The General Office of the State Council issued the "Work Plan for Accelerating the Construction of a Dual Control System for Carbon Emissions," aiming to build a comprehensive dual control system for carbon emissions.

Work Plan for Accelerating the Construction of a Dual Control System for Carbon Emissions

To implement the decisions and plans of the CPC Central Committee and the State Council, establish a new mechanism for the comprehensive transformation from dual control of energy consumption to dual control of carbon emissions, accelerate the construction of a system for dual control of total carbon emissions and intensity (hereinafter referred to as dual control of carbon emissions), actively and steadily promote carbon peaking and carbon neutrality, and accelerate the green transformation of development mode, this work plan is formulated.

I. General Requirements

Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, and thoroughly implementing the spirit of the 20th CPC National Congress and the Second and Third Plenary Sessions of the 20th CPC Central Committee, we will fully implement Xi Jinping's economic thought and Xi Jinping's thought on ecological civilization, fully and accurately implement the new development philosophy, accelerate the construction of a new development pattern, and strive to promote high-quality development. We will incorporate carbon emission indicators and related requirements into national planning, establish and improve policies, systems and management mechanisms for local carbon assessment, industry carbon control, enterprise carbon management, project carbon evaluation, and product carbon footprint, and effectively connect them with the national carbon emission trading market to build a complete dual control system for carbon emissions, providing strong guarantees for achieving the carbon peak and carbon neutrality goals.

By 2025, the carbon emission statistical accounting system will be further improved, a number of industry and enterprise carbon emission accounting standards and product carbon footprint standards will be introduced and implemented, the national greenhouse gas emission factor database will be basically established and updated regularly, and related measurement, statistics and monitoring capabilities will be improved, laying the foundation for the implementation of dual control of carbon emissions nationwide during the "15th Five-Year Plan" period.

During the 15th Five-Year Plan period, a dual carbon emission control system will be implemented, with intensity control as the main focus and total emission control as a supplement. A comprehensive evaluation and assessment system for carbon peaking and carbon neutrality will be established. The carbon emission accounting capacity of key areas and industries will be strengthened. The management system for key energy-consuming and carbon-emitting units will be improved. Carbon emission assessments of fixed asset investment projects will be carried out. A product carbon footprint management system and a product carbon labeling certification system that conform to China's national conditions will be constructed to ensure that the carbon peaking target is achieved on schedule.

After carbon emissions peak, a dual control system for carbon emissions will be implemented, with total emission control as the main focus and intensity control as a supplement. A carbon neutrality target evaluation and assessment system will be established, and carbon emission control requirements for various regions, key areas, industries, and enterprises will be further strengthened. The product carbon footprint management system will be improved, and a product carbon labeling certification system will be promoted to drive a steady decline in total carbon emissions.

II. Improve carbon emission-related planning and systems

(I) Promote the inclusion of carbon emission targets in planning. Carbon emission targets will be incorporated into national economic and social development plans, taking into full account factors such as economic development, energy security, normal production and life of the people, and nationally determined contribution targets. Carbon emission targets for the five-year planning period will be reasonably determined, and key tasks and major projects will be planned in a coordinated manner. During the 15th Five-Year Plan period, the reduction of carbon emission intensity will be used as a binding indicator for national economic and social development, and total carbon emission accounting will be carried out. Energy intensity will no longer be used as a binding indicator.

(II) Formulate action plans for carbon peaking and carbon neutrality. In accordance with the relevant arrangements of the Five-Year Plan for National Economic and Social Development, research and formulate action plans for carbon peaking and carbon neutrality, and refine the working measures, key tasks, and safeguards for carbon emission target control. During the 15th Five-Year Plan period, refine and implement the arrangements of the "Action Plan for Carbon Peaking before 2030" to ensure that carbon peaking is achieved before 2030.

