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The UK’s new Labour government must urgently reinstate the net-zero plans shelved by its predecessor in order to “limit the damage” caused by Conservative policy rollbacks, according to official advisors at the Climate Change Committee (CCC).

In its latest annual progress report, the CCC issues some frank words about the “confusing and inconsistent” behaviour of the previous government.

The Conservatives only brought in “credible” policies to cover one-third of the emissions cuts required to hit the UK’s 2030 climate target, the committee finds.

Despite being “insufficient”, the CCC notes that this is a slight improvement on last year. Since then, a requirement for carmakers to sell electric models and a deal to help decarbonise heavy industry both boosted the credibility of the UK’s climate strategy, it says.

Nevertheless, the committee criticises former prime minister Rishi Sunak’s decision to roll back key net-zero policies, notably delaying bans on the sale of new gas boilers and non-electric cars. It says that, contrary to his claims, there was “no evidence” the delays would save people money.

The committee points to a general need to scale up emissions cuts across the economy. It says almost none of the UK government efforts to scale up low-carbon technologies or invest in nature-based solutions are on track.

With this in mind, the progress report lays out a selection of “priority” actions that the new Labour government should take to “make up lost ground” so the UK can achieve its climate goals.

New government

A lot has changed in UK climate politics since the CCC’s last annual progress report was published in June 2023.

Earlier this month, Labour won a landslide election victory ending 14 years of Conservative rule. The party triumphed with a manifesto full of climate-related policies, including a pledge to decarbonise the nation’s electricity supplies by 2030.

Under the Conservatives, the CCC had issued a series of progress reports in which it warned, again and again, that the UK was not on track to meet its future climate goals.

Rather than heeding these warnings, the government led by Sunak announced a rollback of net-zero policies last September, citing “unacceptable costs” for British people. This included delaying the phaseout of both gas boilers and petrol and diesel cars.

The CCC’s latest report acknowledges some positive progress made under Sunak’s leadership. However, it is also quite critical of the outgoing Conservative government, which it says “undermined” the government’s own climate efforts with “confusing and inconsistent messaging and actions”. The report states:

“[The previous government] claimed to be acting in the long-term interests of the country, but there was no evidence backing the claim that dialling back ambition would reduce costs to citizens.”

The new report was prepared before the election, but it says the new government must “act fast to hit the country’s commitments”. It highlights the reinstatement of the weakened net-zero policies as a priority, noting that “damage can be limited”, if the government does so “quickly”.

Interim CCC chair Prof Piers Forster told journalists in a briefing that the new Labour government, which has hired former CCC chief executive Chris Stark to lead its clean power by 2030 “Mission Control”, has already made some progress. He said:

“They’ve done some quite good things in their first 10 days…They have concentrated their announcements on decarbonising energy.”

However, to achieve the UK’s broader climate goals, he added that the new government would “have to go much wider than energy”, with efforts to cut emissions “right across the economy”.

In the coming months, the Labour government must produce a new net-zero strategy, following a second successful legal challenge, which concluded that the existing UK plan was not credible.

It is also obliged to produce a new international climate pledge (nationally determined contribution, NDC) under the Paris Agreement, laying out the UK’s ambition for cutting emissions out to 2035.

The government will also have to legislate in 2025 for the seventh carbon budget, covering 2038-2042, following advice from  the CCC due early next year. The CCC describes the seventh carbon budget period as a “stepping stone” on the path to net-zero by 2050.

(See Carbon Brief’s “Interactive: Labour government’s in-tray for climate change, energy and nature”.)

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Policy gap

UK greenhouse gas emissions have been falling steadily for years, largely driven by the phaseout of coal and the growth of renewable power. Last year was no exception, the CCC says – confirming Carbon Brief analysis published in March.

The nation’s emissions dropped by 5.4% from 415m tonnes of carbon dioxide equivalent (MtCO2e) in 2022 to 393MtCO2e in 2023, excluding emissions from international aviation and shipping.

This marked an increase in the rate of emissions cuts, resulting predominantly from a fall in gas demand that “may in part reflect continuing high gas prices”, as well as a return to normal levels of imports of clean electricity from overseas.

The UK also comfortably achieved its third carbon budget, which ran for the period 2018 to 2022, the CCC confirms. It notes that, rather than due to deliberate climate policy, this can partly be attributed to the UK’s “lower-than-expected GDP”, which, in turn, is linked to the economic impact of Brexit and the Covid-19 pandemic.

However, for years the CCC has been warning of a looming gap between the government’s net-zero policies and its future emissions targets.

Only one third of the emissions reductions required to achieve the UK’s 2030 NDC goal under the Paris Agreement of cutting emissions 68% by 2030 are covered by plans the CCC deems “credible”.

There is an even larger credibility gap on the sixth carbon budget for 2033-2037, with only a quarter of the cuts needed covered by “credible” policies.

The chart below shows the distance between these credible policies (dark blue) and the “delivery pathway” that the government has set out for achieving its net-zero target (red).

Policies with “some” (light blue) or “significant” risk (purple) close part of the gap to getting on track, but around one fifth of the emissions cuts needed are either covered by plans that are “completely insufficient” or have no plans in place at all.

UK greenhouse gas emissions, including international aviation and shipping (IAS), MtCO2e.
UK greenhouse gas emissions, including international aviation and shipping (IAS), MtCO2e. Lines show historical emissions (black) and the UK’s “delivery pathway” outlined in the previous government’s carbon budget delivery plan (red). Projected emissions are shown under what the CCC defines as “credible” policies (dark blue); credible policies, plus those with “some risk” (light blue); and policies that are credible, have some risk or “significant risk” (purple). The dotted black line indicates the trajectory for emissions before any net-zero policies were implemented. The dotted red line indicated an example trajectory to reach the target of net-zero emissions by 2050. Legislated carbon budgets levels are shown as grey steps. The first five budgets did not include IAS, but “headroom” was left to allow for these emissions (darker grey wedges). Source: CCC 2024 progress report. Chart by Tom Prater for Carbon Brief.

The CCC notes a “slight improvement” in credible policies, which only covered a quarter of the 2030 emissions cuts last year. This is due primarily to the introduction of the zero-emission vehicle mandate and a deal for the electrification of heavy industry.

This is illustrated in the figure below, which shows the change in expected emissions in 2030 based only on “credible” policies. The dots on the left show what the CCC expected in its 2023 progress report, while those on the right show its latest estimates.

While the committee now expects emissions from road transport and industry to be slightly lower, the outlook for some sectors – notably buildings – has worsened following the Conservatives’ rollback of net-zero policies.

Sectoral emissions in 2030 under policies deemed “credible” in the CCC’s 2023 and 2024 progress reports, MtCO2e.
Sectoral emissions in 2030 under policies deemed “credible” in the CCC’s 2023 and 2024 progress reports, MtCO2e. Note that the waste, F-gases and shipping sectors are not included, but according to the CCC there was no change in estimates for these sectors in its latest progress report. Although the UK’s 2030 NDC target does not include international aviation and shipping, the international aviation contribution from the carbon budget delivery plan is included for comparability. Source: CCC 2024 progress report. Chart by Verner Viisainen for Carbon Brief.

One of the ways in which the committee monitors government progress towards net-zero is with 28 “key indicators”. Of the 22 that have a fixed benchmark or target, only five are currently on track, including a reduction in distances driven by cars and a drop in battery prices.

