Two days after the COP28 climate summit concluded on 13 December, Carbon Brief convened its team of specialist journalists to discuss the key outcomes of the two-week event in Dubai.
More than 1,300 people joined the webinar to hear about how issues such as the global stocktake, finance and adaptation featured at the talks, as well as how major nations such as China, India and the US approached the negotiations.
Carbon Brief published its detailed summary of the key outcomes hours after COP28 ended, outlining everything that happened both inside and outside the negotiating rooms.
A second in-depth piece zooming in on the outcomes for food, forests, land and nature at COP28 was published later in the week.
Eight Carbon Brief journalists and editors were on the ground throughout the summit and they all featured in the webinar.
A recording of the webinar (below) is now available to watch on YouTube.
The webinar was moderated by Carbon Brief’s editor and director, Leo Hickman, and featured the following Carbon Brief journalists:
- Dr Simon Evans, senior policy editor and deputy editor
- Daisy Dunne, special correspondent
- Josh Gabbatiss, policy correspondent
- Molly Lempriere, section editor for policy
- Dr Giuliana Viglione, section editor for food, land and nature
- Aruna Chandrasekhar, land, food systems and nature reporter
- Orla Dwyer, land, food systems and nature reporter
- Anika Patel, China analyst
Dr Simon Evans explained the “global stocktake” and, in particular, what it said about fossil fuels.
Daisy Dunne discussed the controversies around COP28 being held in a petrostate and the presidency being held by Sultan Al Jaber, the CEO of the Abu Dhabi National Oil Company.
Josh Gabbatiss spoke about the role of finance at this year’s COP – including the launch of the loss-and-damage fund. He also detailed the “global goal on adaptation”, which was given the green light in Dubai.
Molly Lempriere discussed a pledge by 130 countries to triple renewables by 2030. She also delved into the mitigation work programme.
Anika Patel followed China’s role in Dubai and analysed the country’s priorities at COP28 talks.
Aruna Chandrasekhar detailed India’s approach at COP28, looking ahead to the role the country will play at COP29 in Azerbaijan next year.
Orla Dwyer discussed the dynamics around civil society and activists in Dubai where protests are banned.
Dr Giuliana Viglione talked about how food was brought to the table in Dubai in a more significant way than at previous COPs.
Q&A
The Carbon Brief team also fielded questions from the audience and, where possible, answered them in writing within the webinar’s Q&A panel.
Below is an unedited copy of those questions and answers. The questioners’ names have been initialised, as have those of the Carbon Brief journalists:
PG: Isn’t what was agreed massively short of what is needed? The Saudi’s agreed to the wording because it allowed them to continue on a ‘business as usual’ basis, didn’t they?
SE: As we wrote in our summary, the wording on fossil fuels was probably as ambitious as it could have been – barring significant movement on new finance. More importantly, only countries themselves can implement action on the ground – the COP can’t do that. So the key test comes when countries submit their next climate pledges, by the end of 2025.
ML: Do the petrostates condemn all future COPs to achieving no more than incremental progress?
SE: I would say it’s important to note that there are 195 parties at the COP, each with their own priorities, red lines and compromises to make. So while individual countries or groups can veto decisions, there is rarely a single villain, due to the wide range of decisions being taken.
CBM: Could a COP ever be in a low lying island? Seychelles?
SE: The host rotates through five world regions. Fiji held the presidency in 2017 at COP23, but the summit was held in Bonn, Germany.
ME: With FT reporting ‘Big oil welcomes COP28 call to move away from fossil fuels in ‘orderly’ way’ – should cutting FF subsidies be the focus for the next COP?
SE: The stocktake does call on countries to phase out inefficient fossil fuel subsidies that do not support energy poverty “as soon as possible”, and this topic has come up repeatedly eg it was in the COP26 outcome, but I’m sure the focus on subsidies will continue – and for good reason.
EW: Like others, I am a bit surprised that people are pretending to be impressed by a statement of the obvious. With a different chair do you think we could have got something stronger.
SE: The presidency does play a big role at the COP but ultimately it’s a party-led process and if enough countries say they want something on the agenda, it’s hard for the presidency to stop that happening. (Last year at COP27 was a big different because attempts to address fossil fuels were in the “cover text”, which isn’t formally on the agenda and so the presidency has a bigger say on what’s in it)
MA: How close or how far will this deal land us in 1,5C?