(III) Improve relevant laws and regulations on carbon emission dual control. Thoroughly review existing laws and policies to ensure they are compatible with the requirements of carbon emission dual control. Accelerate the revision of regulations such as the Measures for Energy Conservation Review of Fixed Asset Investment Projects and the Measures for Energy Conservation Management of Key Energy-Consuming Units, incorporating relevant requirements for carbon emission dual control.

III. Establish a local carbon emission target evaluation and assessment system

(iv) Rationally allocate carbon emission control targets. In the initial stage of the Five-Year Plan, taking into account factors such as the level of economic and social development, regional and functional positioning, and industrial and energy structure, the carbon emission control targets will be rationally allocated to each province. Each province may further refine the allocation of carbon emission control targets and strengthen the responsibility of cities and key enterprises for emission control and reduction.

(V) Establish a comprehensive evaluation and assessment system for carbon peaking and carbon neutrality. Formulate and issue comprehensive evaluation and assessment methods for carbon peaking and carbon neutrality, clarify the evaluation and assessment procedures and the application of results, and conduct evaluation and assessment for each province. Establish a comprehensive evaluation and assessment indicator system, focusing on total carbon emissions and intensity indicators, and incorporating indicators such as energy structure, energy consumption intensity, resource utilization efficiency, ecosystem carbon sinks, and green transformation in key areas.

(VI) Promote the establishment of carbon emission budget management systems at the provincial and municipal levels. Encourage all regions to conduct carbon emission accounting based on their actual conditions, guide provincial and municipal levels to establish carbon emission budget management systems, conduct annual carbon emission analysis and target forecasting, and strengthen coordination with the national carbon emission trading market. Before the end of 2025, guide all regions to conduct pilot carbon emission budget preparation. During the 15th Five-Year Plan period, guide all regions to prepare carbon emission budgets based on carbon emission intensity reduction targets and dynamically adjust them. During the 16th Five-Year Plan period and beyond, promote the establishment of rigid constraint mechanisms for total carbon emission control in all regions, and implement full-process management of five-year planning periods and annual carbon emission budgets.

IV. Exploring carbon emission early warning and control mechanisms in key industries and sectors

(vii) Improve the carbon emission accounting mechanism for key industries. Give full play to the role of industry authorities and industry associations, and focus on industries such as power, steel, non-ferrous metals, building materials, petrochemicals, and chemicals, as well as urban and rural construction and transportation. Rationally delineate the scope of carbon emission accounting for key industries, and conduct carbon emission accounting for key industries based on data from energy and industrial statistics, carbon emission accounting for energy activities and industrial production processes, and the national carbon emission trading market.

(viii) Establish a carbon emission monitoring and early warning mechanism for key industries. Ascertain the baseline carbon emissions and emission reduction potential of key industries, conduct routine carbon emission situation analysis and monitoring, issue early warnings for industries with rapid carbon emission growth, and take measures as appropriate, such as stricter scrutiny of new projects, stricter control over the national carbon emission trading market, and stricter management of key energy-consuming and carbon-emitting entities. When conditions are ripe, incorporate the carbon emission control requirements for key industries into the comprehensive evaluation and assessment indicator system for carbon peaking and carbon neutrality.

V. Improve the enterprise's energy conservation and carbon reduction management system

(ix) Improve the management system for key energy-consuming and carbon-emitting units. Formulate and revise carbon emission accounting rules and standards for key industries such as power, steel, non-ferrous metals, building materials, petrochemicals, and chemicals. Formulate and issue management measures for energy conservation and carbon reduction of key energy-consuming and carbon-emitting units, incorporate carbon emission control requirements into the existing management system for key energy-consuming units, promote the implementation of energy conservation and carbon reduction management requirements by key energy-consuming and carbon-emitting units, and strengthen the allocation, verification, and calibration of energy and carbon emission measuring instruments.

Solution Interpretation

Three stages to achieve carbon peaking and carbon neutrality goals

By 2025

The carbon emission statistical accounting system has been further improved, a number of industry and enterprise carbon emission accounting standards and product carbon footprint standards have been introduced and implemented, the national greenhouse gas emission factor database has been basically established and is updated regularly, and related measurement, statistics and monitoring capabilities have been improved, laying the foundation for the implementation of dual control of carbon emissions nationwide during the "15th Five-Year Plan" period.

