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Welcome to Carbon Brief’s China Briefing.

Carbon Brief handpicks and explains the most important climate and energy stories from China over the past fortnight. Subscribe for free here.

Key developments

US-China climate deal paves way for Xi-Biden meeting and COP28

SUNNYLANDS STATEMENT: Following talks between US and Chinese climate envoys John Kerry and Xie Zhenhua, the two nations released statements “to jointly tackle global warming by ramping up…renewable energy with the goal of displacing fossil fuels”, the New York Times reported. Both countries pledged to “pursue efforts to triple renewable energy capacity globally by 2030”, a key goal in COP28 negotiations, it added. The statement backed the “success of COP28”, which Reuters said was “crucial” to coming to a consensus in Dubai. However, while the statement supported a broad political outcome from the “global stocktake” at COP28, there was no agreed language on fossil fuel phaseout, noted Carbon Brief’s Simon Evans on Twitter. The BBC quoted Bernice Lee, distinguished fellow at Chatham House, as saying that it had likely “proven to be too difficult to find the form of language that works for both” on fossil fuels. Similarly, while there were commitments in the statement to hold policy dialogues on energy efficiency, doubling the rate of efficiency improvements by 2030 was not mentioned.

EMISSIONS PEAKING: The two countries “expect meaningful cuts to be made to power sector emissions before 2030”, Bloomberg reported, quoting Joanna Lewis, an expert in international policy at Georgetown University, as saying this implies “a reduction in emissions from China’s coal plants very soon”. (This aligns with recent analysis by the Centre for Research on Energy and Clean Air (CREA) for Carbon Brief, see below.) However, on Twitter, senior Politico climate correspondent Karl Mathiesen spotted a slight difference between the readouts – in the US version, power sector emissions cuts are tied to “this critical decade of the 2020s”, whereas in the Chinese readout, reductions are not linked to any date. Reductions will likely be driven in part by carbon capture, utilisation and storage (CCUS), with Chinese energy outlet BJX News reporting that “the two countries aim to promote at least five large-scale [CCUS] cooperation projects in industry and energy…by 2030 in each country”.

‘RESTARTING’ COOPERATION: Kerry and Xie’s meeting was followed by a meeting between presidents Joe Biden and Xi Jinping on the sidelines of the Asia-Pacific Economic Cooperation (APEC) summit, at which the two leaders discussed maintaining “high-level communications” and cooperating “on trade, agriculture, climate change and artificial intelligence”, Reuters said. Le Monde reported that the US and China will restart bilateral energy dialogues and establish working groups to cover key areas of concern. US treasury secretary Janet Yellen and Chinese vice premier He Lifeng also agreed to improve climate change and global debt relief cooperation in earlier talks, the South China Morning Post reported. 

‘Structural decline’ in carbon emissions expected from 2024

2024 DECLINE: In analysis for Carbon Brief, Lauri Myllyvirta, lead analyst at CREA, estimated that China’s carbon emissions “could peak this year before falling into a structural decline” due to “a historic expansion of the country’s low-carbon energy sources”, reported the Guardian. Covering the analysis, Chinese energy news site IN-EN.com said rapid growth in power generation from low-carbon energy sources, a consequent decline in coal’s share of energy consumption and China’s real estate sector downturn “lays the groundwork” for declining emissions. Myllyvirta noted that solar energy saw the “most significant increases”, with 210 gigawatts (GW) of solar power set to be installed this year, the news platform Guancha reported. These record additions are “all but guaranteed to push China’s fossil-fuel electricity generation and CO2 emissions into decline in 2024”, Business Green said in its coverage. Myllyvirta spoke on state broadcaster CGTN to discuss the findings, which were also reported by CNN, Reuters, Bloomberg, Global Times and South China Morning Post.

COAL SPOILER? In a parallel piece in Foreign Policy, Myllyvirta and his co-author Byford Tsang, senior policy advisor at climate thinktank E3G, wrote under the headline: “China pledged to ‘strictly control’ coal. The opposite happened.” Yet Myllyvirta also noted in his analysis for Carbon Brief that a surge in China’s investment in manufacturing capacity for low-carbon technologies is creating an increasingly important interest group in the country, which could affect its approach to domestic and international climate politics. This is “setting the scene for a showdown between the country’s traditional [coal] and newly emerging interest groups”, Agence France-Presse noted in its coverage.  

OVERSEAS FREEZE: Meanwhile, China’s two development banks did not make any new energy sector loan commitments in 2022 for “the second year in a row”, according to a new policy brief by the Boston University Global Development Policy Center. In an article for the China Global South Project, co-author Cecilia Springer wrote that this was driven by “ongoing domestic economic woes” and “heightened debt distress in borrowing nations”. 

China compensates coal power plants for spare capacity

CAPACITY COMPENSATION: China will give “guaranteed payments” to coal power producers under a new coal capacity compensation mechanism effective 1 January 2024, the country’s top economic planner, the National Development and Reform Commission (NDRC), announced in a notice released on Friday, Reuters reported. It added that the “widely-anticipated” move aims to ensure the financial viability of “seldom-utilised, backup” coal power and counter challenges with the variability of renewable energy. The mechanism will allow coal power plants to recover their fixed costs through a capacity tariff set at either 30% or 50% of 330 yuan per kilowatt per year through 2025, depending on their location, reported energy news website BJX News. From 2026, provinces will raise the tariff to “no less than 50%” of the 330 yuan benchmark. A representative from the state-owned China Energy Investment Group wrote in power sector outlet Dianlian News that the policy will adjust the role of coal-fired power units in the power system from “being primarily quantity providers to becoming capacity providers”.