SE: “IEA, ETC and CAT (sorry for acroynms) released analysis of COP28 pledges during the summit, see our summary. The tripling renewables and doubling efficiency one is the most significant, see this analysis we published before the COP to see why.
I think the CAT analysis said COP28 pledges closed around 1/3 of the gap to 1.5C, but it’s hard to quantify the “transitioning away from FF” part until we see the next country pledges.
EG: Is it not much better to focus on national government action and largely ignore the COP process which has never created a binding agreement at the level needed to ensure survival. At every COP we slip backwards again. The annual COP jamboree also distracts attention from the desperately urgent action we need on a national basis immediately. Ed Gemmell, Leader, the Climate Party in UK
AC: The Paris Agreement is in fact ALL about national government action, which is why they’re called NDCs or nationally determined contributions. After 2020, countries were supposed to start implementing their national pledges and will have to set new ones for 2025. COPs are where countries come together to set targets, review pledges and any binding commitments (including on finance), reflect on collective progress or the lack of it, and share knowledge and support and experiences. If you separate “jamboreee” from the actual negotiations, it is the one space, where once-a-year, ALL countries have a seat at the table to discuss climate actions and decisions are arrived at multilaterally.
TY: Did the global stocktake reveal which countries are particularly behind and what progress has been made in Europe? The implementation of the Global Stocktake has been reported by a lot of news papers, but I don’t think much detail has been reported.
SE: The stocktake was not really focused on national-level progress (or lack thereof) because countries didn’t want to be put in the spotlight / have their homework marked.
TM: Did the UK make any useful or significant contribution to COP28?
SE: The UK’s lead negotiator Alison Campbell was the co-chair of the stocktake negotiations, so she played a big role in the outcome (though the presidency took over the task into week two)
BM: As the phrase on transitioning away from foossil fuels has an extension, saying “so as to achieve net zero by 2050 in keeping with the science;” doesn’t that make this statement more meaningful? Net zero CO2 is needed for limiting warming to 1,5 C, so the whole sentence actually says that the transition away of fossil fuel should be realised by 2050, which is exactly what is needed. I know the “call upon Parties” context makes this whole statement rather weak, but nevertheless
SE: Thanks for the question Bert, yes you are correct, but nevertheless the key test will come with next country pledges.
EW: One of the main reactions I am getting from lay-friends is that the jamboree of thousands of people using carbon to fly to the COP is a terrible look. Is there any prospect of the COP being reformed so that it still achieves its goals but with 10-100 times fewer participants?
SE: This is definitely a very live question about how the COP is run. However, it’s worth emphasising that the amount of carbon associated with flights to the summit is not even a rounding error compared with annual global emissions (I think I worked it out as thousandths of a percent). Given the role of Paris and COPs generally in helping bend the curve on emissions, even small impacts on future warming would easily make all those flights worth it.
SC: Having documentation on exactly which countries were initially willing to sign up for “fossil fuel phase out” would be politically useful. Is that information available somewhere?
SE: “Yes, check out these pieces…
- COP28 DeBriefed 8 December: The fight over fossil fuels; Al Jaber defends ‘respect’ for science; Has COP ever finished on time?
- Q&A: Why defining the ‘phaseout’ of ‘unabated’ fossil fuels is so important at COP28
ML: What is the US rationale for its low $ commitment to the L&D fund relative to rich peers? Are they committing more elsewhere as an alternative for example?
SE: Republicans control the House, which holds the purse strings…
IR: do you think the outcomes would have been different if the president had not been distracted by having to defend himself agnst allegations of side deals etc? it did look as if he was getting somewhere at first.
SE: I would say the initial progress early on opened out space for the fight on fossil fuels. There are always big ups and downs in terms of progress at the COP so I wouldn’t read too much into this specific presidency on that.
NG: Why are developing countries not content with the L&D fund being held at the World Bank, and why would they prefer the UN?
SE: check out our Q&A here: Q&A: The fight over the ‘loss-and-damage fund’ for climate change
CP: John Kerry, the US climate envoy, is 80 and his Chinese counterpart, Xie Zhenhua, will be retiring next year. Who would take their place when these two people are no longer around and what could this mean for US-Chinese climate relations movng forward?
