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Clean energy contributed a record 11.4tn yuan ($1.6tn) to China’s economy in 2023, accounting for all of the growth in investment and a larger share of economic growth than any other sector.

The new sector-by-sector analysis for Carbon Brief, based on official figures, industry data and analyst reports, illustrates the huge surge in investment in Chinese clean energy last year – in particular, the so-called “new three” industries of solar power, electric vehicles (EVs) and batteries.

Solar power, along with manufacturing capacity for solar panels, EVs and batteries, were the main focus of China’s clean-energy investments in 2023, the analysis shows.

(For this analysis, we used a broad definition of “clean energy” sectors, including renewables, nuclear power, electricity grids, energy storage, EVs and railways. These are technologies and infrastructure needed to decarbonise China’s production and use of energy.)

Other key findings of the analysis include:

  • Clean-energy investment rose 40% year-on-year to 6.3tn yuan ($890bn), with the growth accounting for all of the investment growth across the Chinese economy in 2023.
  • China’s $890bn investment in clean-energy sectors is almost as large as total global investments in fossil fuel supply in 2023 – and similar to the GDP of Switzerland or Turkey.
  • Including the value of production, clean-energy sectors contributed 11.4tn yuan ($1.6tn) to the Chinese economy in 2023, up 30% year-on-year.
  • Clean-energy sectors, as a result, were the largest driver of China’ economic growth overall, accounting for 40% of the expansion of GDP in 2023.
  • Without the growth from clean-energy sectors, China’s GDP would have missed the government’s growth target of “around 5%”, rising by only 3.0% instead of 5.2%.

The surge in clean-energy investment comes as China’s real-estate sector shrank for the second year in a row. This shift positions the clean-energy industry as a key part not only of China’s energy and climate efforts, but also of its broader economic and industrial policy.

However, the spectre of overcapacity means China’s clean-energy investment growth – and its investment-driven economic model, in general – cannot continue indefinitely.

The growing importance of these new industries gives China a significant economic stake in the global transition to clean-energy technologies.

Yet it also poses questions for overseas policymakers attempting to tie their own climate strategies to domestic industrial growth.

Clean energy drives China’s growth in 2023

China’s clean-energy investment boom means the sector accounted for all of the growth in investment across the country’s economy in 2023, with spending in other areas shrinking.

China invested an estimated 6.3tn yuan ($890bn) in clean-energy sectors in 2023, up from 4.6tn yuan in 2022, a 1.7tn yuan (40%) year-on-year increase. In total, clean energy made up 13% of the huge volume of investment in fixed assets in China in 2023, up from 9% a year earlier.

With Chinese investment growing by just 1.5tn yuan in 2023 overall, the analysis shows that clean energy accounted for all of the growth, while investment in sectors such as real estate shrank.

This is shown in the figure below, which also highlights the concentration of clean-energy investment in the so-called “new three” of solar, energy storage and EVs.

Clean energy was also the top contributor to China’s economic growth overall, contributing around 40% of the year-on-year increase in GDP across all sectors.

Clean energy was the top driver of China's economic growth in 2023
Contributions to the growth in Chinese investment (left) and GDP overall (right) in 2023 by sector, trillion yuan. “New three” refers to solar, EVs and storage. Source: Centre for Research on Energy and Clean Air (CREA) analysis for Carbon Brief. Chart by Carbon Brief.

Including the value of goods and services, the clean-energy sector contributed an estimated 11.4tn yuan ($1.6tn) to China’s economy in 2023, an increase of 30% year-on-year.

This means clean energy accounted for 9.0% of China’s GDP in 2023, up from 7.2% in 2022.

Without the contribution of clean-energy sectors to China’s economic growth in 2023, the country would have seen its GDP rise by just 3.0%, instead of the 5.2% actually recorded.

This would have missed government growth targets at a time of increasing concerns over the nation’s economic prospects, amid the ongoing real-estate crisis and declining population.

The major role that clean energy played in boosting growth in 2023 means the industry is now a key part of China’s wider economic and industrial development.

This is likely to bolster China’s climate and energy policies – as well as its “dual carbon” targets for 2030 and 2060 – by enhancing the economic and political relevance of the sector.

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The ‘new three’ dominate clean-energy investment

This analysis is based on a combination of government releases, industry data and analyst reports, with the exact methodology varying sector-by-sector, as set out in the sections that follow.

The table below lists the estimated contributions of each sector to Chinese investment and GDP overall in 2023, as well as the year-on-year growth since 2022.

The analysis includes solar, EVs, energy efficiency, rail, energy storage, electricity grids, wind, nuclear and hydropower within the broad category of “clean-energy sectors”. All of these are technologies and infrastructure needed to decarbonise China’s energy supply and consumption.

The so-called “new three” of solar, storage and EVs are all prominent in the table – and all recorded strong growth.

Our analysis shows that investment in clean power generation and energy storage capacity reached 1.7tn yuan in 2023 (up 48% year-on-year), while investment in manufacturing capacity for solar, EVs and batteries reached 2.5tn yuan (+60%).

Investment in clean-energy infrastructure reached 1.4tn yuan (+9%, comprising grids, EV charging points and railways) and investment in energy efficiency was 600bn yuan (+15%).

Meanwhile, our analysis shows the value of production of goods and services in the clean-technology sectors reached 5.1tn yuan in 2023, increasing 26% year-on-year.

This includes the value of electricity generation, EV sales and solar exports, as well as the transport of passengers and goods via rail.