REFORM LAG? Economic news outlet Jiemian quoted the NDRC as saying the policy will have a “positive impact on the electricity costs for end-users in the short and long term”. However, the mechanism has major implications for market reforms, Anders Hove, a senior research fellow at Oxford Institute for Energy Studies told Carbon Brief. “The segregation of long-term contracts, spot markets and ancillary services markets already hinders the ability of market prices to convey investment signals,” he said. While the initial policy on a national electricity market design had suggested the possibility of a market-based capacity mechanism, China ultimately chose a flat capacity payment made only to coal, he added. David Fishman, a senior manager at energy consultancy the Lantau Group, posted on Twitter that it “could distort market signals, which would ordinarily force expensive or inefficient generators out of the market”. Still, Reuters quoted Fishman saying: “It adds a lot of flexibility to the grid system and should allow more intermittent generation (like wind or solar) to enter the generation mix without compromising grid stability or energy security.” 

Spotlight

What does China’s new methane plan mean for its climate goals?

In November, China published its long-awaited plan to reduce methane emissions. Carbon Brief explores how effective the plan may be for the world’s largest emitter of methane.

What does the plan say?

The plan described China’s approach as to “control methane emissions in a scientific, rational and orderly manner”, with a specific focus on the energy, agriculture and waste sectors.

It included 20 “key tasks” in emissions monitoring, technological innovation, development of policy frameworks, global cooperation and other areas.

During the 15th five year plan period (2026-2030), monitoring and accounting of methane emissions will be “significantly enhanced”, it added. Methane utilisation, emissions control technologies and policy frameworks will be “effectively improved”.

Other notable pledges included that by 2030 oil and gas producers will “strive” to “gradually” eliminate flaring, and utilisation of coal mine methane will reach 6bn cubic metres annually.

(This “corresponds to about 10%” of the coal mining sector’s total methane emissions, said Lauri Myllyvirta, lead analyst at Centre for Research on Energy and Clean Air (CREA).) 

Where do methane emissions come from in China?

China is responsible for 10% of all human-caused methane emissions, with two estimates in 2021 placing its annual output at 58m tonnes (Mt) and 65Mt respectively, equivalent to 1.7-1.9bn tonnes of carbon dioxide (CO2) equivalent. 

Around 40% of China’s methane emissions are gas that escapes during the mining of coal, according to the Innovative Green Development Program (iGDP), a Chinese thinktank. Another 42% is from agriculture, including livestock and rice cultivation, it said.

Coal mine methane emissions are particularly challenging to detect, according to the International Energy Agency (IEA), as they are “diffuse”. It added that abandoned mines, which could contribute “almost one fifth” of global methane emissions, cannot be included in calculations as “reliable data” is often unavailable. 

Climate Home reported, however, that according to Global Energy Monitor (GEM) research, “the real figure for coal mine methane is almost double what the government claims”. Shanxi province could emit as much methane from its coal mines as the rest of the world combined, according to GEM.

Why is tackling methane important?

Methane is a potent greenhouse gas, with around 30 times the warming power of carbon dioxide 100 years after it is emitted. It is responsible for around 30% of the rise in global temperatures since the industrial revolution.

Cutting methane by 30% by 2030 – the target of the global methane pledge – is the “fastest way to reduce near-term warming” and keep 1.5C “within reach”, according to a US and EU factsheet.  

Will China’s plan be effective in curbing emissions?

The Environmental Defense Fund (EDF) wrote on WeChat that it believed “in the long term”, the plan will provide “a clear guiding framework” for methane reduction efforts.

It pointed to the role the plan could play in establishing a monitoring, reporting and verification (MRV) system that could underpin a carbon pricing methodology for methane.

Dr Chen Meian, program director and senior analyst at iGDP, tells Carbon Brief that some of the “sector-specific targets mentioned in the methane plan can help China to reduce methane emissions” in coalbed methane and other areas.

However, she added, it is “difficult” to set hard targets for cutting emissions by specific amounts, due to challenges in data monitoring, “[which is why] China also listed the improvement of methane emissions MRV” as a key task.

Others are less convinced. The plan is “too ambiguous”, “descriptive” and lacking in quantitative targets, Refinitiv lead carbon analyst Yan Qin told Reuters.

Ember’s methane analyst Anatoli Smirnov told Climate Home that the “only real solution to reduce methane emissions is to close coal mines”. The outlet also quoted CREA’s Myllyvirta saying there is a lack of “political will and buy-in” to curb methane in China. 

“I think China is trying to be realistic in target-setting [for its] coal sector emissions,” Chen tells Carbon Brief. She adds that China “used to set ambitious targets” for coalbed methane capture and utilisation in its five-year plans, but that it repeatedly missed them.

She added that it would be important for local governments to “set their own methane plans…tailored to local conditions” and to improve data monitoring.

What does this mean for global cooperation on methane?

A week after the plan was released, the US and Chinese climate envoys John Kerry and Xie Zhenhua issued a declaration on enhancing climate cooperation, known as the “Sunnylands statement”. 