SE: I don’t think we know wrt Kerry but Liu Zhenmin is due to replace Xie Zhenhua, per our summary…COP28: Key outcomes agreed at the UN climate talks in Dubai
FM: Did (any) actions/speeches/etc. by the UK COP delegates give us any new insight as to the future approach of the UK to domestic climate action?
SE: I am not we gained any particular insights into the current government’s plans on climate, to be honest.
RE: If you have time, would you please talk about the issues blocking decisions related to the market mechanisms (A6.2 and 6.4)? Thank you.
SE: Thanks Ricardo, we addressed this briefly in our summary. For 6.2 it’s about whether to have process or control over how countries trade carbon with each other. The US was pushing for few rules while the EU, AILAC and others wanted the opposite. Some parties say attempting to put limits on the process goes against the mandate in this area. Big divides. Hard to see a way forward. On 6.4, the key stumbling block was on rules around carbon removals. I would expect those to be sorted out at COP29. Here’s a direct link to the relevant bit of our summary: COP28: Key outcomes agreed at the UN climate talks in Dubai – Article 6
AL: How will the doubling of energy efficiency be measured?
SE: The IEA already tracks the rate of improvement of efficiency, so I assume it’d be similar. I believe it’s an energy intensity measure. Q&A: Why deals at COP28 to ‘triple renewables’ and ‘double efficiency’ are crucial for 1.5C
CV: Do you actually feel we see a reduction in burning of fossil fuels as a direct outcome from this COP?
SE: It’s hard to judge until we see the next round of climate pledges, but narratives definitely matter because investors, markets, etc are people too and so they are influenced by what other people are saying.
CM: Whicvh are the ‘pressure points’ that climate justice action and campaign groups should be aiming at now post COP 28?
SE: The next round of NDCs (national climate pledges) due by end of 2025 are key. So – every natoinal govt is a pressure point.
VP: Is it so automatic that “triplicating renewables means move away from fossil fuels”? I am afraid that maybe fossil fuels will continue to be used as usual, while triplicating renewables (that today are not very important globally) will allow to continue being a highly energy consuming civilization worldwide. Can you comment on this?
SE: The IEA sees tripling renewables as a key lever. While you are correct that one does not automatically follow the other, we’d not be likely to see cuts in fossil fuel use unless alternative energy sources rapidly scale up. Q&A: Why deals at COP28 to ‘triple renewables’ and ‘double efficiency’ are crucial for 1.5C
JR: Doesn’t the tripling of world nuclear capacity fit in this section, not only RE
SE: We did cover this pledge, but it was explicitly aspirational and only signed up to by a small number of countries
JK: How important are the ‘side-deals’ at COP? Often multi-lateral deals are made on specific issues between groups of nations, like sustainable agricultural practices, water table monitoring frameworks, etc?
SE: The key issue with the side deals is the lack of accountability. Obv even national pledges lack binding accountability, but they are at least tied to some sort of process and monitoring. So – that’s why the next national pledges due in 2025 are key. They’re supposed to be informed by the stocktake and they have to explain how they are informed by it.
PN: How “visible” were the lobbyists from the oil companies at COP28? Was their presence/influence rather obvious or did they keep more in the back/quiet?
SE: I doubt they interacted directly with the negotiations/negotiators, which take place in their own specific bubble at the COP. But other attendees do influence the general vibes / what people are talking about.
SO: Good afternoon, thanks for organizing this webinar. Just hearing Leo in the introduction highlight that this was the first time that ‘fossil fuels’ were mentioned in a COP outcome, and we’ve heard others highlighting this too over the last 2 days. Actually looking through last year’s Sharm el-Sheikh COP27 cover decision (https://unfccc.int/sites/default/files/resource/cop27_auv_2_cover%20decision.pdf) it looks like ‘fossil fuels’ were mentioned (section IV. Mitigation, para 13) “Calls upon Parties … to phase-out inefficient fossil fuel subsidies…” This year the Dubai’s COP28 Global Stocktake Outcome (https://unfccc.int/sites/default/files/resource/cma2023_L17_adv.pdf) mentions (para 28 (h)) “Further recognizes the need … phasing out inefficient fossil fuel subsidies…” So given this sounds quite similar just interested in your views in how far we can call the mentioning of fossil fuels new. Thanks!