Sector Activity Value in 2023, CNY bln Value in 2023, USD bln Year-on-year growth
Solar power Investment: power generation capacity 755 107 61%
Solar power Investment: manufacturing capacity 922 131 180%
Solar power Electricity generation 277 39 45%
Solar power Exports of components 533 75 42%
EVs Investment: manufacturing capacity 1,250 177 35%
EVs Investment: charging infrastructure 102 14 33%
EVs Production of vehicles 2,200 311 30%
Energy efficiency Investment: Industry 585 83 14%
Rail transportation Investment 761 108 7%
Rail transportation Transport of passengers and goods 964 136 39%
Energy storage Investment: Pumped hydro 334 47 38%
Energy storage Investment: Electrolyzers 88 12 85%
Energy storage Investment: Battery manufacturing 317 45 116%
Energy storage Investment: Grid-connected batteries 75 11 364%
Power grid Investment: transmission capacity 540 76 8%
Wind power Investment: power generation capacity, onshore 330 47 85%
Wind power Investment: power generation capacity, offshore 72 10 17%
Wind power Electricity generation 363 51 12%
Nuclear power Investment: power generation capacity 87 12 45%
Nuclear power Electricity generation 195 28 4%
Hydropower Investment: power generation capacity 80 11 -1%
Hydropower Electricity generation 512 72 -6%
Total Investments 6,297 891 39%
Total Production of goods and services 5,082 719 26%
Total Total GDP contribution 11,379 1,610 33%

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Solar power

Solar was the largest contributor to growth in China’s clean-technology economy in 2023. It recorded growth worth a combined 1tn yuan of new investment, goods and services, as its value grew from 1.5tn yuan in 2022 to 2.5tn yuan in 2023, an increase of 63% year-on-year.

While China has dominated the manufacturing and installations of solar panels for years, the growth of the industry in 2023 was unprecedented.

On the installation side, two major central government initiatives drove increased volumes, namely the “whole-county distributed solar” and the “clean energy base” programmes.

In addition, in response to the slowdown in the real-estate sector, the central government introduced a new policy at the start of 2023, to encourage the development of solar power industries on unused and existing construction lands.

Meanwhile, during the annual legislative meetings in the spring of 2023, 15 provinces prioritised solar industry development in their government work agendas.

Detailed data on the growth in China’s solar installations in the first 11 months of the year is shown in the figure below. (An estimated 200GW was added across the country during 2023 as a whole, more than doubling from the record of 87GW set in 2022.)

China installed record amounts of new solar capacity in 2023
Solar capacity newly installed in China in January to November each year, gigawatts. Source: National Energy Administration. Chart by Carbon Brief.

At the same time, China’s solar manufacturing industry recorded even stronger growth in 2023. China added 340 gigawatts (GW) of polysilicon production capacity and 300GW of wafer, cell and module production capacity in 2023, according to the International Energy Agency (IEA).

China experienced a significant increase in solar product exports in 2023. It exported 56GW of solar wafers, 32GW of cells and 178GW of modules in the first 10 months of the year, up 90%, 72% and 34% year-on-year respectively, according to the China Photovoltaic Industry Association. However, due to falling costs, the export value of these solar products only increased by 3%.

Within the overall export growth there were notable increases in China’s solar exports to countries along the “belt and road”, to southeast Asian nations and to several African countries.

For this analysis, the value of investments in new solar manufacturing capacity was estimated from the average capital costs of each step in the supply chain, taken from a compilation of reported project costs. This gave a significantly lower cost level than reported in other literature.

The analysis assumes that local government investment in facilities and infrastructure, as well as direct subsidies, added 30% to the reported private investment.

Investment in solar power was estimated by multiplying the newly added capacity from Bloomberg New Energy Finance by the unit investment costs for rooftop and utility-scale systems from China Photovoltaic Industry Association.

The value of exported solar power equipment was based on China Photovoltaic Industry Association data for 2022 and reported export growth for 2023.

The value of solar power equipment produced for domestic installation was not included in our analysis, to avoid overlap with the already-estimated investment costs for domestic solar projects.

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Wind power

China installed 41GW of wind power capacity in the first 11 months of 2023, an increase of 84% year-on-year in new additions. Some 60GW of onshore wind alone was due to be added across 2023, according to China Galaxy Securities, based on trends in previous years.

In addition, offshore wind capacity increased by 6GW across the whole of 2023.

Wind capacity added in the first 11 months of each year is shown in the figure below.

China installed record amounts of new wind capacity in 2023
Wind capacity newly installed in China in January to November each year, gigawatts. Source: National Energy Administration. Chart by Carbon Brief.

By the end of 2023, the first batch of “clean-energy bases” were expected to have been connected to the grid, contributing to the growth of onshore wind power, particularly in regions such as Inner Mongolia and other northwestern provinces. The second and third batches of clean-energy bases are set to continue driving the growth in onshore wind installations.

The market is also being driven by the “repowering” of older windfarms, supported by central government policies promoting the model of replacing smaller, older turbines with larger ones.

The potential for distributed wind power is also being explored, with initiatives such as the “villages wind utilisation action” being planned for active implementation.

Progress on offshore wind power construction in 2023 got off to a slow start. This is a reflection of a shift from nearshore to deeper offshore projects and from single projects to larger bases.

Offshore wind projects are also facing complex approval processes, involving multiple regulatory aspects, leading to uncertainties and slower-than-expected installations.

However, these issues are being addressed and the fourth quarter of 2023 saw a rebound in offshore wind construction, with 2024 expected to be a significant year for project deliveries.

Since 2021, new wind projects in China no longer receive subsidies from the central government.

Despite technological advancements reducing costs, increases in raw material prices have resulted in lower profit margins compared to the solar industry, leading to a smaller overall investment in wind power relative to solar power.

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Electric vehicles

China’s production of electric vehicles grew 36% year-on-year in 2023 to reach 9.6m units, a notable 32% of all vehicles produced in the country.

The vast majority of EVs produced in China are sold domestically, with sales growing strongly despite the phase-out of purchase subsidies announced in 2020 and completed at the end of 2022.

The national purchase subsidy for EVs was a central government finance instrument that had been fostering the EV market for 13 years. Its demise highlights a gradual shift from policy-driven to market-driven demand, making growth more likely to be sustained.

Sales of EVs made in China reached 9.5m units in 2023, a 38% year-on-year increase. Of this total, 8.3m were sold domestically, accounting for one-third of Chinese vehicle sales overall, while 1.2m EVs were exported, a 78% year-on-year increase.