None of the CCC’s 12 indicators for the uptake of low-carbon technologies and nature-based solutions are classed as “on track”, except for the expansion of public electric vehicle charging stations.

The CCC also set out 27 specific “priority recommendations” in last year’s progress report for the previous government to implement.

It says only two of these recommendations have seen “good progress” over the past year and 12 have seen no progress at all. Nine of the priorities where no progress was seen were the responsibility of the Department for Energy Security and Net Zero (DESNZ), which oversees most of the policies in question.

Progress was also “too slow” in the devolved administrations of Scotland, Wales and Northern Ireland, the CCC notes, with limited headway on their priority recommendations.

While there are “almost” enough credible policies in place to achieve the upcoming fourth carbon budget, between 2023 and 2027, the CCC warns that this should not lead to complacency.

Both the fourth and fifth budgets are relatively unambitious because they were set before the UK had a net-zero target, when the goal was an 80% cut in emissions by 2050. Both must be overachieved in order to remain on a “sensible path” to net-zero, it says.

The emissions drop in 2023 of 22.3MtCO2e was much higher than the average annual emissions cut seen in the seven years prior to this, which was 13.8 MtCO2e each year. The CCC notes that “a similar pace of reduction will need to be maintained throughout the rest of the decade” in order to meet future climate targets.

However, while emissions cuts to date have been dominated by the electricity system, other sectors will need to start contributing in the coming years.

As the chart below shows, three quarters of the emissions cuts over the next three carbon budgets are expected to come from transport, buildings and other sectors.

Historic and required emissions reductions, MtCO2e, during 2008-2022 (corresponding to the first, second and third carbon budget periods and 2023-2037 (corresponding to the fourth, fifth and sixth carbon budget periods).
Historic and required emissions reductions, MtCO2e, during 2008-2022 (corresponding to the first, second and third carbon budget periods and 2023-2037 (corresponding to the fourth, fifth and sixth carbon budget periods). Dark blue bars indicate the share of emissions cuts in the power sector (including fuel supply, referred to as “electricity and fuel supply” in CCC documentation), with the other blue, light blue and grey bars indicating emissions cuts in the buildings sector, the transport sector and other sectors (industry, waste and F-gases, agriculture and land use, and engineered removals) respectively. Percentage share of emissions cuts for each sector shown on each bar. Source: CCC 2024 progress report. Chart by Verner Viisainen for Carbon Brief.

The CCC sets out various “priority actions” across the report in order to “make up lost ground” and get the UK back on track for its climate targets.

These include sector-specific targets, described in the sections below. They also include broader goals, such as making planning policy consistent with net-zero, publishing a just transition plan for workers and improving public engagement on low-carbon choices.

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Road transport

Despite an increase in the miles driven on UK roads last year, emissions from cars and other road transport fell by 0.9%, according to the progress report.

The CCC says this marks the “first time that the uptake of electric vehicles has had a meaningful impact on the direction of emissions trends”. At least one million UK cars – 2.8% of the total fleet – are now electric.

In addition, the CCC notes that the number of miles being driven in cars remains roughly 6% below pre-Covid levels, indicating a persistent shift in travel patterns following the pandemic. (This is not the case for vans, which are being driven 11% more miles than before.)

Yet transport remains the largest source of emissions in the UK economy. The CCC stresses that emissions from cars, vans and trucks will have to drop four times faster than the 2023 rate each year this decade, in order to meet the country’s climate targets.

The report recommends various policies to achieve this. It welcomes the zero-emission vehicle mandate – which sets targets for car manufacturers to sell a certain share of electric models – as one of the few recent successes of the previous government.

However, it says that electric cars’ market share did not grow in 2023, after years of having exceeded the CCC’s expectations. It also notes that electric van sales have been stalling.

With this in mind, the CCC’s “priorities” for the Labour government includes a reinstatement of the 2030 phaseout date for petrol and diesel cars, after Sunak’s government delayed this to 2035. (Labour pledged to do so in its election manifesto.)

It also says ministers should remove planning barriers for electric vehicle chargers and develop new policies to promote electric van uptake.

The report welcomes the rapid drop in electric-vehicle battery prices, which have fallen far ahead of the CCC’s expectations, as the chart below shows. Their continued decline will play a “key role” in making these vehicles “more cost-effective”, it says.

Assumed (purple) and actual (orange) electric-vehicle battery pack costs, $ per kWh.
Assumed (purple) and actual (orange) electric-vehicle battery pack costs, $ per kWh. Source: CCC.

Finally, the CCC recommends that the UK and devolved governments should publish various plans to guide local authorities in setting out local transport strategies, promote charging infrastructure and reduce the use of cars.

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Buildings

In 2023, emissions from buildings fell by 7.2% due to reduced demand for gas. This continued a trend seen in 2022, which was driven in part by mild winter months and high fuel prices leading to behavioural change, such as people using their heating less.

However between 2015 and 2022, the average reduction in emissions in the buildings sector was below the pace needed for the rest of the decade to reach 2030 targets, the CCC says.

The reductions over the last two years were also not driven by sustained programmes to scale up low-carbon technologies, such as heat pumps, which the CCC says will be needed for “deeper decarbonisation of the economy”.

As such, progress must now be sped up, enabled by programmes of support to roll-out key technologies over the next seven years, the CCC says.

In 2023, the number of heat pumps installed only increased by 4% compared to the previous year, up from 58,000 to 60,000.

This indicator is “significantly off track” from the rate the CCC says is required. Installation rates in residential buildings will need to increase tenfold from 2023 levels by 2028 to meet the government’s 600,000 a year target.

However, the committee says there have been some “promising signs” in the first few months of 2024.

Applications under the Boiler Upgrade Scheme – which provides financial support for switching from a gas boiler to a heat pump – rose 62% in the first four months of the year compared to the same period in 2023. This follows a decision by the Conservative government to increase the grants available under the scheme from £5,000 to £7,500.

Meanwhile, measures to improve the energy efficiency of buildings are “moving in the wrong direction”. Rates of home insulation fell in 2023, having already been “significantly off track” in 2022, the CCC states.

Overall, the CCC’s assessment of policies to decarbonise buildings for the 2030 NDC has worsened over the last year. It points to the Conservative government’s decision to delay the phaseout of fossil-fuelled boilers, abandon plans to enforce energy efficiency improvements in rental properties and push back the introduction of the “clean heat market mechanism”.

The committee recommends reversing recent policy rollbacks as a priority. It also says the government should introduce a comprehensive programme to decarbonise public sector buildings, remove planning barriers for heat pumps and make electricity cheaper to support the electrification of home heating. (See: Electricity.)

Broadly, one of the priorities set out by the CCC is rolling out heat pumps faster, supported by strong and credible signals that policies such as the Boiler Upgrade Scheme will continue to be fully funded.

Additionally, the committee says the government should “narrow the scope” of the strategic decision on hydrogen for heat, ahead of its current deadline in 2026. The government has been set to make a decision on what the role of hydrogen will be within the heating system in Britain, however, multiple pilot schemes have now closed bringing the role of the technology into question. Ahead of this decision, the CCC suggests “prohibiting connections to the gas grid for new buildings from 2025”.

