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The UK government has released its long-awaited “warm homes plan”, detailing support to help people install electric heat pumps, rooftop solar panels and insulation in their homes.

It says up to 5m households could benefit from £15bn of grants and loans earmarked by the government for these upgrades by 2030.

Electrified heating and energy-efficient homes are vital for the UK’s net-zero goals, but the plan also stresses that these measures will cut people’s bills by “hundreds of pounds” a year.

The plan shifts efforts to tackle fuel poverty away from a “fabric-first” approach that starts with insulation, towards the use of electric technologies to lower bills and emissions.

Much of the funding will support people buying heat pumps, but the government has still significantly scaled back its expectations for heat-pump installations in the coming years.

Beyond new funding, there are also new efficiency standards for landlords that could result in nearly 3m rental properties being upgraded over the next four years.

In addition, the government has set out its ambition for scaling up “heat networks”, where many homes and offices are served by communal heating systems.

Carbon Brief has identified the key policies laid out in the warm homes plan, as well as what they mean for the UK’s climate targets and energy bills.

Why do homes matter for UK climate goals?

Buildings are the second-largest source of emissions in the UK, after transport. This is largely due to the gas boilers that keep around 85% of UK homes warm.

Residential buildings produced 52.8m tonnes of carbon dioxide equivalent (MtCO2e) in 2024, around 14% of the nation’s total, according to the latest government figures.

Fossil-fuel heating is by far the largest contributor to building emissions. There are roughly 24m gas boilers and 1.4m oil boilers on the island of Great Britain, according to the National Energy System Operator (NESO).

This has left the UK particularly exposed – along with its gas-reliant power system – to the impact of the global energy crisis, which caused gas prices – and energy bills – to soar.

At the same time, the UK’s old housing stock is often described as among the least energy efficient in Europe. A third of UK households live in “poorly insulated homes” and cannot afford to make improvements, according to University College London research.

This situation leads to more energy being wasted, meaning higher bills and more emissions.

Given their contribution to UK emissions, buildings are “expected to be central” in the nation’s near-term climate goals, delivering 20% of the cuts required to achieve the UK’s 2030 target, according to government adviser the Climate Change Committee (CCC).

(Residential buildings account for roughly 70% of the emissions in the buildings sector, with the rest coming from commercial and public-sector buildings.)

Over recent years, Conservative and Labour governments have announced various measures to cut emissions from homes, including schemes to support people buying electric heat pumps and retrofitting their homes.

However, implementation has been slow. While heat-pump installations have increased, they are not on track to meet the target set by the previous government of 600,000 a year by 2028.

Meanwhile, successive schemes to help households install loft and wall insulation have been launched and then abandoned, meaning installation rates have been slow.

At the same time, the main government-backed scheme designed to lift homes out of fuel poverty, the “energy company obligation” (ECO), has been mired in controversy over low standards, botched installations and – according to a parliamentary inquiry – even fraud.

(The government announced at the latest budget that it was scrapping ECO.)

The CCC noted in its most recent progress report to parliament that “falling behind on buildings decarbonisation will have severe implications for longer-term decarbonisation”.

What is the warm homes plan?

The warm homes plan was part of the Labour party’s election-winning manifesto in 2024, sold at the time as a way to “cut bills for families” through insulation, solar and heat pumps, while creating “tens of thousands of good jobs” and lifting “millions out of fuel poverty”.

It replaces ECO, introduces new support for clean technologies and wraps together various other ongoing policies, such as the “boiler upgrade scheme” (BUS) grants for heat pumps.

The warm homes plan was officially announced by the government in November 2024, stating that up to 300,000 households would benefit from home upgrades in the coming year. However, the plan itself was repeatedly delayed.

In the spending review in June 2025, the government confirmed the £13.2bn in funding for the scheme pledged in the Labour manifesto, covering spending between 2025-26 and 2029-30.

The government said this investment would help cut bills by up to £600 per household through efficiency measures and clean technologies such as heat pumps, solar panels and batteries.

After scrapping ECO at the 2025 budget, the treasury earmarked an extra £1.5bn of funding for the warm homes plan over five years. This is less than the £1bn annual budget for ECO, which was funded via energy bills, but is expected to have lower administrative overheads.

