China’s “double carbon” strategic goal is an inevitable choice in response to the world’s green and low-carbon development trend, and is also an inherent requirement for sustainable development. This paper analyzes the policy text of Jilin Province in 2022 to achieve peak carbon neutrality, and uses the root theory and NVivo12 plus qualitative analysis software to analyze the policy content at three levels, and constructs a theoretical model of policy process including policy dynamics, policy tools and policy synergy. It is found that the policy motivation of Jilin Province’s carbon neutral policy is insufficient, the frequency and combination of policy tools are unevenly distributed, and the participation of social actors is insufficient. The effectiveness of the “dual carbon” policy should be improved by strengthening the government’s awareness of responsibility and function in the dual carbon policy, optimizing the reasonable combination and application of various policy tools, and constructing a collaborative governance pattern of multiple subjects led by carbon peak.