"15th Five-Year Plan" period

Implement a dual carbon emission control system with intensity control as the main focus and total emission control as a supplement; establish a comprehensive evaluation and assessment system for carbon peaking and carbon neutrality; strengthen carbon emission accounting capabilities in key areas and industries; improve management systems for key energy-consuming and carbon-emitting units; conduct carbon emission assessments for fixed asset investment projects; and build a product carbon footprint management system and product carbon labeling certification system that are in line with China's national conditions to ensure the timely achievement of the carbon peaking target.

After carbon peak

Implement a dual carbon emission control system with total emission control as the main focus and intensity control as a supplement, establish a carbon neutrality target evaluation and assessment system, further strengthen carbon emission control requirements for various regions, key areas, industries, and enterprises, improve the product carbon footprint management system, promote the product carbon labeling certification system, and promote a steady decline in total carbon emissions.

National level

Incorporate carbon emission targets and related requirements into national plans

Promote the inclusion of carbon emission targets in planning

• Carbon emission targets should be incorporated into national economic and social development plans, taking into full account factors such as economic development, energy security, people's normal production and life, and nationally determined contribution targets, to reasonably determine carbon emission targets for the five-year planning period, and to make overall arrangements for key tasks and major projects.
• During the 15th Five-Year Plan period, carbon emission intensity reduction will be used as a binding indicator for national economic and social development, and total carbon emission accounting will be carried out. Energy consumption intensity will no longer be used as a binding indicator.

Develop action plans for achieving carbon peaking and carbon neutrality.

• In accordance with the relevant arrangements of the Five-Year Plan for National Economic and Social Development, we will study and formulate action plans for achieving carbon peaking and carbon neutrality, and refine the working measures, key tasks and safeguard measures for carbon emission target control.
• During the 15th Five-Year Plan period, we will refine and implement the "Action Plan for Carbon Peaking before 2030" to ensure that carbon peaking is achieved before 2030.

Improve relevant laws and regulations on carbon emission dual control

• A comprehensive review and elimination of existing laws, regulations, and policies that are inconsistent with the dual control requirements for carbon emissions will be conducted.
• Accelerate the revision of regulations such as the Measures for Energy Conservation Review of Fixed Asset Investment Projects and the Measures for Energy Conservation Management of Key Energy-Consuming Units, and incorporate relevant requirements for dual control of carbon emissions.

Local level

Establish a local carbon emission target evaluation and assessment system

Reasonable decomposition of carbon emission control targets

• In the early stages of the Five-Year Plan, taking into account factors such as the level of economic and social development, regional and functional positioning, and industrial and energy structure, the carbon emission control targets were reasonably allocated to each province.
• Provinces can further refine and break down carbon emission control targets, and strengthen the responsibility of cities and key enterprises for emission control and reduction.

Establish a comprehensive evaluation and assessment system for achieving carbon peak and carbon neutrality.

• A comprehensive evaluation and assessment method for achieving carbon peak and carbon neutrality has been formulated and implemented, clarifying the evaluation and assessment procedures and the application of results, and conducting evaluations and assessments for each province.
• A comprehensive evaluation and assessment indicator system will be established, focusing on total carbon emissions and intensity indicators, and incorporating indicators such as energy structure, energy consumption intensity, resource utilization efficiency, ecosystem carbon sinks, and green transformation in key areas.

Promote the establishment of carbon emission budget management systems at the provincial and municipal levels.

• Promote carbon emission accounting in various regions based on their actual conditions, guide provincial and municipal levels to establish carbon emission budget management systems, conduct annual carbon emission analysis and target forecasting, and strengthen working coordination with the national carbon emission trading market.
• Before the end of 2025, guidance will be provided to all regions to conduct pilot preparations of carbon emission budgets. During the 15th Five-Year Plan period, guidance will be provided to all regions to prepare carbon emission budgets based on carbon emission intensity reduction targets and to make dynamic adjustments.
• During the 16th Five-Year Plan period and beyond, efforts will be made to promote the establishment of rigid constraint mechanisms for total carbon emission control in various regions, and to implement full-process management of five-year planning periods and annual carbon emission budgets.