In the foreword to the new plan, secretary of state Ed Miliband says that it will deliver the “biggest public investment in home upgrades in British history”. He adds:

“The warm homes plan [will]…cut bills, tackle fuel poverty, create good jobs and get us off the rollercoaster of international fossil fuel markets.”

Miliband argues in his foreword that the plan will “spread the benefits” of technologies such as solar to households that would otherwise be unable to afford them. He writes: “This historic investment will help millions seize the benefits of electrification.” Miliband concludes:

“This is a landmark plan to make the British people better off, secure our energy independence and tackle the climate crisis.”

What is included in the warm homes plan?

The warm homes plan sets out £15bn of investment over the course of the current parliament to drive uptake of low-carbon technologies and upgrade “up to” 5m homes.

A key focus of the plan is energy security and cost savings for UK households.

The government says its plan will “prioritise” investment in electrification measures, such as heat pumps, solar panels and battery storage. This is where most of the funding is targeted.

However, it also includes new energy-efficiency standards to encourage landlords to improve conditions for renters.

Some policies were notable due to their absence, such as the lack of a target to end gas boiler sales. The plan also states that, while it will consult on the use of hydrogen in heating homes, this is “not yet a proven technology” and therefore any future role would be “limited”.

New funding

Technologies such as heat pumps and rooftop solar panels are essential for the UK to achieve its net-zero goals, but they carry significant up-front costs for households. Plans for expanding their uptake therefore rely on government support.

Following the end of ECO in March, the warm homes plan will help fill the gap in funding for energy-efficiency measures that it is expected to leave.

As the chart below shows, a range of new measures under the warm homes plan – including a mix of grants and loans – as well as more funding for existing schemes, leads to an increase in support out to 2030.

Chart showing the warm home plan increases the overall government support for low-carbon heating and energy-efficiency schemes
Annual support for home upgrades, such as heat pumps and insulation, broken down by UK government scheme, £bn. The blue columns indicate new schemes under the warm homes plan. The grey columns include ongoing schemes, such as the boiler upgrade scheme. Figures are adjusted to constant 2025/26 pounds using the latest Treasury GDP deflators. Source: Nesta analysis using UK government data.

One third of the total funding – £5bn in total – is aimed at low-income households, including social housing tenants. This money will be delivered in the form of grants that could cover the full cost of upgrades.

The plan highlights solar panels, batteries and “cost-effective insulation” for the least energy-efficient homes as priority measures for this funding, with a view to lowering bills.

There is also £2.7bn for the existing boiler upgrade scheme, which will see its annual allocation increase gradually from £295m in 2025-26 to £709m in 2029-30.

This is the government’s measure to encourage better-off “able to pay” households to buy heat pumps, with grants of £7,500 towards the cost of replacing a gas or oil-fired boiler. For the first time, there will also be new £2,500 grants from the scheme for air-to-air heat pumps (See: Heat pumps.)

A key new measure in the plan is £2bn for low- and zero-interest consumer loans, to help with the cost of various home upgrades, including solar panels, batteries and heat pumps.

Previous efforts to support home upgrades with loans have not been successful. However, innovation agency Nesta says the government’s new scheme could play a central role, with the potential for households buying heat pumps to save hundreds of pounds a year, compared to purchases made using regular loans.

The remaining funding over the next four years includes money assigned to heat networks and devolved administrations in Scotland, Wales and Northern Ireland, which are responsible for their own plans to tackle fuel poverty and household emissions.

Heat pumps

Heat pumps are described in the plan as the “best and cheapest form of electrified heating for the majority of our homes”.

The government’s goal is for heat pumps to “increasingly become the desirable and natural choice” for those replacing old boilers. At the same time, it says that new home standards will ensure that new-build homes have low-carbon heating systems installed by default.

Despite this, the warm homes plan scales back the previous government’s target for heat-pump installations in the coming years, reflecting the relatively slow increase in heat-pump sales. It also does not include a set date to end the sale of gas boilers.

The plan’s central target is for 450,000 heat pumps to be installed annually by 2030, including 200,000 in new-build homes and 250,000 in existing homes.

This is significantly lower than the previous target – originally set in 2021 under Boris Johnson’s Conservative government – to install 600,000 heat pumps annually by 2028.