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Industry

Emissions from industry fell by 8.1% in 2023. These reductions were largely the result of site closures in the chemicals sector, with high gas prices potentially a contributing factor, the CCC says. There was also a reduction in emissions in the iron and steel sector.

As with buildings, the sector’s annual emissions reductions over the previous seven years were not at a sufficient pace to achieve the UK’s 2030 climate target, the report says.

Moreover, last year’s fall was not the result of sustained decarbonisation action. The CCC says emissions cuts will need to speed up, supported not by factory closures but by the rollout of low-carbon technologies.

Between 2008 and 2022, direct industrial and fuel supply emissions fell from 140.8MtCO2e to 87.1MtCO2e, as shown in the chart below. This was “considerably faster” than the CCC expected in its 2008 advice.

This was mostly due to a fall in emissions-intensive industries’ outputs, in particular for steel and chemicals. The overall demand for steel saw a “big drop” from 2008 to 2009, and the sector has shrunk due to a lack of competitiveness internationally.

Additionally the EU emissions trading scheme (ETS) contributed significantly to abatement by encouraging further emissions reductions, the CCC notes.

UK greenhouse gas emissions in each sector of the economy, MtCO2e, between 1990-2023.
UK greenhouse gas emissions in each sector of the economy, MtCO2e, between 1990-2023. Source: CCC.

The share of industrial energy use that comes from electricity has stayed relatively consistent, at 26%, since 2020. However, the CCC expects this to increase, as various industries electrify their processes to reduce emissions. As an indicator therefore, industrial electrification is off track, the report adds.

Risks to the decarbonisation of industry include British Steel’s plan to replace its blast furnace in Scunthorpe with two electric arc furnaces (EAF), which is dependent on as-yet unapproved government support.

The CCC notes that the previous government’s £500m deal with Tata Steel to shift production at its Port Talbot site to EAFs has lowered the risk of industry missing its decarbonisation targets.

However, this transition will mean up to 2,800 job losses. The CCC notes that it has “long been clear that the site would need to adapt to remain competitive, for economic reasons largely unrelated to decarbonisation, yet successive governments have failed to develop a long-term economic strategy to develop alternative high-quality employment in the area”.

It further advises that the government should be more proactive and ambitious when it comes to engaging with communities affected by the transition to net-zero. Not doing so risks long-term harm to communities, which could undermine support for net-zero.

The CCC says there has been progress with tightening the cap under the UK’s emissions trading system (UK ETS), which includes industry. However, it notes that the cap is still far looser than in the “central” trajectory in the government’s net-zero strategy. This means that other parts of the economy will need to cut emissions more quickly in order to keep the UK on track overall.

The new UK ETS cap is expected to lead to higher production costs, the CCC notes. While some industries will be protected if the government introduces a carbon border adjustment mechanism (CBAM) in 2027 as planned, this “could lead to offshoring in the absence of further supporting policy to develop alternative low-carbon options”, the report notes..

It says priorities for the new Labour government to tackle industry emissions therefore include strengthening the UK ETS to ensure that its price is sufficient to drive decarbonisation and implementing a CBAM effectively to protect against offshoring.

It also says the government should act to make electricity cheaper, develop policies to address barriers to industrial electrification and implement resource efficiency plans.

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Fossil fuels and hydrogen

The CCC also weighs in on the question of whether the UK should continue to exploit its domestic fossil fuel resources, including those in the North Sea.

Specifically, it says that UK policy should be aligned with the COP28 deal on “transitioning away” from fossil fuels, as well as the guiding principle for international climate action of “common but differentiated responsibilities”. It says:

“As a developed country with a binding commitment to transition to net-zero, the UK should reassess whether further exploration for new sources of fossil fuels is aligned to the UNFCCC principle of common but differentiated responsibility and the global stocktake.”

The outgoing Conservative government had argued that domestic fossil fuels bolstered energy security, attempting to make this into a “wedge issue” with the now-ruling Labour Party, which ran on a pledge to end new licensing for North Sea oil and gas extraction.

To drive this point home, the Conservatives had introduced an offshore petroleum licensing bill that would have required the North Sea Transition Authority to run annual licensing rounds for new exploration. (The Conservatives failed to pass the bill before the election.)

In contrast, the CCC report notes that one of the key reasons why UK energy bills have remained so high during and after the global energy crisis is due to the country’s dependence on fossil fuels. This dependence will be reduced in the shift to net-zero, it notes.

The shift to domestic renewables will also bolster energy security, the CCC says:

“British-based renewable energy is the cheapest and fastest way to reduce vulnerability to volatile global fossil fuel markets. The faster we get off fossil fuels, the more secure we become.”

Drilling rigs moored at Nigg in the Cromarty Firth.
Drilling rigs moored at Nigg in the Cromarty Firth. Credit: Alamy Stock Photo

One “welcome” point of progress has been that in February 2024, the UK formally withdrew from the controversial Energy Charter Treaty, which provides protection to companies investing in fossil fuel developments, the CCC notes.

Beyond fossil fuels, the UK government has continued to target a strategic role for hydrogen. It published a hydrogen production delivery roadmap, a transport and storage networks pathway, and a business model for the first hydrogen allocation round in December 2023.

As a priority, the government should also publish a “strategic spatial energy plan” and identify low-regret infrastructure investments, including for hydrogen infrastructure that can proceed now, the committee says. 

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Electricity

Emissions from the electricity system fell by 22.2% in 2023. This large drop reflects falling gas generation as part of the longer-term rise of renewables, combined with a return to the UK’s normal status as a net electricity importer.

Electricity generation is the only sector to have sustained emissions cuts in line with the 2030 target over multiple years, the CCC notes.

With electrification of the economy a key enabler for wider emissions cuts, one of the CCC’s priority actions for the remainder of 2024 is for the government to make electricity cheaper, by removing policy costs from electricity bills.

This would support industrial electrification, the uptake of electric cars and ensure lower running costs of heat pumps compared to fossil fuel boilers, it says.

Electricity decarbonisation to date has been aided by massive cost reductions for technologies including wind and solar power, the CCC says. It adds that lower costs lay the groundwork for continued rapid uptake of low-carbon technologies.

Indeed, it says that renewable energy will need to be built even faster than it has been to date. Annual installation of offshore wind will need to more than treble, onshore wind more than double and solar increase five-fold between 2023 and 2035.

For example, the UK had 15 gigawatts (GW) of offshore wind at the end of 2023 and will need to add more than 5GW every year to reach 50GW by 2030. This is more than three times the rate added over the past three years.

The technology hit a stalling point in 2023, when no offshore wind was contracted in the contracts for difference (CfD) scheme due to failure to respond to supply chain cost increases.

The CCC says it has “some confidence” that contracts coming through under the CfD scheme will lead to capacity increases, “but these are not enough and significant additional capacity beyond this will be required”.

The CCC “welcomes” updates to the next CfD auction, including the 66% increase in the maximum price for offshore wind and an increase in the notional “budget” that includes £800m for the technology

Onshore wind capacity in 2023 was 15GW, however only 0.5GW of new capacity was installed last year. This was considerably below the peak of 1.8GW in 2017.

Total solar capacity was 16GW in 2023. For the UK to achieve the previous government’s ambition of hitting 70GW of capacity by 2035, more than 4GW would need to be installed each year, the CCC notes – more than five times the average amount added over the past three years.