The growth of “new energy vehicle” (NEV, mainly EVs) production and sales is shown in the figure below, which also shows their rising share of all vehicles sold.

Production and sales of new energy vehicles are surging in China
Production and sales of all vehicles and “new energy vehicles” (NEVs) in China, from National Bureau of Statistics and China Association of Automobile Manufacturers data via Wind Financial Terminal. NEVs include battery electric vehicles and plug-in hybrids. The right-hand side shows the share of NEVs out of all new vehicles sold, and the cumulative share over the preceding 10 years, as an indicator of the share of NEVs out of vehicles on the road. Chart by Carbon Brief.

China’s EV market is highly competitive, with at least 94 brands offering more than 300 models. Domestic brands account for 81% of the EV market, with BYD, Wuling, Chery, Changan and GAC among the top players.

Sustaining this growth has required major investment in manufacturing capacity.

This analysis estimates investments in EV manufacturing capacity based on a study by China International Association for Promotion of Science and Technology (CIAPST), which put investment in EV manufacturing at 0.7tn yuan in 2021.

The analysis assumes that EVs accounted for all of the growth in investment in vehicle manufacturing capacity reported by China’s national bureau of statistics (NBS) in 2022 and 2023, while investment in conventional vehicles was stable

This implies that investment in EV manufacturing reached CNY 1.2tn yuan in 2023. This is likely to be conservative, because production volumes for combustion engine vehicles are falling, implying a corresponding fall in investment.

This analysis accounts for the expansion of battery manufacturing capacity separately – alongside electricity storage – even though it is being driven by the growth in EV production.

The analysis estimates the value of EV production, including both domestic sales and exports, based on vehicle production volumes from NBS and the reported average EV price.

These EV prices include the value of batteries produced for EVs, so the value of battery production is not included separately.

Meanwhile, EV charging infrastructure is expanding rapidly, enabling the growth of the EV market. In 2022, more than 80% of the downtown areas of “first-tier” cities – megacities such as Beijing, Shanghai and Guangzhou – had installed charging stations, while 65% of the highway service zones nationwide provided charging points.

More than 3m new charging points were put into service during 2023, including 0.93m public and 2.45m private chargers. The accumulated total by November 2023 reached 8.6m charging points.

This analysis puts investment in EV charging infrastructure at 0.1tn yuan in 2023, based on an estimated average cost of 30,000 yuan per charging point.

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Energy efficiency

China’s energy intensity reduction targets have put pressure on industries to reduce their energy use per unit of output, spurring investment in more efficient processes.

For this analysis, the size of the market for energy service companies is used as a proxy for investment in energy efficiency in industries and buildings. This market grew to an estimated 0.6tn yuan in 2023, up from 0.5tn yuan in 2022, based on the revenue growth of the top 10 listed energy service companies ranked by market capitalization, for the first two or three quarters of 2023.

Over the past two decades, China’s energy service sector has experienced rapid expansion, growing from 1.8bn yuan in 2003 to 607bn yuan in 2021. Investment in the industrial service sector has been a key driver, accounting for about 60% of the total investment.

However, 2022 saw a significant downturn in the industrial energy service output, influenced by poor industrial growth, even though the building service sector continued expanding.

This analysis puts China’s investment in building energy efficiency at 80bn yuan per year. The country’s 14th five-year plan for energy savings in buildings and development of “green buildings” targets 80m square metres per year of renovated and newly built green buildings.

Compared with the almost 1,000m square metres of building space completed annually, this is a small percentage, and accordingly, the estimated value of total investments is modest.

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Electricity storage and hydrogen

China is rapidly scaling up electricity storage capacity. This has the potential to significantly reduce China’s reliance on coal- and gas-fired power plants to meet peaks in electricity demand and to facilitate the integration of larger amounts of variable wind and solar power into the grid.

The construction of pumped hydro storage capacity increased dramatically in the last year, with capacity under construction reaching 167GW, up from 120GW a year earlier.

This growth is illustrated in the figure below, which shows pumped hydro capacity under construction or in earlier stages of development at the end of 2023.

New pumped storage capacity in China, map.
Capacity of pumped hydro storage projects under construction or in earlier stages of development at the end of 2023, GW. Source: Global Energy Monitor global hydropower tracker.

Data from Global Energy Monitor identifies another 250GW in pre-construction stages, indicating that there is potential for the current surge in capacity to continue.

For this analysis, estimated annual investments in pumped storage are assumed to be proportional to the capacity under construction, while the reported construction cost of 6 yuan per watt is spread over three years. This implies that investment in 2023 amounted to 0.3tn yuan.

Construction of new battery manufacturing capacity was another major driver of investments, estimated at 0.3tn. This is based on the added capacity reported by the China Automotive Power Battery Industry Innovation Alliance and estimated average investment costs per unit of production capacity, taken from a compilation of publicly reported project costs.

Investment in electrolysers for “green” hydrogen production almost doubled year-on-year in 2023, reaching approximately 90bn yuan, based on estimates for the first half of the year from SWS Research. Analyst reports and compilations of projects published in news media put far larger numbers on China’s investments in green hydrogen, but these generally include the spending on electricity generation, which in this analysis is accounted for separately.

Investment in “new energy storage technologies” – a classification dominated by batteries – more than doubled in 2023, reaching 75bn yuan. This estimate is based on newly added capacity in 2023 reported by China Energy Storage Alliance and average investment costs calculated from National Energy Administration data.

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Railways

China’s ministry of transportation reported that investment in railway construction increased 7% in January–November 2023, implying investment of 0.8tn for the full year. This includes major investments in both passenger and freight transport. Investment in roads fell slightly, while investment in railways overall grew by 22%.

The share of freight volumes transported by rail in China has increased from 7.8% in 2017 to 9.2% in 2021, thanks to the rapid development of the railway network.

In 2022, some 155,000km of rail lines were in operation, of which 42,000km were high-speed. This is up from 146,000km of which 38,000km were high-speed in 2020.