Key industries

Explore carbon emission early warning and control mechanisms

Improve carbon emission accounting mechanisms in key industries and sectors

• Give full play to the role of industry authorities and industry associations, and focus on industries such as power, steel, non-ferrous metals, building materials, petrochemicals, and chemicals, as well as urban and rural construction and transportation. Rationally delineate the scope of carbon emission accounting for these industries, and conduct carbon emission accounting for key industries based on data from energy and industrial statistics, carbon emission accounting for energy activities and industrial production processes, and the national carbon emission trading market.

Establish a carbon emission monitoring and early warning mechanism for various industries.

• We will ascertain the baseline carbon emissions and emission reduction potential of key industries and sectors, conduct regular carbon emission situation analysis and monitoring, issue early warnings for industries and sectors with rapid carbon emission growth, and take measures as appropriate, such as strictly controlling new projects, strictly managing the national carbon emission trading market, and strictly managing key energy-consuming and carbon-emitting units.
• When conditions are ripe, carbon emission control requirements for key industries will be incorporated into the comprehensive evaluation and assessment indicator system for carbon peaking and carbon neutrality.

enterprise

Improve enterprise energy conservation and carbon reduction management system

Improve the management system for key energy-consuming and carbon-emitting units.

• Formulate and revise carbon emission accounting rules and standards for key industries such as power, steel, non-ferrous metals, building materials, petrochemicals, and chemicals.
• Formulate and promulgate management measures for energy conservation and carbon reduction of key energy-consuming and carbon-emitting units, incorporate carbon emission control requirements into the existing management system for key energy-consuming units, promote key energy-consuming and carbon-emitting units to implement energy conservation and carbon reduction management requirements, and strengthen the allocation, verification and calibration of energy and carbon emission measuring instruments.

Give full play to the regulatory role of market mechanisms

• Improve the national carbon emissions trading market regulation mechanism, gradually expand industry coverage, explore a paid quota allocation mechanism, enhance reporting and verification levels, and encourage compliant enterprises to reduce carbon emissions. Improve the national voluntary greenhouse gas emissions reduction trading market, gradually expand supported areas, and promote emissions reduction on a larger scale.
• Accelerate the improvement and development of the green certificate trading market to promote green electricity consumption.

project

Conduct carbon emission assessments of fixed asset investment projects

Improve the energy conservation review system for fixed asset investment projects

• Carbon emission assessment requirements will be incorporated into the energy conservation review of fixed asset investment projects. A comprehensive evaluation of the project's energy consumption and carbon emissions will be conducted, and the relevant review and evaluation opinions will serve as an important basis for the commencement of construction, completion acceptance, and operation management of fixed asset investment projects.

Improve the environmental impact assessment system for construction projects

• Greenhouse gas emission control will be incorporated into environmental impact assessments. The amount and level of greenhouse gas emissions from construction projects will be predicted and evaluated. Environmental impact assessments of greenhouse gas emissions will be carried out in key industries such as power, steel, building materials, non-ferrous metals, petrochemicals, and chemicals to strengthen coordinated control of pollution reduction and carbon reduction.
• Formulate technical specifications for environmental impact assessment of greenhouse gas emissions from key industry construction projects, and improve the environmental impact assessment technical system.

product

Accelerate the establishment of a product carbon footprint management system

Establish rules and standards for product carbon footprint accounting

• Formulate and publish national standards such as the General Rules for Quantifying Product Carbon Footprint, which clearly define and unify the requirements for product carbon footprint accounting principles, accounting methods, and data quality.
• Adhering to the principle of prioritizing urgent needs, we will focus on key products such as electricity, fuel oil, steel, electrolytic aluminum, cement, fertilizer, hydrogen, lime, glass, ethylene, synthetic ammonia, calcium carbide, methanol, coal chemicals, power batteries, photovoltaics, new energy vehicles, and electronic appliances, and organize relevant industry associations, enterprises, and research institutions to formulate and release industry standards or group standards for product carbon footprint accounting.