It included commitments to establish a working group that will look at several areas of cooperation, including methane emissions, and to create another working group to focus on “building on” their current national methane plans.

In addition, they commit to include “actions/targets” on methane reduction in their next climate pledges under the Paris Agreement, which will also cover other non-CO2 greenhouse gases. They will host, with the UAE, a summit on non-CO2 gases at COP28.

Without the plan’s public release, Li Shuo, director of the China climate hub at the Asia Society Policy Institute told Bloomberg, there “certainly wouldn’t have been further deals”.

However, differences in the sources of the US and China’s methane emissions could hamper cooperation. Dr Teng Fei, deputy director of the Institute of Energy, Environment and Economy at Tsinghua University, told China Dialogue that the main source of EU and US methane emissions is oil and gas, compared to coal mining for China.

Tackling coal mining methane emissions is harder and more costly than oil and gas. This could be why China has not signed up to the global methane pledge, which may be easier for the EU and US to meet, Teng added.

Watch, read, listen

COAL ADDICTION: Michael Davidson, assistant professor at the University of California, San Diego, explained in Foreign Affairs how “the need for energy security, the structure of China’s climate goals and…local interests” keeps China committed to coal, even though it “makes little financial sense”.

SOLAR DEBATE: In a video interview, Wall Street Journal reporter Phred Dvorak outlined how different countries are responding to dropping prices of Chinese solar panels in an effort to protect their own manufacturers.

EV RACE: Bloomberg published a podcast looking into how China became the dominant player in the electric vehicle industry, and what this could mean for the global economy. 

GREEN BRI: A symposium summarised in Environmental Politics examined how environmental governance is practised in China’s belt and road initiative (BRI), with focus areas including China’s political mechanisms to “green” the BRI and the dynamics influencing the effectiveness of BRI renewable energy projects.

SUPPLY CHAIN RISKS? The Royal United Services Institute assessed the threat of China’s “near monopoly” of rare earth production and manufacturing of “net zero technologies”, finding that risks are “currently limited by low levels of manufacturing of these technologies in the UK”.

New science

Human influences on spatially compounding flooding and heatwave events in China and future increasing risks

Weather and Climate Extremes

A new study estimated that “compound” extreme weather events under a high-emissions scenario may become “10 times and 14 times more likely” through the mid-21st century and end of the century respectively. The study authors used the compound event of heavy precipitation and heatwaves in China in 2020 to identify the dynamic and thermodynamic factors contributing to the such events. They defined spatially compounding events as those occurring “when multiple connected locations are concurrently affected by the same or different hazards, thus inducing an aggregated impact”.

Shift in algal blooms from micro- to macroalgae around China with increasing eutrophication and climate change

Global Change Biology

New research investigating recent trends in blooms of microalgal “red tides” and macroalgae in China found that microalgal blooms have been decreasing in frequency since 2003, while macroalgal blooms have generally been rising since 1999. It attributed the growth of macroalgae around China over the past 30 years to “eutrophication, climate change and grazing stress”, which it said indicated “a fundamental change in coastal systems in the region”.

China Briefing is compiled by Anika Patel and edited by Wanyuan Song and Simon Evans. Please send tips and feedback to china@carbonbrief.org.

The post China Briefing 16 November: Sunnylands statement; China methane plan; Coal capacity payments appeared first on Carbon Brief.

China Briefing 16 November: Sunnylands statement; China methane plan; Coal capacity payments

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Extreme heat costing India’s poorest workers 2% of GDP, survey finds

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Low-income Indian workers, many of them migrants from rural areas hit by climate change, are paying for worsening extreme heat through lost working days and health complications, with the cost equivalent to 2% of national GDP per year, new research shows.

The International Institute of Environment and Development (IIED), a London-based think-tank, worked with local organisations to survey around 540 households of informal workers in three Indian cities: Ajmer, Delhi and Agra. Most had migrated from rural areas to find work in industries such as construction, brick-making, garment manufacturing and food packaging.

The survey found them struggling through long working days with little access to shade, cooling, rest or water, as well as few toilets for women. And even when they go home, many live in makeshift shelters or airless cramped rooms with barely a single fan, bringing almost no respite.

Outdoor workers are losing about 24 days of work a year due to heat, costing them nearly a tenth of their annual earnings, while indoor workers sacrifice roughly 15 days. On top of losing income, they are also bearing the cost of health problems like heat exhaustion, psychological stress and kidney damage brought on by repeated dehydration.

If the survey’s findings are extrapolated to a national level, the IIED researchers estimate that the decline in productivity and effects of kidney disease combined add up to lost wages of $78 billion each year.

    Vishram Meena, 45, from Alwar in Rajasthan, has worked on construction sites in Ajmer for more than a decade, toiling for 10 to 12 hours a day carrying materials and mixing cement in the full sun.

    In May 2024, on one of the hottest days, he collapsed after feeling dizzy and suffering a nosebleed. His wife and colleagues managed to get him to hospital where he was diagnosed with heat stroke. He has since returned to the same building work because the family needs the money.

    “I went back because what else could I do? We are not machines. We are human beings. The heat is killing us slowly,” he was quoted as saying in a report on the survey’s findings.