The value of passenger and freight transportation on China’s railways increased by 39% year-on-year in 2023, reaching nearly 1tn yuan.

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Nuclear power

In 2023, 10 nuclear power units were approved in China, exceeding the anticipated rate of 6-8 units per year set by the China Nuclear Energy Association in 2020 for the second year in a row.

There are 77 nuclear power units that are currently operating or under construction in China, the second-largest total in the world. The total yearly investment in 2023 was estimated for this analysis at 87bn yuan, an increase of 45% year-on-year, based on data for January–November from the National Energy Administration.

The highest numbers of nuclear projects are located in coastal provinces with large concentrations of heavy industry, such as Guangdong, Fujian and Zhejiang, as the development of inland nuclear power projects remains stalled.

These provinces get around 20% of their electricity from nuclear power and continue to expand the technology as part of their efforts to cut emissions from their power sectors.

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Electricity grids

China’s power-sector development plans include a major increase in inter-provincial electricity transmission capacity and numerous long-distance transmission lines from west to east.

State Grid, the government-owned operator that runs the majority of the country’s electricity transmission network, has a target to raise inter-provincial power transmission capacity to 300GW by 2025 and 370GW by 2030, from 230GW in 2021. These plans play a major role in enabling the development of clean energy bases in western China.

China Electricity Council reported investments in electricity transmission at 0.5tn yuan in 2023, up 8% on year – just ahead of the level targeted by State Grid.

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Why clean energy took off in 2023

The clean-energy investment boom in 2023 is the outcome of a major pivot in China’s macroeconomic strategy. As this analysis shows, investment flowed from real estate into manufacturing – primarily in the clean-energy sector.

Total investment in the manufacturing industry increased by 9% year-on-year in 2023, while investment in the power and heat sectors climbed 23%. These increases were entirely due to growth in investment in clean energy, with investment in other areas falling. Therefore, China’s pivot into manufacturing was, in reality, a pivot to cleantech manufacturing.

The reason for this pivot was the contraction in the real-estate sector, where investment fell by 10% year-on-year in 2022 and another 9% in 2023. While this drop was in line with the government’s aim to address financial risks and excess leverage in the sector, it left a major hole in aggregate investment demand and in the revenue of China’s local governments.

Local governments were under pressure to attract investment, meaning that they offered generous subsidies and helped arrange financing.

The central government, for its part, eased private-sector access to financial markets and bank loans during the Covid-19 pandemic, facilitating the growth of the clean-energy sector.

Unlike the state-owned firms dominating traditional industries, the low-carbon sector, largely composed of private companies, gained access to previously constrained credit.

The significance of this economic shift is reflected not only in the figures revealed by this analysis but also in the language being used by Chinese media.

The three largest of clean-energy sectors by value, namely solar, storage and EVs, are being referred to as the “new three”, in contrast to the “old three” – clothing, home appliances and furniture.

This pivot was only possible because China’s clean-energy policies and wider industrial policy had built the foundation and scaled up these sectors so that they were primed for rapid growth.

The post-Covid credit “push” for clean energy growth also coincided with a demand “pull”, driven by falling costs and the increased competitiveness of low-carbon technologies against fossil fuels due to technological advancements.

Moreover, the announcement in 2020 of the 2060 carbon neutrality target had raised expectations and provided the political signal for the scale-up.

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What clean-energy growth means for China – and the world

Clean technology has been an important part of China’s energy policy, industrial strategy and climate change efforts for a long time. Last year marked the first time that the sector also became a key economic driver for the country. This has important implications.

China’s reliance on the clean-technology sectors to drive growth and achieve key economic targets boosts their economic and political importance. It could also support an accelerated energy transition.

The massive investment in clean technology manufacturing capacity and exports last year means that China has a major stake in the success of clean energy in the rest of the world and in building up export markets.

For example, China’s lead climate negotiator Su Wei recently highlighted that the goal of tripling renewable energy capacity globally, agreed in the COP28 UN climate summit in December, is a major benefit to China’s new energy industry. This will likely also mean that China’s efforts to finance and develop clean energy projects overseas will intensify.

Globally, China’s unprecedented clean-energy manufacturing boom has pushed down prices, with the cost of solar panels falling 42% year-on-year – a dramatic drop even compared to the historical average of around 17% per year, while battery prices fell by an even steeper 50%.

This, in turn, has encouraged much faster take-up of clean-energy technologies.

Projections of solar power deployment, in particular, have been upended. The IEA’s latest World Energy Outlook introduced an additional global energy scenario just to look at the implications, projecting that if global deployment of solar power and grid-connected batteries follows the expansion of manufacturing capacity, then global power-sector coal use and carbon dioxide emissions could be a sizable 15% lower than in the base case by 2030. Most of the additional deployment of solar in the IEA’s revised projections is in China.

Even with the increased deployment, however, there is a limit to how much solar power, batteries and other clean technology can be absorbed, as the manufacturing expansion has already saturated most of the global market.

This means that the expansion will run into overcapacity, if maintained. On the other hand, in order to keep driving growth in investment, clean-technology manufacturing would need to not only absorb as much capital as it did in 2023, but keep increasing investment year after year.

The clean-technology investment boom has provided a new lease of life to China’s investment-led economic model. There are new clean-energy technologies where there is scope for expansion, such as electrolysers.

Eventually, however, entirely new sectors will have to be found for investment – or China’s economic model will have to be transformed once there is nowhere left for investment to flow.

The manufacturing boom also cements China’s dominant position in clean-energy supply chains. Other countries therefore face a choice of whether they want to benefit from the low-cost supply of solar panels, batteries, EVs and other clean-energy technology from China.

The alternative is diversifying their supply and paying the cost of building new supply chains, in the form of subsidies and import tariffs required to enable domestic producers or producers in third countries to compete against Chinese suppliers. Such efforts would further increase supply and push down global prices even further.

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Analysis: Clean energy was top driver of China’s economic growth in 2023

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Climate Change

The 2026 budget test: Will Australia break free from fossil fuels?