Meeting that target would have meant installations increasing seven-fold in just four years, between 2024 and 2028. Now, installations only need to increase five-fold in six years.

As the chart below shows, the new target is also considerably lower than the heat-pump installation rate set out in the CCC’s central net-zero pathway. That involved 450,000 installations in existing homes alone by 2030 – excluding new-build properties.

Chart showing the government's new target for heat-pump sales is less ambitious than the previous target and the CCC's net-zero pathway
Annual heat-pump installation targets, including the previous UK government goal, the number set out in the CCC’s “balanced” net-zero pathway and the new target set out in the warm homes plan. Source: UK government, CCC.

Some experts and campaigners questioned how the UK would remain on track for its legally binding climate goals given this scaled-back rate of heat-pump installations.

Additionally, Adam Bell, policy director at the thinktank Stonehaven, writes on LinkedIn that the “headline numbers for heat pump installs do not stack up”.

Heat pumps in existing homes are set to be supported primarily via the boiler upgrade scheme and – according to Bell – there is not enough funding for the 250,000 installations that are planned, despite an increased budget.

The government’s plan relies in part on the up-front costs of heat pump installation “fall[ing] significantly”. According to Bell, it may be that the government will reduce the size of boiler upgrade scheme grants in the future, hoping that costs will fall sufficiently.

Alternatively, the government may rely on driving uptake through its planned low-cost loans and the clean heat market mechanism, which requires heating-system suppliers to sell a growing share of heat pumps.

Rooftop solar

Rooftop solar panels are highlighted in the plan as “central to cutting energy bills”, by allowing households to generate their own electricity to power their homes and sell it back to the grid.

At the same time, rooftop solar is expected to make a “significant contribution” to the government’s target of hitting 45-47 gigawatts (GW) of solar capacity by 2030.

As it stands, there is roughly 5.2GW of solar capacity on residential rooftops.

Taken together, the government says the grants and loans set out in the warm homes plan could triple the number of homes with rooftop solar from 1.6m to 4.6m by 2030.

It says that this is “in addition” to homes that decide to install rooftop solar independently.

Efficiency standards

The warm homes plan says that the government will publish its “future homes standard” for new-build properties, alongside necessary regulations, in the first quarter of 2026.

On the same day, the government also published its intention to reform “energy performance certificates” (EPCs), the ratings that are supposed to inform prospective buyers and renters about how much their new homes will cost to keep warm.

The current approach to measuring performance for EPCs is “unreliable” and thought to inadvertently discourage heat pumps. It has faced long-standing calls for reform.

As well as funding low-carbon technologies, the warm homes plan says it is “standing up for renters” with new energy-efficiency standards for privately and socially rented homes.

Currently, private renters – who rely on landlords to invest in home improvements – are the most likely to experience fuel poverty and to live in cold, damp homes.

Landlords will now need to upgrade their properties to meet EPC ratings B and C across two new-style EPC metrics by October 2030. There are “reasonable exemptions” to this rule that will limit the amount landlords have to spend per property to £10,000.

In total, the government expects “up to” 1.6m homes in the private-rental sector to benefit from these improvements and “up to” 1.3m social-rent homes.

These new efficiency standards therefore cover three-fifths of the “up to” 5m homes helped by the plan.

The government also published a separate fuel poverty strategy for England.

Heat networks

The warm homes plan sets out a new target to more than double the amount of heating provided using low-carbon heat networks – up to 7% of England’s heating demand by 2035 and a fifth by 2050.

This involves an injection of £1.1bn for heat networks, including £195m per year out to 2030 via the green heat network fund, as well as “mobilising” the National Wealth Fund.

The plan explains that this will primarily benefit urban centres, noting that heat networks are “well suited” to serving large, multi-occupancy buildings and those with limited space.
Alongside the plan, the government published a series of technical standards for heat networks, including for consumer protection.

What does the warm homes plan mean for energy bills?

The warm homes plan could save households “hundreds on energy bills” for those whose homes are upgraded, according to the UK government.

This is in addition to two changes announced in the budget in 2025, which are expected to cut energy bills for all homes by an average of £150 a year.

This included the decisions to bring ECO to an end when the current programme of work wraps up at the end of the financial year and for the treasury to cover three-quarters of the cost of the “renewables obligation” (RO) for three years from April 2026.