    “Victorian-era” conditions

    Ritu Bharadwaj, IIED’s director of climate resilience, finance and loss and damage, described some of the stories from workers about their experiences of extreme heat as “genuinely horrifying”.

    Kusum, a tailor at a garment manufacturing and export unit in Kapashera, Delhi, recounted how the machines for ironing finished garments are in the same tiny room where workers are making the clothes, with steam and hot air building up through her shift.

    Fans are too far apart to move the air and nothing has changed in over a decade, she said, adding that “in summer, the unit feels like a furnace”.

    “These are Victorian-era working conditions and they’re completely unacceptable in the 21st century,” said Bharadwaj. She called for stepped-up social protection from the government to pay people for days they are unable work due to heat, as well as micro-insurance schemes with payouts triggered by temperature measurements.   

    This money would help families buy food and pay medical bills when their income dips if they fall ill or cannot work their usual hours due to soaring temperatures.

    Climate change-driven heatwaves hit Delhi’s Red Fort market traders

    The aim of the IIED study, Bharadwaj added, is to get policy-makers’ attention by showing the scale of damage extreme heat is doing to India’s GDP in an economy whose growth relies on service-led industries. “If the workers within them start falling sick, you know it’s the economic growth which is going to get impacted,” she told a webinar to present the research.

    “Whether [policymakers] care about the workers or not, at least they would care about the GDP, and therefore then invest in their care,” she explained.

    Labour code leaves out heat

    However, Bharadwaj noted that a 2026 reform to India’s labour law bringing a range of regulations together in one code does not include heat-related protections for workers and only applies to businesses above a certain size. She urged the government to introduce a temperature threshold above which all workers would be able to stop their activities.

    IIED and its partners have also carried out a similar study in Bangladesh which will be published later this month, showing that extreme heat is costing its workforce the equivalent of nearly 1.4% of GDP.

    Shakirul Islam, chairperson of the Ovibashi Karmi Unnayan Program (OKUP) in Bangladesh, said the government had introduced stricter safety policies for garment-making companies after the Rana Plaza complex collapsed in 2013. But, he said, these rules are rarely followed by manufacturers, especially at the level of smaller subcontractors.

    The workers’ welfare centres that do exist are open mainly during work hours so they are difficult to visit. Some companies also make saline water available for heat stress, which is no good for those with high blood pressure, he noted.

    For Indian women workers, a just transition means surviving climate impacts with dignity

    Archana Shukla Mukherjee, CEO of India’s Change Alliance, which also partnered with IIED on the survey, said it was time to hold both the government and businesses accountable for finding solutions to the intensifying problem of extreme heat’s effects on workers.

    She said that employee state insurance schemes should identify heat stroke as an occupational disease while companies along the whole supply chain should start putting in place heat protection measures, including for informal workers and migrants.

    If the tools and mechanisms available to help workers do not reach the most vulnerable and marginalised people, “then I think we are not doing something right,” she said.

    The post Extreme heat costing India’s poorest workers 2% of GDP, survey finds appeared first on Climate Home News.

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    Top maritime court rejects bid to halt UN deep-sea mining inquiry

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    A United Nations investigation into deep-sea mining firms will continue after the world’s top maritime court rejected their bid to suspend the inquiry triggered by a US-backed push to extract critical minerals from the ocean floor.

    In two orders issued on Saturday, the International Tribunal for the Law of the Sea (ITLOS) declined to halt an inquiry launched by the International Seabed Authority (ISA) into whether permit holders, including Tonga Offshore Mining Ltd (TOML) and Nauru Ocean Resources Inc (NORI), have breached their obligations under UN exploration contracts.

    The two companies are subsidiaries of Canadian firm The Metals Company (TMC), which earlier this year sought permits from the United States to commercially mine the deep seabed in an area already covered by its UN exploration licences, bypassing the ISA’s regulatory process.

    The inquiry was opened after TMC’s move raised questions over whether its subsidiaries had complied with their contractual obligations to the ISA, which regulates mining in international waters under the UN Convention on the Law of the Sea. TOML and NORI sued the ISA last June for allegedly targeting them “in breach of due process” and without “good faith”.

      While allowing the inquiry to proceed, the court ordered the ISA to ensure the companies receive due process. Judges said the regulator must explain the factual and legal basis of its inquiry, clarify the procedures being followed and provide TOML and NORI with a meaningful opportunity to respond.

      The companies seeks to mine an area called the Clarion-Clipperton Zone, which holds vast reserves of critical minerals like nickel, manganese and rare earths but is also home to a little-studied deep ocean ecosystem with thousands of unnamed species.

      In response to the court’s ruling, the ISA welcomed the decision, saying the inquiry “remains in effect” and would continue “with due regard to all applicable legal requirements”.

      Last week, during an annual meeting of its member governments, ISA secretary-general Leticia Carvalho said the resources in the ocean floor are “the common heritage of humankind” and upheld the agency’s role as “more important than ever”.

      TMC also welcomed the court decision in a statement and claimed that judges ruled to “protect the rights of TMC subsidiaries”.

      “Contractors like NORI and TOML, who have together spent hundreds of millions of dollars on the promise of a fair regulatory framework, should be informed of the factual and legal basis of any non-compliance inquiries, understand the procedure being applied, and receive a meaningful opportunity to respond,” said Gerard Barron, CEO of The Metals Company.