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In 2026, the dangers of fossil fuel dependence have been laid bare like never before. The illegal invasion of Iran has brought pain and destruction to millions across the Middle East and triggered a global energy crisis impacting us all. Communities in the Pacific have been hit especially hard by rising fuel prices, and Australians have seen their cost-of-living woes deepen.

Such moments of crisis and upheaval can lead to positive transformation. But only when leaders act with courage and foresight.

There is no clearer statement of a government’s plans and priorities for the nation than its budget — how it plans to raise money, and what services, communities, and industries it will invest in.

As we count down the days to the 2026-27 Federal Budget, will the Albanese Government deliver a budget for our times? One that starts breaking the shackles of fossil fuels, accelerates the shift to clean energy, protects nature, and sees us work together with other countries towards a safer future for all? Or one that doubles down on coal and gas, locks in more climate chaos, and keeps us beholden to the whims of tyrants and billionaires.

Here’s what we think the moment demands, and what we’ll be looking out for when Treasurer Jim Chalmers steps up to the dispatch box on 12 May.

1. Stop fuelling the fire
2. Make big polluters pay
3. Support everyone to be part of the solution
4. Build the industries of the future
5. Build community resilience
6. Be a better neighbour
7. Protect nature

1. Stop fuelling the fire

Action Calls for a Transition Away From Fossil Fuels in Vanuatu. © Greenpeace
The community in Mele, Vanuatu sent a positive message ahead of the First Conference on Transitioning Away from Fossil Fuels. © Greenpeace

In mid-April, Pacific governments and civil society met to redouble their efforts towards a Fossil Fuel Free Pacific. Moving beyond coal, oil and gas is fundamental to limiting warming to 1.5°C — a survival line for vulnerable communities and ecosystems. And as our Head of Pacific, Shiva Gounden, explained, it is “also a path of liberation that frees us from expensive, extractive and polluting fossil fuel imports and uplifts our communities”.

Pacific countries are at the forefront of growing global momentum towards a just transition away from fossil fuels, and it is way past time for Australia to get with the program. It is no longer a question of whether fossil fuel extraction will end, but whether that end will be appropriately managed and see communities supported through the transition, or whether it will be chaotic and disruptive.

So will this budget support the transition away from fossil fuels, or will it continue to prop up coal and gas?

When it comes to sensible moves the government can make right now, one stands out as a genuine low hanging fruit. Mining companies get a full rebate of the excise (or tax) that the rest of us pay on diesel fuel. This lowers their operating costs and acts as a large, ongoing subsidy on fossil fuel production — to the tune of $11 billion a year!

Greenpeace has long called for coal and gas companies to be removed from this outdated scheme, and for the billions in savings to be used to support the clean energy transition and to assist communities with adapting to the impacts of climate change. Will we see the government finally make this long overdue change, or will it once again cave to the fossil fuel lobby?

2. Make big polluters pay

Activists Disrupt Major Gas Conference in Sydney. © Greenpeace
Greenpeace Australia Pacific activists disrupted the Australian Domestic Gas Outlook conference in Sydney with the message ‘Gas execs profit, we pay the price’. © Greenpeace

While our communities continue to suffer the escalating costs of climate-fuelled disasters, our Government continues to support a massive expansion of Australia’s export gas industry. Gas is a dangerous fossil fuel, with every tonne of Australian gas adding to the global heating that endangers us all.

Moreover, companies like Santos and Woodside pay very little tax for the privilege of digging up and selling Australians’ natural endowment of fossil gas. Remarkably, the Government currently raises more tax from beer than from the Petroleum Resource Rent Tax (PRRT) — the main tax on gas profits.

Momentum has been building to replace or supplement the PRRT with a 25% tax on gas exports. This could raise up to $17 billion a year — funds that, like savings from removing the diesel tax rebate for coal and gas companies, could be spent on supporting the clean energy transition and assisting communities with adapting to worsening fires, floods, heatwaves and other impacts of climate change.

As politicians arrive in Canberra for budget week, they will be confronted by billboards calling for a fair tax on gas exports. The push now has the support of dozens of organisations and a growing number of politicians. Let’s hope the Treasurer seizes this rare window for reform.

3. Support everyone to be part of the solution

As the price of petrol and diesel rises, electric vehicles (EVs) are helping people cut fuel use and save money. However, while EV sales have jumped since the invasion of Iran sent fuel prices rising, they still only make up a fraction of total new car sales. This budget should help more Australians switch to electric vehicles and, even more importantly, enable more Australians to get around by bike, on foot, and on public transport. This means maintaining the EV discount, investing in public and active transport, and removing tax breaks for fuel-hungry utes and vans.

Millions of Australians already enjoy the cost-saving benefits of rooftop solar, batteries, and getting off gas. This budget should enable more households, and in particular those on lower incomes, to access these benefits. This means maintaining the Cheaper Home Batteries Program, and building on the Household Energy Upgrades Fund.

4. Build the industries of the future

Protest of Woodside and Drill Rig Valaris at Scarborough Gas Field in Western Australia. © Greenpeace / Jimmy Emms
Crew aboard Greenpeace Australia Pacific’s campaigning vessel the Oceania conducted a peaceful banner protest at the site of the Valaris DPS-1, the drill rig commissioned to build Woodside’s destructive Burrup Hub. © Greenpeace / Jimmy Emms

If we’re to transition away from fossil fuels, we need to be building the clean industries of the future.

No state is more pivotal to Australia’s energy and industrial transformation than Western Australia. The state has unrivaled potential for renewable energy development and for replacing fossil fuel exports with clean exports like green iron. Such industries offer Western Australia the promise of a vibrant economic future, and for Australia to play an outsized positive role in the world’s efforts to reduce emissions.

However, realising this potential will require focussed support from the Federal Government. Among other measures, Greenpeace has recommended establishing the Australasian Green Iron Corporation as a joint venture between the Australian and Western Australian governments, a key trading partner, a major iron ore miner and steel makers. This would unite these central players around the complex task of building a large-scale green iron industry, and unleash Western Australia’s potential as a green industrial powerhouse.