Beyond this, households that take advantage of the measures outlined in the plan can expect their energy bills to fall by varying amounts, the government says.

The warm homes plan includes a number of case studies that detail how upgrades could impact energy bills for a range of households. For example, it notes that a social-rented two-bedroom semi-detached home that got insulation and solar panels could save £350 annually.

An owner-occupier three-bedroom home could save £450 annually if it gets solar panels and a battery through consumer loans offered under the warm homes plan, it adds.

Similar analysis published by Nesta says that a typical household that invests in home upgrades under the plan could save £1,000 a year on its energy bill.

It finds that a household with a heat pump, solar panels and a battery, which uses a solar and “time of use tariff”, could see its annual energy bill fall by as much as £1,000 compared with continuing to use a gas boiler, from around £1,670 per year to £670, as shown in the chart below.

Chart showing that clean electric tech could save households £1,000 a year, compared to gas boilers
Annual energy bill savings (£) for a typical household from April 2026, by using different clean-energy technologies in comparison with a gas boiler. Source: Nesta analysis, using data from Ofgem, the Centre for Net Zero and an Octopus Energy tariff.

Ahead of the plan being published, there were rumours of further “rebalancing” energy bills to bring down the cost of electricity relative to gas. However, this idea failed to come to fruition in the warm homes plan.

This would have involved reducing or removing some or all of the policy costs currently funded via electricity bills, by shifting them onto gas bills or into general taxation.

This would have made it relatively cheaper to use electric technologies such as heat pumps, acting as a further incentive to adopt them.

Nesta highlights that in the absence of further action with regard to policy costs, the electricity-to-gas price ratio is likely to stay at around 4.1 from April 2026.

What has been the reaction to the plan?

Many of the commitments in the warm homes plan were welcomed by a broad range of energy industry experts, union representatives and thinktanks.

Greg Jackson, the founder of Octopus Energy, described it as a “really important step forward”, adding:

“Electrifying homes is the best way to cut bills for good and escape the yoyo of fossil fuel costs.”

Dhara Vyas, chief executive of the trade body Energy UK, said the government’s commitment to spend £15bn on upgrading home heating was “substantial” and would “provide certainty to investors and businesses in the energy market”.

On LinkedIn, Camilla Born, head of the campaign group Electrify Britain, said the plan was a “good step towards backing electrification as the future of Britain, but it must go hand in hand with bringing down the costs of electricity”.

However, right-leaning publications and politicians were critical of the plan, focusing on how a proportion of solar panels sold in the UK are manufactured in China.

According to BBC News, two-thirds (68%) of the solar panels imported to the UK came from China in 2024.

In an analysis of the plan, the Guardian’s environment editor Fiona Harvey and energy correspondent Jillian Ambrose argued that the strategy is “all carrot and no stick”, given that the “longstanding proposal” to ban the installation of gas boilers beyond 2035 has been “quietly dropped”.

Christopher Hammond, chief executive of UK100, a cross-party network of more than 120 local authorities, welcomed the plan, but urged the government to extend it to include public buildings.

The government’s £3.5bn public sector decarbonisation scheme, which aimed to electrify schools, hospitals and council buildings, ended in June 2025 and no replacement has been announced, according to the network.

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Climate Change

Climate change exposes 580 million children to 20 extra ‘heat-stress days’ every year

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More than 40% of children under the age of 10 globally are already experiencing at least 20 additional “heat-stress days” due to climate change.

This is according to a new attribution study, published in Science Advances, which combines climate models with demographic data to assess the age groups and regions that are exposed to the most hot, humid days.

The study finds that children up to the age of nine already face more additional heat-stress days globally as a result of climate change than any other age group.

It adds that south Asia and west Africa are recording the greatest childhood exposure to dangerous levels of humid heat – largely because these regions have a rapidly growing population with the highest proportion of young children.

As the climate warms, children will continue to be more exposed to heat stress than any other age group, the paper warns.

The lead author of the study tells Carbon Brief that the findings should inform discussions about climate justice, noting that children in developing countries “have contributed the least to historical greenhouse gas emissions”.