Within its first week, the new Labour government has moved to make the development of renewables easier, including removing the de facto ban on onshore wind in England and approving three major solar farms.

Other key areas of development have been “positive steps” made by the previous government around whole-system strategic planning of the future energy system, the report says.

The CCC calls for rapid decisions to be made following the second consultation on the “review of electricity market arrangements”, which was published in March,.

The government should publish a strategy for the full decarbonisation of electricity by 2035 at the latest, the CCC recommends. (The report was prepared prior to the election. The new Labour government is targeting clean power by 2030.)

This strategy should cover the strategic and policy requirements, milestones and timeline for delivery, as well as contingencies addressing key risks, the CCC suggests.

Additionally, the government should ensure electricity network capacity is growing to meet requirements. This should include fully implementing the “connections action plan” and “transmission acceleration action plan” at pace.

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Agriculture and land use

Agriculture and land use are the source of some major gaps in the previous government’s net-zero plans, the CCC states.

Emissions from agriculture have remained virtually unchanged for nearly two decades. Planting trees and restoring peatland could absorb some of the emissions from high-emitting sectors, but efforts to expand these activities have faltered.

The UK has committed to cut its methane emissions 30% from 2020 levels by 2030. In order to do this, the pace of reductions compared to recent years would need to double over this decade.

Cattle and sheep produce around half of the UK’s methane emissions. Given the slow rate of change over recent years, the rate of methane cuts from agriculture would need to increase roughly eightfold in order to meet the UK’s methane target by 2030.

The CCC notes that livestock numbers fell between 2017 and 2020, but since then the trend has remained flat. It notes that there has been a small amount of progress in the promotion of methane-suppressing feed products for livestock.

The committee also points out that the Welsh government has paused its plans to reduce emissions from farming “following substantial resistance”. It warns that any delay to its sustainable farming scheme “could have significant impacts”.

The report says both the UK government and devolved governments should prioritise funding and support to ensure the UK-wide tree planting target of 30,000 hectares per year by the 2024-25 period is met.

It also says there should be a “delivery mechanism” for peatland restoration, which is supposed to reach 32,000 hectares per year by 2026, but is not on track to do so. (The CCC notes that even this target is “significantly less ambitious” than its own recommendation.)

The final priority highlighted for the sector by the CCC is the publication of the long-awaited land-use framework. This plan has been repeatedly delayed, and could help to align the sector with other issues such as using land to build energy infrastructure or adapt to climate change.

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Aviation and shipping

Aviation was the only sector that saw a substantial leap in emissions in 2023. They rose by 15.5% as demand “continued to rebound from the pandemic”, and the CCC says there is “a risk” that demand for flights may rise higher than pre-Covid levels next year.

The government’s pathway to net-zero allows for some growth in both aviation and shipping emissions out to 2030. (While domestic journeys are included, international aviation and shipping are not part of the 2030 NDC target. However, they will feature in the UK’s carbon budgets from the sixth period onwards.)

The CCC says more detail of policies for curbing aviation emissions was provided last year – specifically the sustainable aviation fuel (SAF) mandate. However, it says “delivery concerns” mean this sector continues to “attract some risks”.

It notes that the SAF targets the previous government set were “ambitious”, but cautions that the volume of SAFs available to meet this target is “highly uncertain”.

The CCC has frequently highlighted the need to manage demand for flights as well as implementing technological solutions to decarbonise travel. As recent Carbon Brief analysis demonstrates, any emissions cuts from the SAF mandate in the coming years will be entirely wiped out by the expected rise in demand for flights.

In the new report, the committee says a priority for the Labour government should be pausing any new airport expansions until there is a UK-wide “capacity management framework” in place.

This would assess aviation emissions and ensure there is no overall expansion “unless the carbon intensity of aviation is outperforming the government’s emissions reduction pathway”.

Shipping, which accounts for one of the smallest shares of annual emissions, is not highlighted as a priority area for the new government.

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CO2 removal

The CCC says the previous Conservative government’s plans to develop technologies that remove CO2 from the atmosphere are “behind schedule”.

This makes the ambition to remove at least 5MtCO2 per year by 2030 – which is required to meet the UK’s NDC target under current plans – “increasingly challenging”, according to the committee.

Moreover, despite the publication of some business models for the sector, all of the government’s plans carry “significant risk”, the CCC warns. This is notable, as the removals sector is expected to contribute 11% of emissions cuts by the end of the sixth carbon budget in 2037.

The key priority the report highlights for the new Labour government is finalising business models for engineered CO2 removals and “opening these to the market to enable projects to get underway”.

A related piece of advice highlighted by the CCC is that the government should publish guidance for businesses on how to use carbon offsets. It says firms should only use them to claim “net-zero” once nearly all their emissions are cut, and “the remaining emissions are neutralised by high-quality permanent removals”.

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Waste and F-gases

The CCC says there has been “very little progress” in cutting waste emissions. It highlights insufficient progress in capturing methane from landfills, recycling and composting.

Waste is largely a devolved issue and the CCC makes recommendations to the governments of Scotland, Wales and Northern Ireland accordingly.

The key priority that the report highlights for the new Labour government for this sector is the need to address rising emissions from waste-to-energy facilities, which have “substantially increased”. It calls for a “moratorium” on new plants until there is a government review of capacity needs and how these facilities align with climate plans.

Fluorinated gases (F-gases), which make up a tiny fraction of UK emission, are subject to steadily declining quotas for importers and producers of ​​the devices that emit them. They are not targeted as a priority in the new report.

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Adaptation

The previous Conservative government published its third National Adaptation Plan (NAP3) in 2023, covering the period out to 2028. This is the nation’s statutory plan to ensure the UK is prepared for a warmer world.

It has faced intense criticism from the CCC, and campaigners have taken the government to court, citing the plan’s failure to adequately protect people from climate change.

In its new report, the CCC says NAP3 “lacks the pace and ambition to address growing climate risks which we are already experiencing”. It says the plan needs “clear objectives and targets”, and this should include stronger links with the next spending review.

The report also says the government should reorganise so that adaptation “becomes a fundamental aspect and is embedded in other national policy objectives” across departments. This includes prioritising it in other national priorities, including nature restoration, infrastructure development, economic growth and health.

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CCC: Labour must ‘make up lost ground’ to hit UK climate goals

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Climate Change

The world doesn’t need a Paris Agreement for plastics

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Amy Youngman is a legal and policy specialist at the campaigning group Environmental Investigation Agency (EIA).

The chair’s August Aid to Negotiations is being sold as a pragmatic way to rescue the global plastics treaty. However, the text is starting to resemble the architecture of a Paris Agreement-style framework: a patchwork of vague commitments, nationally determined action and reporting, with the hardest substantive decisions left to a future that, my experience following these negotiations tells me, would never arrive.

In March 2022, governments adopted UNEA Resolution 5/14 by consensus, launching negotiations for a legally binding international instrument to end plastic pollution. I joined the global plastics treaty process in Paris in 2023, where hopes of drafting a treaty capable of confronting one of the defining environmental and human health threats of our time were first derailed by procedural warfare.