5. Build community resilience

Believe it or not, our Government continues to spend far more on subsidising fossil fuel production — and on clearing up after climate-fuelled disasters — than it does on helping communities and industries reduce disaster costs through practical, proven methods for building their resilience.

Last year, the Government estimated that the cost of recovery from disasters like the devastating 2022 east coast floods on 2019-20 fires will rise to $13.5 billion. For contrast, the Government’s Disaster Ready Fund – the main national source of funding for disaster resilience – invests just $200 million a year in grants to support disaster preparedness and resilience building. This is despite the Government’s own National Emergency Management Agency (NEMA) estimating that for every dollar spent on disaster risk reduction, there is a $9.60 return on investment.

By redirecting funds currently spent on subsidising fossil fuel production, the Government can both stop incentivising climate destruction in the first place, and ensure that Australian communities and industries are better protected from worsening climate extremes.

No communities have more to lose from climate damage, or carry more knowledge of practical solutions, than Aboriginal and Torres Strait Islander peoples. The budget should include a dedicated First Nations climate adaptation fund, ensuring First Nations communities can develop solutions on their own terms, and access the support they need with adapting to extreme heat, coastal erosion and other escalating challenges.

6. Be a better neighbour

The global response to climate change depends on the adequate flow of support from developed economies like Australia to lower income nations with shifting to clean energy, adapting to the impacts of climate change, and addressing loss and damage.

Such support is vital to building trust and cooperation, reducing global emissions, and supporting regional and global security by enabling countries to transition away from fossil fuels and build greater resilience.

Despite its central leadership role in this year’s global climate negotiations, our Government is yet to announce its contribution to international climate finance for 2025-2030. Greenpeace recommends a commitment of $11 billion for this five year period, which is aligned with the global goal under the Paris Agreement to triple international climate finance from current levels.
This new commitment should include additional funding to address loss and damage from climate change and a substantial contribution to the Pacific Resilience Facility, ensuring support is accessible to countries and communities that need it most. It should also see Australia get firmly behind the vision of a Fossil Fuel Free Pacific.

7. Protect nature

Rainforest in Tasmania. © Markus Mauthe / Greenpeace
Rainforest of north west Tasmania in the Takayna (Tarkine) region. © Markus Mauthe / Greenpeace

There is no safe planet without protection of the ecosystems and biodiversity that sustain us and regulate our climate.

Last year the Parliament passed important and long overdue reforms to our national environment laws to ensure better protection for our forests and other critical ecosystems. However, the Government will need to provide sufficient funding to ensure the effective implementation of these reforms.

Greenpeace has recommended $500 million over four years to establish the National Environment Agency — the body responsible for enforcing and monitoring the new laws — and a further $50 million to Environment Information Australia for providing critical information and tools.

Further resourcing will also be required to fulfil the crucial goal of fully protecting 30% of Australian land and seas by 2030. This should include $1 billion towards ending deforestation by enabling farmers and loggers to retool away from destructive practices, $2 billion a year for restoring degraded lands, $5 billion for purchasing and creating new protected areas, and $200 million for expanding domestic and international marine protected areas.

Conclusion

This is not the first time that conflict overseas has triggered an energy crisis, or that a budget has been preceded by a summer of extreme weather disasters, highlighting the urgent need to phase out fossil fuels. What’s different in 2026 is the availability of solutions. Renewable energy is now cheaper and more accessible than ever before. Global momentum is firmly behind the transition away from fossil fuels. The Albanese Government, with its overwhelming majority, has the chance to set our nation up for the future, or keep us stranded in the past. Let’s hope it makes some smart choices.

The 2026 budget test: Will Australia break free from fossil fuels?

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Climate Change

What fossil fuels really cost us in a world at war

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Anne Jellema is Executive Director of 350.org.

The war on Iran and Lebanon is a deeply unjust and devastating conflict, killing civilians at home, destroying lives, and at the same time sending shockwaves through the global economy. We, at 350.org, have calculated, drawing on price forecasts from the International Monetary Fund (IMF) and Goldman Sachs, just how much that volatility is costing us. 

Even under the IMF’s baseline scenario – a de facto “best case” scenario with a near-term end to the war and related supply chain disruptions – oil and gas price spikes are projected to cost households and businesses globally more than $600 billion by the end of the year. Under the IMF’s “adverse scenario”, with prolonged conflict and sustained price pressures, we estimate those additional costs could exceed $1 trillion, even after accounting for reduced demand.

Which is why we urgently need a power shift. Governments are under growing pressure to respond to rising fuel and food costs and deepening energy poverty. And it’s becoming clearer to both voters and elected officials that fossil dependence is not only expensive and risky, but unnecessary. 

People who can are voting with their wallets: sales of solar panels and electric vehicles are increasing sharply in many countries. But the working people who have nothing to spare, ironically, are the ones stuck with using oil and gas that is either exorbitantly expensive or simply impossible to get.

Drain on households and economies

In India, street food vendors can’t get cooking gas and in the Philippines, fishermen can’t afford to take their boats to sea. A quarter of British people say that rising energy tariffs will leave them completely unable to pay their bills. This is the moment for a global push to bring abundant and affordable clean energy to all.

In April, we released Out of Pocket, our new research report on how fossil fuels are draining households and economies. We were surprised by the scale of what we found. For decades, governments have reassured people that energy price spikes are unfortunate but unavoidable – the result of distant conflicts, market forces or geopolitical shocks beyond anyone’s control. But the numbers tell a different story. 

    What we are living through today is not an energy crisis. It is a fossil fuel crisis. In just the first 50 days of the Middle East conflict, soaring oil and gas prices have siphoned an estimated $158 billion–$166 billion from households and businesses worldwide. That is money extracted directly from people’s pockets and transferred, almost instantly, into fossil fuel company balance sheets. And this figure only captures the immediate impact of price spikes, not the permanent economic drain of fossil dependence. Fossil fuels don’t just cost us once, they cost us over and over again.