Humid heat

High temperatures can be deadly. For example, the heatwaves that swept across Europe in the summer of 2026 have been linked to tens of thousands of “excess deaths”.

A prominent 2021 study found that children born in the 21st century will be exposed to more extreme weather events in their lifetimes than their parents and grandparents.

Four years later, a study conducted by scientists from the same team found that more than half of children born in 2020 – around 62 million people – will experience “unprecedented lifetime exposure” to heatwaves, even if warming is limited to 1.5C.

Now, the latest research from the same team finds that children already face greater exposure to dangerous levels of humid heat than adults as a result of human-caused climate change.

Extreme heat is particularly dangerous when combined with high humidity. In hot weather, the human body produces sweat to cool itself down. However, as humidity increases, sweating becomes less effective.

The study uses wet-bulb globe temperature – a measure of temperature that takes humidity and wind into account – to calculate heat stress. It defines a “heat-stress day” as any day with a wet-bulb globe temperature above 28C, as this is considered the threshold for “moderate heat stress”

The authors then use climate models to simulate global temperature patterns in the present-day climate. (The authors use the climate of 2023, in which human activity has caused 1.3C of warming, to represent the “present-day”.)

They then count the number of heat-stress days that each country records on average, per year. The authors then repeat this exercise, simulating a pre-industrial climate without human-caused warming.

By comparing the number of heat-stress days in the present-day climate with the number in a pre-industrial climate, the authors can determine how many extra heat-stress days were driven by climate change. They refer to these as “extra” or “attributable” heat-stress days.

The authors find that “low-latitude” countries, located in the tropics, record the most extra heat-stress days.

For example, the paper finds that people living in Côte d’Ivoire currently face 112 heat-stress days every year. It adds that around half of these are due to human-caused climate change.

In contrast, Germany sees only 0.1 heat-stress days per year in today’s climate on average, which is largely attributable to human-caused climate change.

Rosa Pietroiusti, a PhD student at Vrije Universiteit Brussel and lead author on the study, explains why this number may seem lower than expected.

She tells Carbon Brief that the paper “really focuses on humid heat, at levels that are relatively rarely felt in Europe”. She adds:

“Our data also doesn’t capture the urban heat island effect, due to the resolution of the data we use, which also would lead to underestimations of heat stress locally, and lead to a mismatch with what people are experiencing at local scales, particularly in cities.”

Inequality

Extreme heat affects some people more severely than others. Children, people over 65 and those with pre-existing medical conditions or certain disabilities are among the most vulnerable. This is because their bodies are less able to regulate their temperature.

The authors use gridded demographic data to determine the age structure of each country. From this, they calculate how many people from each age cohort are exposed to extra heat days as a result of climate change.

The research finds that globally, 583 million children under the age of 10 already live through at least 20 attributable heat days every year. This accounts for 44% of all children in this age bracket.

In comparison, 190 million people aged 60-69 face at least 20 attributable heat days per year, accounting for 30% of this age cohort.

The authors find that children face the greatest exposure to humid heat for two main reasons.

First, there are more young people alive today than older people, with 1.3 billion children aged under 10 in the world, compared to 0.6 billion people aged 60-69.

Second, they find that countries in Africa and Asia typically have rapidly growing populations with more young children. In contrast, many countries in the northern hemisphere – which are typically cooler – have older populations.

The map below shows how many extra stress heat days each country currently faces as a result of human-caused climate change. Darker reds indicate a higher number of attributable heat days. The blue circles show the percentage of the population under the age of 10, with larger circles indicating a higher percentage.

Map of the world showing the number of extra heat days faced by the global population at present-day warming levels as a result of human-caused climate change. Source: Pietroiusti et al (2026).
The number of extra heat days faced by the global population at present-day warming levels as a result of human-caused climate change. Source: Pietroiusti et al (2026).

Warming world

The authors also repeat their analysis for a 1.5C and 2C warmer world. They use population estimates from the SSP2 scenario, which projects that the world’s population will peak at more than nine billion in the second half of the 21st century, with most growth occurring in low-latitude regions – especially in sub-Saharan Africa.

The research finds that, in today’s climate, 11% of all under 10s currently experience 100 or more extra heat-stress days per year due to climate change. In worlds warmed by 1.5C and 2C, the percentage rises to 13% and 23%, respectively.