Strengthen the construction of carbon footprint background database

• Accelerate the construction of a national greenhouse gas emission factor database and establish a regular update and release mechanism to provide benchmark data for local governments and enterprises to conduct product carbon footprint accounting.
• Industry regulatory authorities and qualified regions may establish carbon footprint background databases for key industries as needed, and encourage relevant industry associations, enterprises, and research institutions to explore the establishment of carbon footprint background databases for products in subdivided industry sectors.

Establish a product carbon labeling certification system

• Formulate management measures for product carbon labeling certification, develop relevant national standards for carbon labeling, organize qualified cities to conduct pilot programs focusing on key products, and encourage enterprises to conduct product carbon labeling certification in accordance with market principles.

Remote sensing satellites assist in dual carbon monitoring

Carbon monitoring satellite：Provide technical means for greenhouse gas emission reduction

Accurate carbon emission monitoring is a crucial foundation for developing and evaluating emission reduction control strategies. Compared to traditional air sampling monitoring methods, satellite remote sensing offers advantages such as objectivity, continuity, stability, wide coverage, and repeatability, making it an internationally recognized next-generation global carbon monitoring method. Carbon monitoring satellites provide the technical means to assess the achievement of quantitative greenhouse gas emission reduction targets at different scales, including global, national, and regional levels.

Currently, greenhouse gases in the atmosphere are mainly composed of carbon dioxide and methane. Regarding carbon dioxide monitoring, China launched its first global carbon dioxide monitoring scientific experimental satellite (TanSat) in December 2016. TanSat, a project funded by the Ministry of Science and Technology, aims to achieve high-precision detection of the regional and global atmospheric CO2 column average dry air mixture ratio (XCO), providing global atmospheric CO2 concentration data for carbon emission scientific research. It is the third satellite in the world with high-precision greenhouse gas detection capabilities.

First in China：FP system point source methane monitoring satellite

Methane (CH4), the second largest greenhouse gas on Earth, has a global warming potential 30 times that of carbon dioxide (CO2) over a 100-year period, and its lifespan is approximately 12 years. With the advancement of efforts to address both carbon and carbon emissions, research into CH4 gas monitoring technologies, remote sensing monitoring of CH4 in key areas, and investigation of key emission sources are crucial.

As the only commercial aerospace company in China that independently develops hyperspectral remote sensing satellites, CAS Xi'an Optoelectronics Aerospace resolutely implements the overall national deployment for carbon peaking and carbon neutrality, focusing on the goals of carbon peaking and carbon neutrality by 2030-2060.Successfully developed China's first FP-system point source methane monitoring satellite.This effectively fills the gap in the domestic commercial dual-carbon monitoring satellite market.

The star isChina's first High spatial resolution methane monitoring satellite fully comparable to Canada's GHGsat satelliteEquipped with a methane concentration detector, a chlorophyll fluorescence detector, and a multispectral imaging camera, it has multiple functions, including methane emission changes and drift trends, identification and judgment of carbon production sources, and regional carbon neutrality capacity assessment.Reaching the highest technical standards in China's point source methane satellite monitoring fieldIt can play a positive role in dual-carbon remote sensing monitoring, point source methane monitoring, and assessment of the carbon neutrality potential of natural vegetation and artificial features. It can achieve high-frequency, high-quantity, and high-coverage observation of global point source methane leakage emissions and carbon sinks, effectively improve regional dual-carbon monitoring capabilities, help my country accelerate the formation of a methane emission regulatory system, promote synergistic effects of pollution reduction and carbon reduction, and contribute to my country's ultimate goal of achieving carbon neutrality.