      Iridogorgia and bamboo coral pictured around the Johnston Atoll Unit of the Pacific Remote Islands Marine National Monument (Photo: NOAA Office of Ocean Exploration and Research)

      Environmental groups said the ruling allows scrutiny of the companies’ actions to continue.

      Louisa Casson, deep-sea mining campaigner with Greenpeace, said the “entire litigation has been an egregious waste of time and money”, which was part of the industry’s “textbook distraction tactic” meant to delay the consequences of the inquiry.

      “If the inquiry confirms that TMC’s subsidiaries are breaching their contracts, governments must send the strongest possible signal that complicity in unlawful deep sea mining will not be tolerated,” she said.

      While investigation is still ongoing, NORI’s contract is set to expire this week and is up for review. Governments asked the ISA to report back and make “make appropriate recommendations” by the next ISA assembly, its main decision-making body set to take place next week from July 27 to 31.

      The court ordered both the ISA and TMC to submit a report on how they complied with the ruling by August 31, and called on both to “cooperate and refrain from any action that might lead to
      aggravating the dispute”.

      The post Top maritime court rejects bid to halt UN deep-sea mining inquiry appeared first on Climate Home News.

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      Q&A: What the EU’s carbon market review means for climate action

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      The European Commission has put forward new plans to cut emissions under the EU carbon market more slowly, from 2031 onwards.

      On 17 July, the commission presented its long-awaited proposal for reform of the EU’s Emissions Trading System (ETS).

      It recommended a number of changes, including giving companies free allowances to cover their emissions for longer than previously planned, conditional on climate investment plans.

      The proposal offers a more business-friendly and “savvy” approach, argued EU climate commissioner Wopke Hoekstra in a press conference.

      But critics believe it could “weaken” the system and put EU climate targets at risk.

      Alongside the proposal, the commission also announced a new target for electricity to make up 46% of energy consumption by 2040, doubling the current rate of 23%.

      This could cut EU spending on imported fossil fuels by €260bn annually, according to the commission.

      In this Q&A, Carbon Brief outlines the details of the new ETS proposal – which is subject to negotiation with member states – and explores what it could mean for climate action.

      What is the EU Emissions Trading System?

      The EU ETS is a carbon market, which puts a price on the greenhouse gas emissions of companies in power generation, industry, aviation and other sectors.

      It covers everything from electricity generation to steel production, as well as flights within the EU and a handful of other European countries.

      Emissions in these sectors have halved since the ETS launched in 2005, according to the European Commission.

      A European parliament briefing describes the system as a “cornerstone” of EU climate policy, covering around 40% of the bloc’s overall emissions.

      It applies to emissions in all 27 EU countries alongside Iceland, Liechtenstein, Norway and electricity generation in Northern Ireland. (The UK established its own ETS after Brexit.)

      The ETS operates as a “cap and trade” system, which puts a limit on the amount of carbon dioxide equivalent (CO2e) that can be emitted within the sectors it covers.

      The “cap” on emissions gradually decreases each year until, eventually, they are expected to reach zero.

      The currency of trade within the system is “allowances”. One allowance is equal to one tonne of CO2-equivalent emissions.

      At present, around 57% of these allowances are bought by companies in auctions. The EU generated around €43bn in revenue from these auctions in 2025.

      The remaining 43% of allowances are given to companies for free, to cover some or all of their emissions.

      This is intended to prevent “carbon leakage” – the idea that companies operating in countries with strict climate policies will relocate to countries with looser rules.

      The amount of free allowances varies by sector, depending on factors including the level of competition with overseas firms that do not face a carbon price.

      What did companies and countries want from the ETS review?

      Countries and companies have been divided on how they wanted the ETS to evolve.

      Some pushed for more ambition to help meet European climate goals. Others called for it to be rolled back, amid rising costs for businesses.

      In March, 10 countries including Italy, Hungary and Poland wrote a letter to the commission calling the ETS an “existential risk” for key industrial sectors, reported Euronews.

      Italy had earlier even called for the system to be suspended outright.

      France and other countries favoured introducing a slower descent towards bringing the emissions cap to zero by 2039.

      Some steel and chemical companies also criticised the cost burden of the ETS.

      Other organisations focused on calls for stability and predictability in the system.

      In recent weeks, Spain, the Netherlands and five other countries called on the commission to “resist gutting” the ETS in its review, said E&E News. They said the ETS should be strengthened to “ensure long-term investment predictability and regulatory stability”.

      Weakening the system could “undermine investment signals and leave Europe more exposed to fossil-fuel shocks”, said a March 2026 briefing from climate thinktank E3G.

      Another E3G briefing said the “risk” is that politicians weaken the system as a short-term economic fix, “undermining one of the EU’s main tools for delivering on its industrial transformation ambitions”.

      Dozens of investment organisations called on EU countries to facilitate a “robust and predictable” ETS. They said that “policy stability is the cheapest investment stimulus available to the EU”.

      In its list of priorities for ETS reform, the NGO Carbon Market Watch said that “now is not the time to backslide” on its aims and terms.

      What is in the new proposal from the European Commission?

      The commission’s proposal outlines a number of changes to the ETS, to bring it in line with the EU’s climate goal to cut emissions to 90% below 1990 levels by 2040.

