Q&A: What does China’s 15th five-year plan for coal mean for climate action?

China has published a new five-year plan for coal, the latest in a slew of important policy documents for the country’s energy transition. The 15th five-year plan for the development of the coal industry was published (NDRC) and the National Energy Administration (NEA) on 10 August, covering the period 2026-2030.  This is a key period, covering the years building up to China’s pledge to peak its carbon dioxide (CO2) emissions “before 2030”. Government-affiliated organisations had previously mooted the possibility of coal consumption peaking before 2027. However, the new plan does not set a specific, government-endorsed year for peaking coal consumption, instead including a broader goal to peak use of the fuel in this five-year period. It also discusses the “green and low-carbon transition” of the coal industry, coal-related methane emissions and the “clean and efficient use” of the fuel. But, in general, the plan emphasises the importance of coal in China’s energy system and focuses on the systems underpinning its production. Analysts tell Carbon Brief that the plan confirms a “broader trend” – driven – in which coal’s role in China as a “cheap and secure” source of energy is reinforced – instead of plotting a phase-down or transition for the industry.  Nevertheless, as the deadline for peaking CO2 emissions looms, the plan does warn the sector of the need to diversify into other industries – including clean energy and chemicals – as coal consumption peaks. Below, Carbon Brief looks closer at what the plan means for China’s use of coal over the next five years and how it relates to wider climate targets. What does the plan say about peaking coal? What does the plan say about China’s coal production? What does the plan say about coal’s greenhouse gas emissions? How does the plan tell coal companies to evolve? Article Contents Expand menu Close What does the plan say about peaking coal? What does the plan say about China’s coal production? What does the plan say about coal’s greenhouse gas emissions? How does the plan tell coal companies to evolve? What does the plan say about peaking coal? Five-year plans are a key tool in Chinese governance, used to guide economic and social development across the economy. The plan for coal is the latest topic-specific document to address climate and energy matters within the 15th five-year plan period of 2026-30. It is subordinate to the overarching 15th five-year plan, which covers China’s broad socio-economic strategy.  Other topic-specific plans for the period cover climate change, developing a “new-type energy system” and renewable energy, among other topics.