In contrast, only 6% of all people aged 60-69 currently face 100 or more extra heat-stress days each year due to climate change. This number rises to 9% and 17% for 1.5C and 2C worlds, respectively.

These results are shown in the plot below. The three rows represent the climates of 2023 (top), a 1.5C world (middle) and a 2C world (bottom). The columns show different age cohorts, from the oldest on the left to the youngest on the right.

Each circle contains 100 coloured dots, with each dot representing 1% of the age cohort.

The colour of the dot represents exposure to annual heat-stress day, with darker dots indicating more heat-stress days. Grey dots mean that people experience fewer than one extra heat-stress day per year due to human-caused climate change, while black dots mean more than 150 extra heat-stress days due to climate change.

The figure shows that higher warming levels expose more people to heat stress and that younger cohorts tend to be worst affected.

For example, the top-right circle represents heat stress for under 10s in the present-day climate. Three of these dots are coloured black, indicating that 3% faced at least 150 attributable heat-stress days in 2023.

Attributable days of heat stress for different age cohorts (columns), at different warming levels (rows). Each circle contains 100 coloured dots, with each dot representing 1% of the age cohort. Darker dots indicate more heat-stress days. Source: Pietroiusti et al (2026).
Attributable days of heat stress for different age cohorts (columns), at different warming levels (rows). Each circle contains 100 coloured dots, with each dot representing 1% of the age cohort. Darker dots indicate more heat-stress days. Source: Pietroiusti et al (2026).

Pietroiusti tells Carbon Brief the study uses wet-bulb temperature because it is a “well-established heat stress metric”. However, she notes that it was not “explicitly defined to focus on children”. She continues:

“A really important step forward in the research community would be to link up climate science and health science experts to do research on what metrics are really most representative of, for example, health impacts and educational impacts that children will be suffering.”

Vulnerability

Dr Qinqin Kong, a postdoctoral researcher at the departments of medicine and health policy at Stanford University, who was not involved in the study, praises its “robust” methodology.

He tells Carbon Brief that the research provides “a timely quantitative evidence for discussions of climate justice, children’s rights and intergenerational equity”.

However, Kong suggests that the paper “may overstate the contrast between children and the elderly and underestimate the relative burden of older adults”.

He says:

“The elderly may also be more vulnerable due to their social circumstances. Children often benefit from parental supervision and caregiving, whereas many older adults live alone, have limited mobility and face barriers to accessing cooling or emergency assistance during heat events.”

Kong also notes that “people and societies in the mid-latitudes [for example, across much of Europe and North America] are less adapted to heat”, which may make them vulnerable to its impacts.

For example, he says that Europe “shows substantially stronger relative risk of heat mortality likely due to less heat-acclimatised populations, lower air conditioning prevalence and urban designs that don’t favour heat dissipation”.

Similarly, Dr Daniel Vecellio – a researcher at the University of Nebraska, who was not involved in the study – tells Carbon Brief that children are an “understudied cohort”.

However, he says there is “reason for hope” because “children are typically pretty good behavioural adapters to extreme heat” and because people who are “chronically exposed to extreme heat” will “have a better chance at better acclimatisation”.

Pietroiusti tells Carbon Brief that global reporting on heatwaves is often skewed towards wealthier nations.

For example, she notes that large-scale databases of disasters, such as EM-DAT, often underrepresent heatwaves in Africa, due in part to a lack of news coverage and formal reporting. She adds:

“Studies like this, which start from the climate data, can start to fill some of these gaps.”

She adds that the paper should inform discussions about climate justice, noting that children in developing countries, who are most severely affected by the increase in heat-stress days, “have contributed the least to historical greenhouse gas emissions”.

Pietroiusti, R. et al. (2026) Age-specific exposure to human-induced increases in humid heat, Science Advances, doi:10.1126/sciadv.aeb3232

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Climate Change

Battle over cleaning up shipping set to resume at London talks

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The US is expected to resume its attempt to sink measures for a greener global shipping sector at closed-door talks between governments at the International Maritime Organization (IMO) in early September.

The US and oil-producing allies like Saudi Arabia want to weaken a proposed plan for cleaner fuels that aims to reduce planet-heating emissions from the industry, which relies heavily on dirty bunker fuels. Shipping currently represents 3% of global emissions.