      The review will “bring relief to industry”, the commission says, while also continuing the ETS’ “essential” role in climate action.

      However, others are more sceptical about the impacts it could have on climate action.

      Below, Carbon Brief details the main aspects of the proposal.

      Free allowances extended

      The European Commission proposes to extend free allowances beyond a previously agreed date.

      Free allocations were due to reduce from this year and be fully removed by 2034.

      However, the commission has proposed to extend this to 2038, on the condition that companies receiving free allowances set out how they will invest in decarbonising their EU operations.

      It proposes that from 2031 onwards, 80% of free allowances in the system would be given to companies that have submitted plans for investment in EU decarbonisation.

      The remaining 20% of free allowances would only be allocated to those that can prove they followed through with planned investments and achieved the emissions reductions they had previously outlined.

      This move is a “step in the right direction”, says Dr Kirsten Scholl, the director for EU affairs at thinktank Epico, but it must not “impose excessive administrative burdens”.

      The EU’s carbon border adjustment mechanism (CBAM) was designed to replace the existing system of free allowances in the ETS.

      It is a tax applied to certain imported goods, based on the amount of CO2 emissions released during their production. It began to be phased in at the start of 2026.

      As a result, free allocation is being gradually phased out from 2026-38.

      However, the commission has proposed that 15% of free allocations due to be removed because of CBAM should be reintroduced from 2028, to “reduce the speed at which CBAM is phased-in and mitigate the remaining carbon leakage risk”.

      The commission says that preventing carbon leakage “remains a crucial element” of the ETS.

      Pushing back the phase-out of free allowances and the full implementation of CBAM “risks squandering the EU’s credibility with investors and trading partners alike”, says Francesco Lombardi Stocchetti, a policy advisor on sustainable economy at the Bellona Foundation, an environmental NGO.

      “Europe cannot lead the clean industrial transition just by moving the goalposts,” he adds in a statement.

      Slowing path to reach zero emissions by a decade

      The commission has proposed to cut emissions in the ETS more slowly from 2031 onwards.

      This could mean new allowances are able to enter the scheme into the 2040s, instead of ending in 2039 as previously planned.

      But the planned changes are still “aligned” with the EU’s 2040 climate target and net-zero requirement by 2050, says the commission.

      The overall ETS cap on emissions was reduced by 1.7% each year up to 2020 and then by 2.2% annually since 2021.

      It is then agreed to drop by 4.3% over 2024-27 and 4.4% from 2028 onwards.

      Maintaining similar rates after 2030 would not be “realistic”, says the commission’s proposal.

      Instead, it suggests that the cap should fall by 3.7% per year over 2031-35 and by just 1.7% annually over 2036-40.

      Simon Evans on Bluesku: The cap on EUETS emissions was due to hit zero by 2039

      This will make the path to zero emissions within the ETS “more gradual and aligned with domestic climate ambition level”, claims the commission.

      But WWF says that the proposal would allow an extra 2bn tonnes of CO2e to be emitted. (See: What could the changes mean for greenhouse gas emissions?)

      Aviation

      The commission has proposed plans to incorporate more airline emissions into the ETS.

      The plan outlines that, from 2029, all flights departing from the European Economic Area (EU, Iceland, Liechtenstein and Norway) and landing in other countries within 5,000km of a point in central Europe should be added to the ETS.

      This distance means that the changes would not apply to flights landing in China or the US. (Both the US and China have opposed the expansion of ETS coverage for flights.)

      The commission also proposes including emissions from private jets and other “business flights” in the ETS.

      It notes that aviation currently accounts for 14% of EU transport emissions. This is expected to skyrocket to around 90% by 2050, given it is more difficult to decarbonise than other modes of transport.

      Some aviation emissions have been included in the ETS since 2012. This included emissions from air travel within the EEA and flights departing from Switzerland and the UK.

      The airline industry did not respond favourably to reports of plans to expand beyond this scope.

      On 8 June, the biggest airlines in Europe urged commission president Ursula von der Leyen not to extend the ETS to cover international flights, saying that it would raise ticket prices.

      A study commissioned by Carbon Market Watch found that the ETS encompassing all flights departing from the EEA, not just those within it, would result in a “very small impact on ticket prices and passenger demand”.

      Auction money

      Under the proposed changes, EU countries would need to funnel half of the money they receive from ETS auctions towards decarbonising sectors covered by the system.

      This would amount to more than €100bn in investment for decarbonisation before 2030, says the commission.

      Around three-quarters of the money generated by the ETS has been allocated to EU countries since 2013, the proposal notes.

      Since 2023, countries have been required to spend all of this money on climate and energy-related activities – at least on paper.

      But the proposal says the “transparency and effectiveness” of this mechanism has been “insufficient”.

      Currently, only around 5% of the ETS money “directly supports industrial decarbonisation in sectors such as steel, chemicals and fertilisers”, it adds.

      Going forward, the proposal says that 50% should be put towards actions aiding clean-energy plans, industrial decarbonisation and improved waste management, as some examples.

      A briefing by thinktank Institut Montaigne noted that the money generated within the system for EU countries to help finance the energy transition should be “at the heart” of ETS discussions, amid budget constraints in many EU countries at the moment.

      CO2 removals

      The commission has proposed integrating permanent carbon removals into the ETS to “give additional flexibility” for certain sectors that struggle to decarbonise. This action was previously agreed within the terms of the EU’s 2040 climate target.

