China

China ranks 54th in this year’s CCPI and is still among the very low performing countries. It receives a very low rating in GHG Emissions and Energy Use, medium in Renewable Energy, and high in Climate Policy.

China’s new Nationally Determined Contribution (NDC) aims to reduce net GHG emissions by 7–10% economy-wide from peak levels by 2035, with efforts to exceed this goal. The plan targets a non-fossil fuel share of over 30% in total energy consumption, expanded wind and solar capacity to over six times 2020 levels (~3,600 GW), and an increase in forest stock volume beyond 24 billion m3. It also seeks to ensure that new energy vehicles dominate new sales, extend the national carbon market to major high-emission sectors, and build a climate-resilient society.

Wind and solar targets exceeded, but coal expansion continues at world’s highest pace

In the first quarter of 2025, China’s CO₂ emissions decreased by 1.6%, and by ~1% over the previous 12 months (until May 2025). Unlike with past declines, which were caused by weaker economic activity, the CCPI country experts note that this reduction reflects a structural shift: renewable and nuclear energy is expanding faster than electricity demand, and displacing coal in the power mix.

China exceeded its 2030 wind and solar target of 1,200 GW, set out in its NDC from 2021, by reaching 1,280 GW by October 2024. Wind and solar electricity generation thereby rose by 25% in 2024 from the previous year. The most important policy for expanding renewable energy is the Energy Law of 2024, the country’s first energy law, which came into effect on 1 January 2025. The Chinese National Energy Administration (NEA) also set a new target in January 2025 to add 200 GW clean energy annually from 2025 to 2027. However, the CCPI national experts criticise this as insufficient for keeping up with the 2024 renewable expansion rate.

In contrast with the expanding renewable energy, China is also heavily increasing its fossil fuel energy production. In 2024, coal production reached a new record with more new construction starts than the rest of the world.  The country is among the 10 countries with the largest developed oil, coal and gas reserves, and it currently plans to increase its gas production. The experts caution that ongoing approvals and extensions to the life of coal plants risk locking in emissions. They also criticise the lack of a clear plan for phasing out fossil fuel subsidies.

EV sector is a world leader, ETS expansion is encouraging, while implementation is inconsistent

China has strengthened its policy frameworks for buildings, transport, and industry. The national building plan mandates green-building standards for all new urban construction from 2025 onward. China, producing 70% of the world’s electric vehicles (EVs), continues to dominate this industry. Industry, China’s largest energy-consuming sector, is now included in the planned expansion of the national emissions trading system (ETS) announced in March 2025, through covering the cement, steel, and aluminium industries. Currently, the ETS only covers the power sector.

In international climate policy, China has played an active role in recent years, supporting the Global Stocktake energy package at COP28 and re-engaging in US–China climate diplomacy through the Sunnylands statement, which includes a focus on non-CO₂ gases. In 2021, it also pledged to halt financing for new overseas coal projects, but the CCPI experts criticise that implementation has been inconsistent, with some captive projects still advancing. Therefore, they recommend stricter enforcement of this commitment and extending it to oil and gas infrastructure.

The experts want China to translate the economy-wide absolute cap and decline path in its 15th five-year plan that will be in force from 2026. China also should present a plan for a coal phase-out and raise the annual clean energy build well above 200 GW.

Key Outcomes

CCPI experts

National experts that contributed to the policy evaluation of this year’s CCPI chose to remain anonymous.