Those that want a softer system are likely to back a Liberian proposal which expert analysis suggests would see emissions fall by only half at most by 2050, far short of the sector’s agreed climate goals.

After several years of debate, governments provisionally agreed in April 2025 on the “Net Zero Framework” (NZF), a series of emissions reduction targets for shipowners, backed up with financial rewards for meeting the targets and fees for missing them.

But in October 2025, after a high-profile intervention from US President Donald Trump and threats of sanctions and visa restrictions, the US convinced a majority of voting nations to postpone the adoption of the NZF for a year.

Ralph Regenvanu, climate minister for the Pacific nation of Vanuatu, called the delay “unacceptable” given the urgency of accelerating climate change.

After a round of low-profile talks in May, the first of three further sets of talks on how to clean up shipping will begin at the IMO’s riverside headquarters in London on Tuesday, culminating in a final public session in November.

Em Fenton, who follows the talks as senior director of climate diplomacy at Opportunity Green, an NGO focused on aviation and shipping, said governments should not be sidetracked by alternative proposals to the NZF, calling them “a distraction from a hard-fought multilateral compromise”.

“If countries want to deliver a just and fair maritime transition, there is really only one choice: back the NZF and stand together in solidarity against those who would tear it apart,” Fenton added.

Five proposals on the table

Governments will discuss five different proposals submitted in advance of next week’s meeting. The most ambitious of these is from the Pacific island nation of Tuvalu, which has proposed a levy on the entirety of a ship’s emissions rather than just those above a certain level, as the NZF envisions.

That had been the original demand of Pacific nations before the NZF was provisionally adopted in April 2025. At the time, Tuvalu’s transport minister Simon Kofe described the NZF as disappointing and not ambitious enough.

For this reason, six Pacific countries abstained in the vote on the NZF. While they supported the original plan for its adoption in October 2025, they have used the delay to push again for more ambition.

John Kautoke, advisor to a group of Pacific nations called 6PAC+, told Climate Home News that the NZF “cannot diminish its already inadequate ambition. If anything, the NZF must increase in ambition if we are going to renegotiate its parameters.”

    Analysis by the Institute of Marine Engineering, Science and Technology (IMarEST) suggests that, of the five proposals, only Tuvalu’s would meet the 2030 and 2040 emissions reduction targets for global shipping that were agreed by governments in 2023. Those were for cuts of 20% between 2008 and 2030, 70% by 2040 and then reaching net zero “by or around, i.e. close to 2050”.

    Despite this, the UK, Australia, Canada and South Africa have formally proposed that governments adopt the NZF, which won support in a 63-13 vote among governments at the April 2025 talks. Trump’s US walked out halfway through.

    According to IMarEst’s analysis, while the NZF proposal will not be enough to meet the industry’s targets, it will reduce emissions more cheaply than the Pacific proposal.

    A proposal by Brazil – which fought hard for the NZF last October – suggests tweaking the framework to make meeting targets easier in the short term and harder in the long term.

    While this compromise will make it more appealing to the owners of polluting ships and countries that support them, IMarEst estimates it would lead to higher cumulative emissions than either the NZF or Pacific proposals.

    The NZF stipulates that fees for high-polluting shipowners should be be put into a Net Zero Fund and used to promote clean shipping fuels and a fairer transition. The Brazilian proposal would delay raising and spending these funds by two years, from 2029 to 2031.

    Liberia’s proposal weakens emissions cuts

    The US and Saudi Arabia are likely to swing behind a new proposal from Liberia, whose government makes millions of dollars a year selling the right for shipowners to register their vessels in the small West African nation via a US-based company.

    This proposal would weaken the emissions reduction targets. IMarEst says it would cut the industry’s emissions at most by a half by 2050, falling far short of the target agreed in 2023 for international shipping to reach net zero “close to 2050”.

    It would also replace the NZF’s fees for missing targets with a carbon trading system. As a result, there would be no Net Zero Fund and therefore less money available to incentivise green fuels and make the transition more equitable for poorer nations.

    Pacific advisor Kautoke said that, as well as preventing shipping from reaching zero emissions by 2050, Liberia’s proposal would mean the Pacific “will not receive any support to deal with the disproportionately negative impacts created by the cost of the transition”.