      “Permanent” removals refer to direct air capture with carbon storage and similar measures, rather than temporary removals such as planting trees.

      The removals would be integrated into the system by increasing the allowance cap by an amount equivalent to the number of removals purchased.

      This will set up “additional emission space” for hard-to-abate sectors and also support the “scale-up of the carbon removals industry”, outlines the proposal.

      It also proposes that certain companies, such as shipping and aircraft operators, could compensate for their emissions with their own certified carbon removals.

      These emissions would not be permitted to “go beyond zero”, adds the proposal.

      Sven Harmeling, the head of climate at Climate Action Network (CAN) Europe, says that adding carbon removals “would weaken the ETS impact, undermine the carbon price and create new loopholes for polluters instead of accelerating the transition away from fossil fuels”.

      The proposal “fails to ensure that only high-integrity removal technologies would be considered”, he adds in a statement.

      However, the director of the Potsdam Institute for Climate Impact Research, Prof Ottmar Edenhofer, describes the move as “an important step”, saying:

      “For the first time, it creates a credible and long-term investment framework for carbon-removal technologies in Europe.”

      International credits

      The commission proposes that firms covered by the ETS could make use of “high-integrity” credits bought on the global carbon market from 2036 onwards.

      This relates to the EU’s 2040 climate target, in which up to 5% of the 90% reduction in GHGs can come from global carbon credits.

      Amélie Laurent, a policy advisor in carbon accounting at the Bellona Foundation, says in a statement that these credits “should be in a strategic last resort reserve, not an excuse to avoid doing our homework”.

      Aurora D’Aprile, the EU policy director at the International Emissions Trading Association, notes in a statement:

      “For international credits, early preparation on governance and procurement and greater certainty around a pilot from 2031, will be essential to establish a credible demand signal.”

      Other sectors extended

      The commission has outlined plans to expand the inclusion of the maritime sector in the ETS.

      Maritime accounts for around 4% of the EU’s total emissions. The new proposals for the sector include adding certain small ships of 400-5,000 tonnes to the system.

      The proposal also outlines plans to incorporate more waste incineration into the ETS on a gradual basis from 2031.

      Since 2024, some waste-burning companies have been required to monitor and report their emissions under the ETS. But they did not have to purchase credits.

      Now, the commission proposes introducing the sector on a gradual basis.

      Under the proposals, companies would require allowances for 25% of their emissions in 2031, 50% in 2032, 75% in 2033 and 100% from 2034 onwards.

      Market stability reserve review

      The market stability reserve was added to the ETS in 2019 to help stabilise the flow of allowances.

      It acts like an overflow container holding extra allowances. If the number of allowances in the market falls below a certain threshold, more are brought out from the reserve to balance things out.

      Equally, if the market is flooded with too many allowances, depressing prices, then some are removed and put into the reserve.

      The commission has proposed a reform of the reserve, including changing the upper and lower limits for when allowances are released or removed.

      It wants to reduce the rate at which allowances are withdrawn from auctions when they exceed a certain threshold from 24% to 12% from 2028.

      This means that the permits would be able to stay in the market for longer.

      As shown in the chart below, the price of carbon in the EU increased tenfold over 2017-2021, exceeding €80 (£68) per tonne of CO2.

      Carbon price in the EU ETS over 2012-26, in € per tonne of CO2. Credit: Carbon Brief, based on data from Energy Instrat and EEX
      Carbon price in the EU ETS over 2012-26, in € per tonne of CO2. Credit: Carbon Brief, based on data from Energy Instrat and EEX

      Nevertheless, the commission proposal says the reserve was “effective in mitigating price shocks” on the ETS caused by the Covid-19 pandemic and the surge in energy prices after Russia invaded Ukraine in 2021.

      UK-EU ties

      The EU and UK have agreed in principle to link their carbon markets, but the commission’s proposal says negotiations are still “under progress”.

      It adds that the commission “foresees” future financial contributions from the UK to the EU’s ETS, if a final agreement is reached.

      Many companies have called for the systems to be linked. In June, dozens of carbon-capture organisations and industry groups signed a letter calling for greater certainty on EU-UK links to ensure cross-border carbon-capture and storage projects are covered, for example.

      Switzerland’s ETS has been linked to the EU since 2020.

      What could the changes mean for greenhouse gas emissions?

      The European Commission says the ETS plays a “crucial role” in meeting its climate targets “cost-effectively”.

      The system contributed to a 41% reduction in EU industrial emissions over 2021-23, a decrease of around 800m tonnes of CO2 per year, according to recent analysis from the London School of Economics.

      As highlighted in the chart below, the EU’s overall GHG emissions have dropped by 40% since 1990.

      Greenhouse gas emissions in the EU over 1990-2025 (solid line) and projections out to 2050 (dotted line). The red dots indicate climate targets for 2020, 2030, 2040 and 2050. Credit: Carbon Brief, based on data from the European Environment Agency
      Greenhouse gas emissions in the EU over 1990-2025 (solid line) and projections out to 2050 (dotted line). The red dots indicate climate targets for 2020, 2030, 2040 and 2050. Credit: Carbon Brief, based on data from the European Environment Agency

      Climate commissioner Hoekstra told a press briefing that the proposal is “fully aligned” with the EU’s target to cut GHGs to 90% below 1990 levels by 2040. He called the plan “completely climate-law proof”.