    First, through our bills. Every time there is a war, an embargo or a supply disruption, fossil fuel prices surge. For ordinary people, this means higher costs for energy, transport and food. Many Global South countries have little or no fiscal space to buffer the shock; instead, workers and families pay the price.

    Second, through our taxes. Governments around the world continue to pour vast sums of public money into fossil fuel subsidies. These are often justified as a way to protect the most vulnerable at the petrol pump or in their homes. But in reality, the benefits are overwhelmingly captured by wealthier households and corporations. The poorest 20% receive just a fraction of this support, while public finances are drained.

    Third, through climate impacts. New research across more than 24,000 global locations gives a granular account of the true costs of extreme heat, sea level rise and falling agricultural yields. Using this data to update IMF modelling of the social cost of carbon, we found that fossil fuel impacts on health and livelihoods amount to over $9 trillion a year. This is the biggest subsidy of all, because these massive and mounting costs are not charged to Big Oil – they are paid for by governments and households, with the poorest shouldering the lion’s share. 

    Massive transfer of wealth to fossil fuel industry

    Adding up direct subsidies, tax breaks and the unpaid bill for climate damages, the total transfer of wealth from the public to the fossil fuel industry amounts to $12 trillion even in a “normal” year without a global oil shock. That’s more than 50% higher than the IMF has previously estimated, and equivalent to a staggering $23 million a minute.

    The fossil fuel industry has become extraordinarily adept at profiting from instability. When conflict drives up prices, companies do not lose, they gain. In the current crisis, oil producers and commodity traders are on track to secure tens of billions of dollars in additional windfall profits, even as households face rising bills and governments struggle to manage the fallout.

    Fossil fuel crisis offers chance to speed up energy transition, ministers say

    This growing disconnect is impossible to ignore. Investors are advised to buy into fossil fuel firms precisely because of their ability to generate profits in times of crisis. Meanwhile, ordinary people are told to tighten their belts.

    In 2026, unlike during the oil shocks of the 1970s, clean energy is no longer a distant alternative. Now, even more than when gas prices spiked due to Russia’s invasion of Ukraine in 2022, renewables are often the cheapest option available. Solar and wind can be deployed quickly, at scale, and without the volatility that defines fossil fuel markets.

    How to transition from dirty to clean energy

    The solutions are clear. Governments must implement permanent windfall taxes on fossil fuel companies to ensure that extraordinary profits generated during crises are redirected to support households. These revenues can be used to reduce energy bills, invest in public services, and accelerate the rollout of clean energy.

    Second, we must shift subsidies away from fossil fuels and towards renewable solutions, particularly those that can be deployed quickly and equitably, such as rooftop and community solar. This is not just about cutting emissions. It is about building a more stable, fair and resilient energy system.

    Finally, we need binding plans to phase out fossil fuels altogether, replacing them with homegrown renewable energy that can shield economies from future shocks. Because what the current crisis has made clear is this: as long as we remain dependent on fossil fuels, we remain vulnerable – to conflict, to price volatility and to the escalating impacts of climate change.

    The true price of fossil fuels is no longer hidden. It is visible in rising bills, strained public finances and communities pushed to the brink. And it is being paid, every day, by ordinary people around the world.

    It’s time for the great power shift

    Full details on the methodology used for this report are available here.

    The Great Power Shift is a new campaign by 350.org global campaign to pressure governments to bring down energy bills for good by ending fossil fuel dependence and investing in clean, affordable energy for all

    Logo of 350.org campaign on “The Great Power Shift”

    Logo of 350.org campaign on “The Great Power Shift”

    The post What fossil fuels really cost us in a world at war appeared first on Climate Home News.

    What fossil fuels really cost us in a world at war

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    Climate Change

    Traditional models still ‘outperform AI’ for extreme weather forecasts

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    Computer models that use artificial intelligence (AI) cannot forecast record-breaking weather as well as traditional climate models, according to a new study.

    It is well established that AI climate models have surpassed traditional, physics-based climate models for some aspects of weather forecasting.

    However, new research published in Science Advances finds that AI models still “underperform” in forecasting record-breaking extreme weather events.

    The authors tested how well both AI and traditional weather models could simulate thousands of record-breaking hot, cold and windy events that were recorded in 2018 and 2020.

    They find that AI models underestimate both the frequency and intensity of record-breaking events.

    A study author tells Carbon Brief that the analysis is a “warning shot” against replacing traditional models with AI models for weather forecasting “too quickly”.

    AI weather forecasts

    Extreme weather events, such as floods, heatwaves and storms, drive hundreds of billions of dollars in damages every year through the destruction of cropland, impacts on infrastructure and the loss of human life.

    Many governments have developed early warning systems to prepare the general public and mobilise disaster response teams for imminent extreme weather events. These systems have been shown to minimise damages and save lives.

    For decades, scientists have used numerical weather prediction models to simulate the weather days, or weeks, in advance.

    These models rely on a series of complex equations that reproduce processes in the atmosphere and ocean. The equations are rooted in fundamental laws of physics, based on decades of research by climate scientists. As a result, these models are referred to as “physics-based” models.

    However, AI-based climate models are gaining popularity as an alternative for weather forecasting.

    Instead of using physics, these models use a statistical approach. Scientists present AI models with a large batch of historical weather data, known as training data, which teaches the model to recognise patterns and make predictions.

    To produce a new forecast, the AI model draws on this bank of knowledge and follows the patterns that it knows.

    There are many advantages to AI weather forecasts. For example, they use less computing power than physics-based models, because they do not have to run thousands of mathematical equations.

    Furthermore, many AI models have been found to perform better than traditional physics-based models at weather forecasts.

    However, these models also have drawbacks.

    Study author Prof Sebastian Engelke, a professor at the research institute for statistics and information science at the University of Geneva, tells Carbon Brief that AI models “depend strongly on the training data” and are “relatively constrained to the range of this dataset”.