    Five months later, in Nairobi, I watched the chair close a meeting while delegates still negotiated -allegedly to catch a flight. In 2024 and 2025, in Ottawa, Busan and Geneva, the same small group of blocking states grew bolder, cloaking opposition in language about defending the vulnerable while subsidising a system that fuels the pollution crisis. Offended by ambition, ashamed of nothing.

    A year after the last formal attempt to negotiate a treaty, we are tasked with protecting a fragile process. And despite long-standing support, including legal, policy and technical expertise from my own Environmental Investigation Agency, the chair has excluded observers from the rooms where the treaty’s fate is being decided.

    In that orchestrated quiet, the loudest proposal emerged: the suggestion that the instrument be a “framework convention.” The new Aid, intended to shape the late-September Heads of Delegation meeting, never uses the word “framework”. It does not need to. It strips back substantive obligations and presupposes future action.

    A framework is no match for this crisis

    Framework conventions outline broad principles and leave each country to develop its own plan, often delaying tough decisions to future negotiations that may never happen. This tactic is a political shell game: persuading states that want action now to give up meaningful, binding measures to reach agreement.

    The Chair’s Aid arrives at a framework by subtraction rather than by proposal, which makes it harder to name and potentially easier to accept. Using the Aid, effectively the rejected text from Geneva, as a basis for the next informal meeting in Bangkok will be sold as a way to preserve a distressed UN system and reach consensus in a fractured geopolitical environment.

    This is diplomacy drowning in wishful thinking that the countries fighting binding rules today will approve tougher ones tomorrow. Four years of negotiations and decades of climate diplomacy taught us that this is not a bridge to ambition – this is how ambition dies.

    Modou Fall, 45, head of Senegal Propre (“Clean Senegal”) Association is covered with plastic cups and bags to raise awareness of the damage on the environment caused by waste as he cleans a beach during World Cleanup Day in Dakar, Senegal September 15, 2018. REUTERS/Zohra Bensemra

    Modou Fall, 45, head of Senegal Propre (“Clean Senegal”) Association is covered with plastic cups and bags to raise awareness of the damage on the environment caused by waste as he cleans a beach during World Cleanup Day in Dakar, Senegal September 15, 2018. REUTERS/Zohra Bensemra

    Production is driven by global oil, gas and chemical markets, while products and waste travel across borders. No singular government can regulate its way out of a problem created and amplified by a globalised system.

    Countries have tried, and production kept rising. Now there is plastic everywhere we look, and the cost falls hardest on the people least responsible.

    That failure is why there was consensus to negotiate a treaty, because this crisis requires global action. The purpose was never to list national efforts and call that progress but to create common global rules to address pollution.

    The most politically sensitive issues cannot simply be postponed. How much plastic is produced, which toxic chemicals are allowed in it, which throwaway products are banned, and how future decisions are made are precisely the issues that require global answers. An instrument that refuses to negotiate them will be easier to adopt but useless on arrival.

    Learn from climate governance

    Supporters of a framework approach may point to the ozone treaty as proof that it can work. But the Vienna Convention succeeded for one reason: governments quickly adopted binding upstream controls on ozone-depleting substances.

    Climate offers the opposite warning: a framework followed by contested, delayed and insufficient measures, while emissions keep rising.

    The new chair not only deleted a direct reference to “production and consumption” and bracketed similar preambular language copied from the original mandate. The article on reporting borrows language from the Paris Agreement. Another summer of record heat, fires and floods offers a glimpse of how well that model is working.

    Nothing suggests that the states blocking binding rules today will suddenly accept them tomorrow, and the exponential rise in unchecked plastic production will not pause while governments wait for courage. Blockage is not being resolved, but just pushed forward.

    A framework would lock in the wrong response: unlimited upstream growth with waste management attempting to handle it downstream. No waste system can keep pace with a material engineered for endless growth.

    Keeping to 1.5C of warming is no longer possible – but we must still limit the overshoot

    After four years of INC negotiations, governments know this. States must reject the false choice that the only path to agreement is an instrument too weak to solve the problem it was created to address. Compromise is part of diplomacy. Surrender is not.

    And if the UN keeps pushing that choice, the countries prepared to act must be willing to pursue alternative pathways. Groups of willing governments have built effective agreements before, and existing environmental regimes can deliver new rules without inventing a new empty instrument.

    This process was never meant to find a lowest common denominator. It was to create the rules necessary to change our direction. Bangkok in September will be where the second iteration of this text is shaped. If ambitious countries do not push back, the argument about a framework convention will already be lost by default.

    Negotiations cannot end with governments accepting the crisis rather than solving it. The science is clear and the damage is accelerating. The world does not need another promise to act later. It needs the treaty governments promised to deliver in 2022. 

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    As science comes under attack at UN talks, climate movement splits over how to respond

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    With June’s UN climate talks inching towards gridlock, a group of diplomats calling themselves “Friends of Science” issued a stark warning: climate science was under attack in Bonn.

    The coalition, spanning the world’s richest to its most vulnerable nations, pointed the finger primarily at those who think “science threatens their economic prospects” – a thinly-veiled reference to fossil fuel-dependent states accused of casting doubt on long-held scientific tenets in the UN climate process.

    Fiji’s lead negotiator, Sivendra Michael, went still further. He denounced what he called “a very polluted narrative” taking hold outside the negotiating rooms and singled out ECO, a daily newsletter on the talks produced by Climate Action Network (CAN) International, for overlooking the issue.

    “They are representing developing countries, but they are not representing us,” Michael said. His words hinted at how a rift between governments over the science of global warming has created tensions inside the climate movement.

    Watchers of the UN climate talks have told Climate Home News there is growing unease over where the world’s most influential coalition of climate NGOs stands in an increasingly heated debate about how scientific messages produced by the Intergovernmental Panel on Climate Change (IPCC) are crafted and turned into global climate policy.

    UN sets out narrow path back to 1.5C warming after inevitable overshoot

    CAN’s international leadership has publicly backed a line of argument, championed by some big emerging economies including India, that questions how fair and equitable the models underpinning the work of the IPCC – the UN’s climate science body – are because they are dominated by research from the Global North.

    But some climate activists, including from nations on the frontline of the climate crisis in the Pacific, are increasingly disappointed by CAN’s silence in a connected row over whether the IPCC’s forthcoming assessment report should be finished in time to inform the next UN scorecard of global climate action.

    Over the last two years, India, Saudi Arabia, China, Russia and Kenya have pushed back against attempts by a large coalition of nations to align the IPCC’s AR7 report timeline with the second stocktake of national climate plans under the UN climate process. They claim this would put a burden on developing countries with limited resources and restrict their ability to provide scientific input into the process.

    India flags bias in IPCC assumptions

    CAN International Executive Director Tasneem Essop spoke at an online event last month in which panelists challenged the “Friends of Science” campaign launched at the Bonn talks.

    During the webinar, an Indian scientist and government negotiator set out her view that the IPCC’s way of working and scientific assumptions perpetuate inequity between developed and developing countries – and yet its reports have come to be treated as “scripture” that cannot be questioned.

    In her intervention, Essop did not comment directly on the Bonn science campaign nor on the IPCC timeline issue. But the participation of CAN’s leadership in an event where such criticism of the IPCC was aired has sparked concern in some parts of the NGO community.

    “The way in which CAN International is playing into what could be the destruction of the IPCC inputs into the climate process is very concerning,” said Bill Hare, who was involved in CAN’s establishment nearly four decades ago and now runs think-tank Climate Analytics.

