When Coal Won’t Step Aside: The Challenge of Scaling Clean Energy in China

This report by Global Energy Monitor and the Centre for Research on Energy and Clean Air (CREA) examines the conflicting dynamics of China's energy transition in 2024, where record-breaking clean energy expansion is occurring simultaneously with a significant increase in coal power construction and approvals.

• China's coal power activity remains high despite some signs of slowing in permits. In 2024, 66.7 GW of new coal power capacity was permitted, and new or revived proposals totaled 68.9 GW, which is a decrease from 117 GW in 2023 and 146 GW in 2022.
• Coal power construction starts in China reached their highest level since 2015, with 94.5 GW of new capacity beginning construction in 2024. This occurs despite a 2021 pledge by President Xi Jinping to 'strictly control coal power projects'. However, actual commissioning slowed to 30.5 GW in 2024, down from 49.8 GW the previous year.
• China's coal expansion stands in stark contrast to global trends; while the global coal fleet outside China shrank by 9.2 GW in 2024, China accounted for 93% of global construction starts for coal power that year.
• Long-term power purchase agreements (PPAs) are entrenching coal's dominance and causing the curtailment of renewables. Since 2020, these PPAs have required coal plants to secure contracts for at least 80% of projected annual output, forcing buyers to prioritize coal over cheaper clean energy to avoid penalties.
• Coal mining companies are primary drivers of new coal power investment to secure demand for their production. In 2024, over 75% of newly approved coal power capacity was backed by coal mining companies or energy groups with mining operations. Approximately 30% of new capacities were integrated pithead plants or mine-to-power projects.
• The intended role of new coal plants as 'regulating' power sources to support renewable integration is being sidelined. In 2024, fewer than 30% of newly permitted coal projects aimed to facilitate solar and wind integration, with most instead citing local energy security, economic development, or heating demands.
• China's clean energy growth is massive but is being layered on top of fossil fuels rather than replacing them. In 2024, China added 356 GW of wind and solar capacity, yet solar curtailment was estimated at 5.47% (a shortfall of 48.2 TWh), which is higher than the official figure of 3.2%.

APA

Qin, Q., & Shearer, C. (2025). When Coal Won’t Step Aside: The Challenge of Scaling Clean Energy in China. Global Energy Monitor. https://globalenergymonitor.org/sites/default/files/migration/reports/CREA_GEM_China_Coal-power_H2-2024_FINAL_11.pdf

Chicago

Qin, Qi, and Christine Shearer. When Coal Won’t Step Aside: The Challenge of Scaling Clean Energy in China. Global Energy Monitor, 2025. https://globalenergymonitor.org/sites/default/files/migration/reports/CREA_GEM_China_Coal-power_H2-2024_FINAL_11.pdf.

Wikipedia

{{cite report |last1=Qin |first1=Qi |last2=Shearer |first2=Christine |title=When Coal Won’t Step Aside: The Challenge of Scaling Clean Energy in China |publisher=Global Energy Monitor |date=13 February 2025 |url=https://globalenergymonitor.org/sites/default/files/migration/reports/CREA_GEM_China_Coal-power_H2-2024_FINAL_11.pdf |access-date=17 August 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{qin2025when, author = {Qin, Qi and Shearer, Christine}, title = {{When Coal Won’t Step Aside: The Challenge of Scaling Clean Energy in China}}, institution = {Global Energy Monitor}, year = {2025}, month = feb, url = {https://globalenergymonitor.org/sites/default/files/migration/reports/CREA_GEM_China_Coal-power_H2-2024_FINAL_11.pdf}, urldate = {2026-08-17}, note = {Indexed by Climate Insights Directory} }