    In other words, AI models struggle to simulate brand new weather patterns, instead tending forecast events of a similar strength to those seen before. As a result, it is unclear whether AI models can simulate unprecedented, record-breaking extreme events that, by definition, have never been seen before.

    Record-breaking extremes

    Extreme weather events are becoming more intense and frequent as the climate warms. Record-shattering extremes – those that break existing records by large margins – are also becoming more regular.

    For example, during a 2021 heatwave in north-western US and Canada, local temperature records were broken by up to 5C. According to one study, the heatwave would have been “impossible” without human-caused climate change.

    The new study explores how accurately AI and physics-based models can forecast such record-breaking extremes.

    First, the authors identified every heat, cold and wind event in 2018 and 2020 that broke a record previously set between 1979 and 2017. (They chose these years due to data availability.) The authors use ERA5 reanalysis data to identify these records.

    This produced a large sample size of record-breaking events. For the year 2020, the authors identified around 160,000 heat, 33,000 cold and 53,000 wind records, spread across different seasons and world regions.

    For their traditional, physics-based model, the authors selected the High RESolution forecast model from the Integrated Forecasting System of the European Centre for Medium-­Range Weather Forecasts. This is “widely considered as the leading physics-­based numerical weather prediction model”, according to the paper.

    They also selected three “leading” AI weather models – the GraphCast model from Google Deepmind, Pangu-­Weather developed by Huawei Cloud and the Fuxi model, developed by a team from Shanghai.

    The authors then assessed how accurately each model could forecast the extremes observed in the year 2020.

    Dr Zhongwei Zhang is the lead author on the study and a researcher at Karlsruhe Institute of Technology. He tells Carbon Brief that many AI weather forecast models were built for “general weather conditions”, as they use all historical weather data to train the models. Meanwhile, forecasting extremes is considered a “secondary task” by the models.

    The authors explored a range of different “lead times” – in other words, how far into the future the model is forecasting. For example, a lead time of two days could mean the model uses the weather conditions at midnight on 1 January to simulate weather conditions at midnight on 3 January.

    The plot below shows how accurately the models forecasted all extreme events (left) and heat extremes (right) under different lead times. This is measured using “root mean square error” – a metric of how accurate a model is, where a lower value indicates lower error and higher accuracy.

    The chart on the left shows how two of the AI models (blue and green) performed better than the physics-based model (black) when forecasting all weather across the year 2020.

    However, the chart on the right illustrates how the physics-based model (black) performed better than all three AI models (blue, red and green) when it came to forecasting heat extremes.

    Accuracy of the AI models
    Accuracy of the AI models (blue, red and green) and the physics-based model (black) at forecasting all weather over 2020 (left) and heat extremes (right) over a range of lead times. This is measured using “root mean square error” (RMSE) – a metric of how accurate a model is, where a lower value indicates lower error and higher accuracy. Source: Zhang et al (2026).

    The authors note that the performance gap between AI and physics-based models is widest for lower lead times, indicating that AI models have greater difficulty making predictions in the near future.

    They find similar results for cold and wind records.

    In addition, the authors find that AI models generally “underpredict” temperature during heat records and “overpredict” during cold records.

    The study finds that the larger the margin that the record is broken by, the less well the AI model predicts the intensity of the event.

    ‘Warning shot’

    Study author Prof Erich Fischer is a climate scientist at ETH Zurich and a Carbon Brief contributing editor. He tells Carbon Brief that the result is “not unexpected”.

    He adds that the analysis is a “warning shot” against replacing traditional models with AI models for weather forecasting “too quickly”.

    The analysis, he continues, is a “warning shot” against replacing traditional models with AI models for weather forecasting “too quickly”.

    AI models are likely to continue to improve, but scientists should “not yet” fully replace traditional forecasting models with AI ones, according to Fischer.

    He explains that accurate forecasts are “most needed” in the runup to potential record-breaking extremes, because they are the trigger for early warning systems that help minimise damages caused by extreme weather.

    Leonardo Olivetti is a PhD student at Uppsala University, who has published work on AI weather forecasting and was not involved in the study.

    He tells Carbon Brief that “many other studies” have identified issues with using AI models for “extremes”, but this paper is novel for its specific focus on extremes.

    Olivetti notes that AI models are already used alongside physics-based models at “some of the major weather forecasting centres around the world”. However, the study results suggest “caution against relying too heavily on these [AI] models”, he says.

    Prof Martin Schultz, a professor in computational earth system science at the University of Cologne who was not involved in the study, tells Carbon Brief that the results of the analysis are “very interesting, but not too surprising”.

    He adds that the study “justifies the continued use of classical numerical weather models in operational forecasts, in spite of their tremendous computational costs”.

    Advances in forecasting

    The field of AI weather forecasting is evolving rapidly.

    Olivetti notes that the three AI models tested in the study are an “older generation” of AI models. In the last two years, newer “probabilistic” forecast models have emerged that “claim to better capture extremes”, he explains.

    The three AI models used in the analysis are “deterministic”, meaning that they only simulate one possible future outcome.

    In contrast, study author Engelke tells Carbon Brief that probabilistic models “create several possible future states of the weather” and are therefore more likely to capture record-breaking extremes.

    Engelke says it is “important” to evaluate the newer generation of models for their ability to forecast weather extremes.

    He adds that this paper has set out a “protocol” for testing the ability of AI models to predict unprecedented extreme events, which he hopes other researchers will go on to use.

    The study says that another “promising direction” for future research is to develop models that combine aspects of traditional, physics-based weather forecasts with AI models.

    Engelke says this approach would be “best of both worlds”, as it would combine the ability of physics-based models to simulate record-breaking weather with the computational efficiency of AI models.

    Dr Kyle Hilburn, a research scientist at Colorado State University, notes that the study does not address extreme rainfall, which he says “presents challenges for both modelling and observing”. This, he says, is an “important” area for future research.

    The post Traditional models still ‘outperform AI’ for extreme weather forecasts appeared first on Carbon Brief.

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