    Science ‘under attack’ from fossil fuel interests at UN climate talks

    He added that it was a mistake for CAN International to align itself with arguments made by India and Saudi Arabia, when those countries are blocking the conclusion of the IPCC’s next key report on cutting emissions in time for it to feed into the next global stocktake, which is due to conclude in 2028.

    Like other insiders Climate Home News spoke to, the veteran Australian climate scientist fears these tensions could hamper CAN’s widely recognised power to influence the talks.

    “The CAN International voice has been very, very important in the process. That voice doesn’t need to be diluted at this moment in history – that would be a really bad move,” Hare said.

    Dialogue to reconcile differing views

    Over the last decade, CAN has been working to transform itself into an organisation that is more representative of, and responsive to, voices and needs in the Global South. In 2019, it appointed Essop – a South African expert on climate, energy, poverty and social justice – as executive director, shifting further away from its European and North American roots.

    CAN International, which functions as the broader network’s secretariat, says it is discussing how to reconcile varying views on the IPCC and the science and equity question among its hundreds of member groups spread across 130 countries.

    “We acknowledge that there are different perspectives within a global network of over 2,000 members on these issues,” CAN International’s Essop said in response to questions from Climate Home News. “Given this diversity, we have democratic processes to build internal agreements.”

    “Science and equity are both fundamental principles for effective climate action and are firmly embedded in CAN’s work,” she added in a written statement. “Putting these principles into practice in a painfully unjust world is not always straightforward, which is why we need continued dialogue across the network.”

    Calls for “fair share” approach

    The webinar in late August – which aimed to untangle what organisers described as “a growing narrative” that “treats science and equity as opposing priorities” – opened with a presentation by Tejal Kanitkar, a prominent Indian climate scientist who also serves on her government’s delegations at the IPCC and UN climate talks.

    Outlining the findings of a paper she co-authored, Kanitkar argued that the IPCC had used scenarios for future emission reduction trajectories based primarily on assumptions put forward by Global North researchers that are skewed against the world’s poorest nations. These, she noted, were then incorporated into the first UN review of global climate action in 2023 and turned into widely cited emissions-cutting targets for limiting warming to 1.5C – a goal the UN has now conceded will be breached, at least temporarily.

    Tejal Kanitkar speaking at a meeting of the IPCC in March 2026. Photo: IPCC Secretariat | Melissa Walsh

    Tejal Kanitkar speaking at a meeting of the IPCC in March 2026. Photo: IPCC Secretariat | Melissa Walsh

    Kanitkar said the “Friends of Science” group included “some of the people who have over-consumed the carbon budget and now use science as a slogan”. When Climate Home News raised the participation of diplomats from vulnerable countries, she said they should be asked why they “accept outcomes that burden the poorest the most”.

    Commenting on Kanitkar’s presentation, CAN’s Essop said everyone knows that “imbalances of power dictate who sits at the table, who designs the models and who determines the assumptions underlying them”.

    Her wider intervention focused more generally on the need to ensure that emissions-reduction pathways follow an equitable approach and account for the “fair share” of action countries need to take based on their historical responsibilities for climate change.

    IPCC working to update models

    Hare later acknowledged that most of the IPCC models used for 1.5C scenarios fail to account for the higher cost of capital and transition financing faced by developing countries. But as this is a “well-known” limitation, the IPCC gives a nuanced reading of the scenarios, and the next generation of models it uses is expected to include more consideration of equity, he added.

    Echoing this, a climate scientist from a developing country currently involved in the IPCC process, who did not want to be identified, told Climate Home News that economic models inevitably contain biases and IPCC authors are already working to identify and correct them.

      Despite criticisms of how IPCC scientific reports have been produced, all governments must sign off on every line of a key “summary for policy-makers” at a dedicated meeting. In 2023, the approved summary included the emissions reduction figures in question that informed the UN’s first global stocktake.

      Irrespective of this wider debate, Hare said the “Friends of Science” campaign, which he supports, is focused on the timing of the IPCC’s next assessment cycle rather than the equity of its models.

      Unresolved row over IPCC report timeline

      A political battle over that time-frame has dragged on for more than two years at successive meetings of the science panel, with governments repeatedly failing to find a solution.

      A large majority of nations have been pushing for a timeline that would ensure the next round of AR7 reports can feed into the UN’s global stocktake. But a group of countries, including Saudi Arabia, India, China, Russia and Kenya, have said at previous IPCC meetings that this would put a burden on developing countries with limited resources and have lobbied for a longer process.

      Member of the “Friends of Science” campaign wears a pin in Bonn. Photo: IISD/ENB – Kiara Worth

      Member of the “Friends of Science” campaign wears a pin in Bonn. Photo: IISD/ENB – Kiara Worth

      In Bonn this summer, the coalition that wants to align AR7 with the 2028 stocktake – which includes diplomats from Fiji, Nepal, the European Union, Switzerland, Sierra Leone and Panama – vowed to ensure that decision-making in the UN climate process remains based on the “best available science”, including the IPCC assessment reports.

      They pointed the finger at “the usual suspects” but stopped short of singling out any countries at the public press conference. Discussions in the previous week had seen Saudi Arabia and India play down the centrality of IPCC reports in the UN stocktake and oppose calls in draft texts to encourage scientific work on scenarios to limit an overshoot of the 1.5C warming goal.

      Bonn upset fuels further tension

      A campaigner with knowledge of internal discussions told Climate Home News that many civil society groups from some of the world’s most vulnerable nations, including the Pacific islands, had expected CAN International to back calls in Bonn defending the centrality of the IPCC in UN climate policy-making.

      Despite this, a day before the “Friends of Science” press conference, CAN published an ECO newsletter that did not mention the issue. Instead, it voiced surprise over the claims of an attack on science happening in the negotiations and accused some of the IPCC’s loudest-defending governments of hypocrisy for continuing to expand fossil fuels and not delivering “fair shares” of emissions cuts and finance to the developing world.

      “We were really shocked we could not find a common position and then this jarring narrative was being pushed,” the campaigner added.

      After divisions hardened in Bonn, Hare said his organisation was approached by “very upset” CAN members from various regions about the stance taken by the network’s international leadership on the issue.

      Industry and NGOs lobby to weaken UN carbon credit rules in “coordinated” push

      While Climate Home News understands that internal discussions have continued during the summer, including at a CAN leadership meeting in Nairobi in recent days, the campaigner said that CAN International’s endorsement of the recent webinar that directly challenged the “Friends of Science” coalition did not send a reassuring signal.

      Some observers said they feared it would inflame tensions over how climate science is defined and utilised for policy purposes, with consequences reaching well beyond Bonn.

      In a statement to Climate Home News, Essop said that “at a time when communities are experiencing the most horrific impacts of climate chaos, our collective energy must turn to solutions such as filling the Loss and Damage Fund, the phasing out of fossil fuels led by the Global North, and justice for people who are least responsible for this climate emergency”.

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      Q&A: What can – and cannot – be said about global warming’s role in the 2026 Himalayan floods

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      On the morning of 26 August, flash floods surged through a Himalayan border region of Nepal and the Chinese region of Tibet, killing more than 1,300 people, with thousands still missing.

      In the days since the floods, scientists have examined satellite imagery, drone footage and seismic data in order to understand and explain the forces behind the event.