    “We get a double blow if we adopt the Liberian proposal,” he warned. “We get all the cost of a transition without any support, and we have an industry that continues to burn fossil fuels to an unforeseen point.”

    Japanese proposal favours shipowners

    Japan has submitted a late proposal to amend the NZF so that shipowners have more control over how the fees they would pay for emitting above a set threshold are spent.

    University College London professor Tristan Smith has argued that this change means there will be no central mechanism to incentivise investments in clean fuels. He wrote on LinkedIn that under the system put forward by Japan, shipowners would be able to select which green projects their fees would go to. They could choose their own or those of a sister company or other shipowners, rather than funding broader just transition projects that would benefit marine workers or developing countries hit by rising shipping costs.

    Despite its flaws, Smith added that Japan’s proposal “could still get taken seriously by some, given how appealing it may seem to shipowners who have consistently demanded control of revenues, and given how the US and other member states have pushed back against the IMO Net Zero Fund and [greenhouse gas] pricing.”

    Tacit or explicit approval?

    Next week, governments are expected to make statements saying which proposals – or which aspects of proposals – they prefer. Another set of talks will be held from November 23-27 before a potentially final round from November 30-December 4.

    A new framework to tackle shipping emissions could be adopted at those talks if two-thirds of countries that are present and signed up to a regulation called Marpol Annex VI – endorsed by just over 100 states – vote in favour of it, as they did in April 2025.

    The US and its allies are also trying to change the rules to make the next stage more difficult. Decisions that have been adopted at IMO meetings usually take effect automatically unless a certain number of countries object within a certain time period decided by governments, a system known as tacit approval.

    But the US wants that to require explicit approval instead, so that any new emissions standard would not come into force unless enough governments – representing a certain percentage of the world’s shipping fleet – actively indicate support for it.

    Critics say this change would give a small number of countries with large shipping registries the power to block implementation. Liberia has the world’s biggest shipping registry, run by an American company, followed by Panama and the Republic of the Marshall Islands.

    Liberia and Panama have supported the US at the talks on the Net Zero Framework. The Marshall Islands has long been one of the most vocal supporters of climate action in shipping but, with its officials and shipping registry income vulnerable to US retaliation, did not sign on to the recent Pacific proposal vowing to strengthen the NZF if it is re-opened.

    Brazilian negotiator Adriana de Medeiros Gabinio warned in April that the NZF’s opponents are trying to change the rules by which it comes into force as a “safety net to block” it.

    The post Battle over cleaning up shipping set to resume at London talks appeared first on Climate Home News.

    Battle over cleaning up shipping set to resume at London talks

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    Coles, Woolworths failing on deforestation commitments 

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    SYDNEY, Wednesday 26 August 2026 — New 2026 Sustainability Reports released by supermarket giants Coles and Woolworths this week demonstrate the retailers are failing on their commitments to end deforestation in their supply chains.

    Adele Chasson, Nature Policy Lead at Greenpeace Australia Pacific said:

    “These so-called sustainability reports are revealing. Despite their public commitments in 2024 and 2025, neither Coles nor Woolworths have taken deforestation-linked beef off their shelves. Meanwhile, bulldozers continue to tear up forests and bushland, pushing wildlife closer to extinction and causing mass toxic runoff to flow into the Great Barrier Reef. Millions of native animals like koalas are losing their homes to beef pastures each year, while the big supermarkets put off action.

    “Australians would be shocked to know that beef on the shelves of our biggest supermarkets could be pushing threatened species to the brink of extinction. Collectively Coles and Woolworths have made more than $2 billion in profits in the last year, profiting from the destruction of wildlife and precious Australian nature. Coles and Woolworths owe it to shoppers to deliver on their promises and end deforestation in their supply chains now.

    “As big beef buyers, Coles and Woolworths have an essential role to play in keeping Australia’s unique forests standing. They can help stop the Great Barrier Reef from being poisoned by runoff and protect iconic forest wildlife by taking deforestation off their shelves. It’s time these big companies put their money where their mouths are and follow through on their promise of sourcing and supplying deforestation-free beef.”

    Coles, Woolworths failing on deforestation commitments 

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