      He also noted that no other EU policy has contributed to reducing emissions on the scale of the ETS, describing it as a “phenomenal asset”.

      But campaigners and experts are concerned that the proposed changes could slow decarbonisation and put the EU’s climate goals at risk.

      Carbon Market Watch says the plans would “severely weaken” the ETS and “risk undermining the achievement of the EU’s 2040 and 2050 climate targets”.

      The proposals “would represent a major setback for EU climate ambition, weakening incentives to cut emissions, extending reliance on fossil fuels and putting the 2040 climate target at risk”, says a statement from WWF.

      WWF estimates that 2bn extra tonnes of CO2 would be emitted if the proposals were approved in the EU.

      Michael Bloss, a German member of the European parliament (MEP) for the European Greens, says the plans would release around 1.4bn tonnes of extra CO2. He describes the proposal as “climate vandalism”.

      Chiara Martinelli, the director of CAN Europe, says:

      “Every extra tonne of CO2 allowed under the ETS makes Europe’s climate challenge harder and more expensive. Weakening the ETS now is a gift to polluters that have prioritised shareholder payouts instead of investing in cleaner production.”

      How was the proposal received?

      The European Commission’s new ETS proposal has been met with a mixed response.

      Scholl from Epico says the proposal has “important flexibilities that can help address competitiveness challenges and provide greater certainty for industrial investment”. But she adds in a statement:

      “Concerns remain about whether the proposed changes preserve the long-term investment signal of the ETS and sufficiently recognise companies that have already committed to ambitious decarbonisation pathways.”

      Edenhofer from the Potsdam Institute for Climate Impact Research adds that the proposals provide “clarity on the contribution that emissions trading is intended to make towards the 2040 climate target”.

      Elisa Giannelli, a programme lead at E3G, says in a statement:

      “Today’s proposal might please some, but it risks increasing both the long-term cost and the time needed to deliver the EU’s growth strategy.”

      Pepe Escrig, a senior researcher, also at E3G, adds that the commission held onto some of the ETS’ “essential foundation”, but “yielded to political pressure to weaken it as a quick fix to broader challenges”.

      This has left the plan “pull[ing] in two directions: strengthening support for industrial investment while weakening parts of the framework meant to drive it”, says Escrig.

      Andrea Spignoli, the policy manager of sustainable markets at Bellona Europa, says the proposal risks “weakening green investments” and putting a larger decarbonisation burden onto other sectors that are not covered by the ETS.

      Greg Van Elsen, a senior industrial policy coordinator at CAN Europe, says in a statement:

      “Free pollution permits were never meant to become a permanent subsidy. Extending them until 2038 rewards delay instead of industrial decarbonisation.”

      Lobby groups also had mixed reactions to different aspects of the proposal.

      The International Air Transport Association says it is “deeply frustrated” with the proposal.

      The organisation’s director general, Willie Walsh, claims the consequences will be “harmful”, “sowing acrimony over extraterritoriality, slowing global decarbonisation and sapping European competitiveness”.

      WindEurope says the proposal risks “slowing decarbonisation and failing to channel billions in ETS revenues to industrial electrification”.

      BusinessEurope’s director general, Markus J Beyrer, says some aspects “raise concerns”. For example, he says the “new conditionalities for free allocations risk increasing bureaucratic complexity and the uncertain role for international carbon credits”.

      What is ‘ETS2’?

      ETS2 is a separate emissions trading system to the main ETS. It is due to take effect in 2028 and is not affected by the current ETS review or resultant proposals.

      It will operate under a similar system as the existing ETS, covering emissions from transport, buildings and smaller industries in other sectors.

      One key difference, however, is that ETS2 will not provide any allowances for free. They will all be auctioned and bought by companies.

      On 15 July, 10 countries, including Italy and Poland, had urged the commission to also reconsider the ETS2 during this review. They were unsuccessful.

      Similar to the original ETS, the commission believes the carbon price under the new ETS2 system will “provide a market incentive for investments in building renovations and low-emissions mobility”.

      However, in June, member-state governments and the European parliament agreed on a number of “safeguards” to support price stability.

      For example, if allowance costs under the ETS2 exceed €45 per tonne of CO2, they agreed that 40m allowances will be put into the system from a reserve to normalise the supply – double the amount previously agreed.

      A European Environment Agency briefing said the ETS2 will “affect fuel prices and mobility costs” and that money will be syphoned into a social climate fund to “support vulnerable households and investments”.

      What happens next?

      EU countries will now negotiate over the terms of the commission’s proposal before it goes to a vote in the European parliament.

      Ireland, which recently took over the six-monthly rotating presidency of the Council of the EU, has stated that it wants the ETS proposals to be signed off by the end of this year.

      A previous document from the council, which represents member-state governments, outlined a target to agree a deal by the first quarter of 2027.

      Clean Energy Wire says that this would be an “unusually ambitious timetable for one of the bloc’s most technically complex pieces of climate legislation”. 

      Politico notes that “months of arguing” is likely to occur.

      The post Q&A: What the EU’s carbon market review means for climate action appeared first on Carbon Brief.

      Q&A: What the EU’s carbon market review means for climate action

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