      While initial theories pinned the flood on a glacial collapse, scientists now understand the event as a “multi-hazard cascade”, which began with a bedrock collapse.

      Some climate sceptics have tried to use this to falsely claim that human-caused climate change had no impact on the event.

      Yet, scientists have noted that, while no formal attribution study has been carried out thus far, warming is making such ice-rock avalanches in the region more likely.

      Researchers have highlighted how rapid warming is dramatically reshaping Asia’s high-mountain region – and identified rising temperatures, glacier retreat and permafrost thaw as factors that may have all contributed to the disaster.

      Balendra Shah, Nepal’s prime minister, has called the floods a “serious signal that…the risks we must bear in the Himalayan region are increasing” due to climate change.

      Here, Carbon Brief unpacks what scientists currently know about the causes of the catastrophic event and what they can – and cannot – say about the role of climate change.

      What happened?

      A report published on 28 August by the HiRisk scientific consortium of high mountain experts detailed the events that led to the flash floods.

      It said that events were set in motion on 26 August when a mass of bedrock, as well as the glacier ice on top of it, broke off a slope of Langtang-Lirung mountain in the Nepalese Himalaya, plunging from approximately 5,200 metres above sea level to the valley floor at 3,000 metres.

      The landslide shook the ground hard enough that, at 8:37am Nepal local time, the US Geological Survey (USGS) initially reported a magnitude 4.4 earthquake. Later that day, it clarified the shaking was caused by glacier collapse and debris flow, equivalent to a magnitude 5.2 earthquake.

      On the valley floor, the melting ice, water and debris slammed into the Lhende Khola river, a high-altitude river that runs along Nepal’s border with China.

      Known downstream as the Bhote Koshi river in Nepal and the Poiqu or Poqu in China, the Lhende Khole feeds a network of rivers across Nepal and the Chinese region of Tibet, including the Trishuli river. (In China, the Lhende Khola is known as the Donglin Tsangpo.)

      This image shows a map of Nepal.
      The designations employed and the presentation of the material on this map do not imply the expression of any opinion whatsoever on the part of Carbon Brief concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. Credit: Carbon Brief.

      A large “debris” lake was briefly formed on the valley floor. When this lake burst, a wall of water and rock travelled downstream, killing more than a thousand people and destroying settlements, roads, bridges, hydropower plants and border posts across Nepal and Tibet.

      HiRisk said that the floodwave travelled down rivers as fast as 30km an hour (around 19 miles per hour) and reached Mugling – a Nepalese town more than 130km downstream – at around 1pm local time.

      A separate report from the Center for Land Surface Hazards in the US noted that the flood moved “exceptionally fast, was sediment-laden and extreme in scale”. For example, in the Nepalese municipality of Galchhi, the Trishuli river rose by nine metres in 30 minutes, it said.

      Writing in the Conversation, Dr Umesh Haritashya, a glaciologist at the University of Dayton in Ohio, explained that the disaster “wasn’t finished when the first wall of water passed [on 26 August]”.

      He continued that a new “barrier lake” – estimated to hold a few million cubic metres of water – had developed in a location where two rivers meet in Tibet before crossing into Nepal. This lake burst on 28 August and the river rose again, he said.

      On 4 September, the chief of Nepal’s National Disaster ​Risk Reduction and Management Authority, told Reuters that property and infrastructure worth “at least” $2.5bn (£1.9bn) had been lost. Dharma Raj Upreti estimated the cost to build roads and temporary shelters, provide drinking water and ⁠restore power would be around $53m (£39m).

      How did bedrock collapse trigger the flash floods?

      In the immediate aftermath of the floods, initial reports suggested that the trigger was a collapsing glacier or earthquake in the high mountains of Nepal.

      After confirming that a seismic tremor was as a result of falling rock and ice, the USGS said the trigger was likely a “glacial collapse and debris flow”. This was widely picked up by the media.

      Subsequently, satellite imagery revealed that an “enormous chunk of the mountainous bedrock” beneath the glacier had also given way, reported the New York Times.

      Dr Kristen Cook, a geomorphologist at the Université Grenoble Alpes in France, told the newspaper:

      “The rock that the glacier was sitting on collapsed…It was a much larger collapse than we were initially able to see in the satellite imagery.”

      The result was a “deluge of rock and ice, which pulverized into mud and water as it surged down the mountainside”, the newspaper said.

      Dr Jakob Steiner a geoscientist at the University of Graz in Austria, tells Carbon Brief:

      “It was not a glacier that collapsed. It was the mountain below the glacier that collapsed and the glacier had no other chance but to go with it because it was sitting on top of it.

      “The trigger for that is something that we are not 100% certain about, but, in the end, it very much looks like simply a mechanical failure of the rock material because of stressors that have built up over a long period of time.”

      Failures of “bedrock” – the hard, solid rock that sits below looser rocks and soil – are an “increasingly common occurrence”, says Prof Bethan Davies, a professor of glaciology at Newcastle University. She tells Carbon Brief:

      “These massive landslides occur in mountain regions, commonly following rapid deglacierisation [the melting away of a glacier]. Similar events happened in the Chamoli event in 2021 [in the Indian Himalaya] and in the Blatten landslide last year in Switzerland. They’ve also occurred recently in Alaska.”

      With a shift in focus from the failure of a glacier to the bedrock underneath, some climate sceptics seized on the development to falsely claim that climate change had not played any role in the disaster.

      These include Dr Matthew Wielicki, recently appointed by the Trump administration to lead the US Global Change Research Program, on Twitter, as well as former Conservative peer and climate-sceptic commentator Matt Ridley in the Spectator.

      However, scientists have highlighted the likely contribution of rapid warming in the region. These factors include the thawing of permafrost and glacier retreat. (For more, see sections below).

      Fundamentally, “this would have been a much less significant tragedy if it had been just a rock-slope failure”, notes Davies.

      The initial landslide took a mixture of rock and ice into a valley that “contains buried ice” as well, she says, providing the water that “resulted in the hyperconcentrated flow, which took so many lives”.

      How have temperatures risen in the affected region?

      Global temperatures have risen by roughly 1.4C since the pre-industrial period. However, this increase is not uniform across the planet, with some regions warming faster than others.

      A study published in Global and Planetary Change in June 2026 investigated changes in the Langtang catchment – a river basin in central Nepal, in which the Langtang-Lirung mountain is located, which eventually drains into the Ganges. Around one-quarter of the area is made up of glaciers.

      The paper found that glacial areas of the catchment – found at 4,000 metres above sea level – warmed at 0.31C per decade over 1960-2023. This was “more than three times” the rate observed at a lower elevation weather station, the authors said.

      Looking in more detail at the site of the glacial collapse, Dr Robert Rohde, chief scientist for Berkeley Earth, used ERA5 reanalysis data to show how temperature has changed at the 5,200-metre elevation site where the mass of ice and rock broke loose.

      Rohde’s analysis found that June-to-August temperatures have been rising at the site of the glacier collapse since the year 1940, with 2026’s summer the fourth warmest on record, behind 2024, 2025 and 2022. This is shown in the graph below.

