahead of Five-Year Plans

China’s Leadership Issues New Climate Policy on Earth Day

On 22 April 2024 – Earth Day – China’s central government published a policy document titled “guiding opinions” calling for stricter controls on fossil-fuel consumption and enhanced oversight of high-emission industries. The document has been widely interpreted by experts as a strong signal of China’s continued commitment to climate action and a transitional policy linking the recently published 15th Five-Year Plan with future thematic and sectoral five-year plans.

The policy document, while not legally binding, carries significant authority as it was jointly issued by the highest political bodies in China. It marks the first high-level document to explicitly connect decarbonisation efforts with energy security and industrial development goals.

On 23 April 2024, a second, legally binding document was released, further strengthening environmental inspections of provincial governments and introducing new evaluation metrics, including total emissions and coal consumption targets.

Why ‘Guiding Opinions’ Matter in China’s Policy Framework

In China’s administrative system, policy documents play a critical role in communicating directives across government agencies. These documents follow a strict hierarchy, each conveying varying levels of importance and flexibility.

“Guiding opinions” are officially defined by the Chinese government as documents that “present views and proposed solutions regarding important issues.” They provide broad principles and general policy directions for lower-level governments to integrate into more specific policies. While the recommendations are not legally binding, they carry long-term, directional, and systematic influence.

Prof. Yuan Jiahai from the North China Electric Power University in Beijing previously told Carbon Brief that naming a document “guiding opinions” ensures it will have a “long-term, directional and systematic impact.” He cited the February 2021 opinion on a “green and low-carbon circular development economic system,” which accelerated green growth across multiple sectors.

Prof. Christoph Nedopil from the University of Queensland told Carbon Brief:

“Following these opinions, China’s green growth accelerated significantly. This is not to say that some of the developments would not have happened without such guidance, but the guidance provided the clear direction and authority to various government departments and businesses to strengthen support for the green and low-carbon transition.”

Key Provisions of the New ‘Guiding Opinions’ on Fossil Fuels

The new “guiding opinions” document focuses on energy conservation and carbon reduction. Its issuance by the General Offices of the Central Committee of the Communist Party of China (CCCPC) and the State Council lends it additional weight. The document outlines several key priorities:

• Stricter controls on fossil-fuel consumption: Targeting coal, oil, and natural gas use across industries.
• Enhanced oversight of heavy emitters: Strengthening monitoring and regulatory measures for high-pollution, high-emission enterprises.
• Linking decarbonisation with energy security: Emphasising the dual goals of reducing emissions while ensuring stable energy supply.
• Industrial development alignment: Encouraging low-carbon innovation and sustainable industrial growth.

Strengthened Climate Evaluation Rules for Provincial Governments

On 23 April 2024, a second, binding policy document was released, introducing stricter environmental inspection protocols for provincial governments. The document introduces new evaluation metrics to assess performance, including:

• Total emissions: Measuring overall greenhouse gas output at the provincial level.
• Coal consumption targets: Setting limits on coal use to reduce air pollution and carbon emissions.
• Environmental compliance: Ensuring adherence to national climate and pollution control standards.

These changes signal a shift toward more measurable and accountable climate governance, with provincial leaders now facing stricter accountability for meeting environmental targets.

Implications for China’s Carbon Peaking Goals

China has committed to peaking its carbon dioxide (CO₂) emissions before 2030 and achieving carbon neutrality by 2060. The new policies are expected to reinforce these goals by:

• Accelerating the phase-out of high-emission industries.
• Promoting renewable energy adoption and energy efficiency improvements.
• Enhancing transparency and enforcement in climate action at all government levels.

Experts suggest that the combination of “guiding opinions” and binding regulations creates a more robust policy framework, ensuring that climate commitments are translated into actionable measures across China’s vast administrative system.