      Average summer (June-August) temperature at the ice-rock avalanche site over 1940-2026.
      Average summer (June-August) temperature at the ice-rock avalanche site over 1940-2026. Data source: Rohde, Bluesky (2026)

      Rohde also found that the days leading up to the disaster recorded the hottest August temperatures ever experienced at the site. This is shown in the graph below.

      Daily average temperature, from 1 June-1 September, at the glacier collapse site.
      Daily average temperature, from 1 June-1 September, at the ice-rock avalanche site. 2026, 2025 and 2024 are shown in dark, mid and light blue. All other years from 1940-2023 are shown in grey. Source: Rohde, Bluesky (2026)

      On social media, Rohde stated:

      “Given the warming trend, this Nepali glacier had probably been thinning and weakening for years, or even decades. But it ultimately failed during the warmest week in one of its warmest years on record. It would be a hell of a coincidence if global warming wasn’t at least partially to blame.”

      How have rising temperatures affected mountain stability?

      Many experts have linked warming temperatures in the region to thawing permafrost – ground that has been frozen for at least two consecutive years, whose thickness ranges from less than one metre to more than a kilometre.

      Steiner is part of a research team that has been using sensors to monitor permafrost in the region since 2014. He tells Carbon Brief that it is “pretty clear” the permafrost has been thawing “very actively” at elevations as high as 5,200 metres above sea level “for many years”. He adds:

      “This means that the ground has, over the last decades, moved from being in a solid state into – at least, periodically during the warm season – patchy ground where some is frozen and some isn’t…

      “If you have frozen ground next to non-frozen ground, you have dynamics happening between that because there are different densities and there’s movement happening, which is conducive to interventional failure – and that we know from many other cases.”

      Davies also points to the “degradation” of perennially frozen ground as a factor in the disaster:

      “This permafrost acts as a glue to hold together the rocks and, as it melts, the rock can become weakened.”

      Permafrost thaw can also result in saturated ground, says Davies, which adds “pressure in the joints” of rock and can “facilitate” failure. She continues:

      “Sources of the water include melting permafrost and meltwater from the overlying glacier. We know that this event happened during a period of warmth, but in the absence of heavy precipitation, pointing to ice melt as the source of water.”

      A 2025 study of rock and ice avalanches in High Mountain Asia found that more than two-thirds started in areas “where permafrost is probable”.

      How have glaciers retreated in the affected region?

      Glaciers – frozen rivers of ice holding three-quarters of the global freshwater supply – are extremely vulnerable to climate change.

      In the Himalaya, the rate of glacier retreat has doubled since the late 20th century, according to a 2019 study in Science Advances.

      The Global and Planetary Change study found that glacier area loss rates in the Langtang catchment increased more than fourfold from 1964 to 2023 – with melting accelerating after 2000.

      It added that glaciers in the region also experienced “fragmentation” and “widespread thinning” over this period.

      The study noted that this loss “coincided with elevation dependent warming”.

      The figure below provides an overview of glacier loss in the Langtang catchment over 1964-2023, with orange, red and dark red indicating areas of retreat.

      In addition, green dots note points of glacier fragmentation, while blue dots show separation and pink show disconnection.

      Glacier loss in the Langtang catchment over 1964-2023.
      Glacier loss in the Langtang catchment over 1964-2023. Orange, red and dark red indicate areas of retreat. Green dots note points of glacier fragmentation, while blue dots show separation and pink show disconnection. Credit: Silwal et al. (2026)

      In comments released by the University of Reading, Prof Maria Shahgedanova, a climate scientist researching climate impacts on mountain glaciers, said that the glacier involved in the floods had “retreated by approximately 450 metres between 1990 and 2020”.

      She adds that this “potentially reduce[d] the mechanical support provided by the glacier to the underlying rock slope”.

      Speaking to Carbon Brief, Davies reiterates that the retreat of the glacier is “potentially a contributing factor” to the bedrock collapse and subsequent disaster.

      This is because the removal of the glacier from the lower slopes leaves the “upper rock slopes less stable”, she says.

      The most recent assessment by the International Centre for Integrated Mountain Development said that glaciers in the Hindu Kush Himalaya region are “rapidly shrinking” as a result of climate change. (This region extends 3,500km over Afghanistan, Bangladesh, Bhutan, China, India, Myanmar, Nepal and Pakistan.)

      It said this loss is threatening the safety of the nearly two billion people, including by increasing the risk of “glacial lake outburst floods” (GLOFs). A GLOF is a sudden and catastrophic release of meltwater from a glacial lake.

      Although this disaster was not caused by a GLOF, it is known that climate change is making such events more likely.

      Can the event be attributed to climate change?

      In the wake of the flash floods, climate campaigners, media outlets and Nepalese politicians have linked them to human-caused climate change.

      However, many climate scientists have cautioned that it is too early to say precisely how climate change impacted the disaster.

      Davies tells Carbon Brief:

      “These events happen so quickly that the exact causes and drivers can take a little time to uncover, especially if the event was a surprise and there had been no monitoring system in place.”

      When trying to determine the role human-caused climate change played in the intensity or likelihood of extreme weather, scientists turn to the field of “attribution science”.

      To date, no formal rapid attribution study has been produced that attempts to quantify whether – and how – climate change contributed to the event.

      Scientists have noted that climate attribution of ice-rock avalanches – which are typically driven by a variety of factors – remains limited, in part because of the lack of a long-term observational record of previous collapses in high mountain areas.

      Meanwhile, the studies that do exist stop short of directly linking such disasters to climate change. For example, the authors of a 2021 study into the Chamoli ice-rock avalanche concluded that “we cannot attribute this individual disaster specifically to climate change”.

      However, they added, the “possibly increasing frequency of high-mountain slope instabilities can likely be related to observed atmospheric warming and corresponding long-term changes in cryospheric conditions (glaciers and permafrost)”.

      In the aftermath of the disaster, many researchers have similarly highlighted that climate change could not be singled out as the cause of the disaster, even if warming likely increased the probability of its occurrence.

      On the Climate Brink substack, Carbon Brief’s climate science contributor Dr Zeke Hausfather noted that a “definitive single-event attribution” of the more recent disaster “may never be possible” due to the “messy causality of rock-ice avalanches”.

      However, he added that both the existing scientific literature and “essentially every scientist working on these hazards point in the same direction” – namely, that warming is making such events more likely in the Himalaya.

      Steiner tells Carbon Brief it might be possible to attribute different factors that played a role in the disasters to climate change – for instance, the recession of the glacier – but it would be more difficult to do so for the event as a whole.

      Part of the reason for this, he says, is that rock failures in this region of the Himalaya have occurred for millennia, well before humans started altering the climate.

      However, he continues:

      “The physics of it is not something that has been made possible by climate change. This could have happened without it. But the chance of it happening – and the likelihood of it happening five years after a previous, similar event [in Chamoli] – we, as the scientific community, can be pretty confident about that [being increased because of a changing climate].

      “This is because so many of the changes that we know are related to climate change can potentially drive the build-up to eventual failure.”

      Ultimately, says Davies, a “careful attribution study is needed, but it is hard to argue that the rapidly warming climate is not having an effect in these regions”. She adds:

      “A single event may have multiple drivers, but we are seeing an increase in these events and are likely to see more as the permafrost and glacier melt continues.”

      The post Q&A: What can – and cannot – be said about global warming’s role in the 2026 Himalayan floods appeared first on Carbon Brief.

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