SE: The difference / significance is about this year’s decision targeting fossil fuels themselves, as a group collectively, as being a problem, which has never happened before.
JC: what is the sense of the role of the market in climate action? Since quality is at stake and market results have failed to deliver integrity, what is the result in the absence of a meaningful decision on Article 6?
SE: Hi Jacobo, this is an interesting tension…Article 6.4 is supposed to drive high quality markets but the longer it takes to get started, the more other market initiaves continue to grow in prominence. So far, I think there is more heat than light around voluntary carbon markets and I would be surprised to see that change dramatically even once ARticle 6.4 starts working.
EG: Sorry they did not agree to ‘double energy efficiency’. In fact the exact words are “doubling the global average annual rate of energy efficiency improvements by 2030” – they only agreed to double the RATE of annual IMPROVEMENTS to energy efficiency. If the average annual rate of “improvement” is 1% currently then this should be 2% by 2030 – overall energy efficiency is not being doubled. Or have I missed something?
SE: Hi Ed, yes it’s the rate of improvement, hopefully that is clear in all our coverage – sorry if that wasn’t clear in our brief spoken summaries just now. See eg: Q&A: Why deals at COP28 to ‘triple renewables’ and ‘double efficiency’ are crucial for 1.5
BW: Is there any chance for the COPs to adopt a majority (say at least 75%) instead of unanimous vote rule? Right now, one country is enough to block progress for everybody else and it would be good if there’d be a way around that.
SE: Hopefully covered in my answer just now…short answer, seems unlikely!
DO: In what ways (if any) is the phrase “transitioning away” different from “phasing-down”?
SE: I mean ultlimately it’s all wordsmithing, the key point is does it take us in the direction we need to go – see the chart in this piece: Q&A: Why defining the ‘phaseout’ of ‘unabated’ fossil fuels is so important at COP28
SS: Folks, please keep in mind, that this all is a volunatary commitment. No independent monitoring, verification. No 2030 goal. No money for enhanded adaptation and mitigation for poorer countries, bread crumps for L&D. And last but not least, based on US, Japan and others pressure, the baseyear for tripling/doubling renewables capacity and energy efficiency got lost – so allowing for significant gaming. I couled go on. So, what is the hype on this “monumental” outcome?
SE: Hi Stephan, you’re not wrong. To be fair, I don’t think we called it monumental, but despite all the shortcomings, it’s hard not to see it as historic to finally name the elephant in the room (fossil fuels), no matter how mealy-mouthed the language was.
GS: A question to Anika: Anika, thanks! You mentioned that while China didn’t contribute to L&D this year, China is contributing to adaptation through other channels. Could you talk more about the nature of those channels (for example: private vs public?, how can we know the investments are adaptation-related, where can we find the data/evidence)
AP: Thanks for the question Georgia! The data is all quite disparate and it’s quite complicated for a chat box, but I’d point you to this article we published recently on this topic: Guest post: Why some ‘developing’ countries are already among largest climate-finance contributors
HBP: ‘@orla and others – How are you tracking the announcements/commitments made for food and agriculture? What can civil society and journalists do to better verify claims are new/have real climate impact and not greenwashing?
OD: Hi Hope, you can find a lot of these announcements and detail on whether they are new or updated in our key outcomes piece published this afternoon… COP28: Key outcomes for food, forests, land and nature at the UN climate talks in Dubai
KH: Were there any new commitments made on implementation of the Action for Climate Empowerment (ACE) framework?
OD: Hi Kate, we have a section on what happened with ACE at this year’s COP in our main key outcomes piece – COP28: Key outcomes agreed at the UN climate talks in Dubai
KM: Do we think that China will eventually pay into the L&D fund?
AP: It’s not impossible, but I think there are a lot of outstanding issues that would first need to be changed (e.g. the World Bank’s oversight, developed countries meeting their existing obligations, ramping down trade tensions with the West) before China would be comfortable joining. China has other platforms (like the south-south cooperation fund, the Africa Climate Summit, etc) that it would be happier using to achieve the same thing.
The post Webinar: Carbon Brief journalists discuss COP28’s key outcomes appeared first on Carbon Brief.
Webinar: Carbon Brief journalists discuss COP28’s key outcomes
Climate Change
Extreme heat costing India’s poorest workers 2% of GDP, survey finds
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.
Extreme heat costing India’s poorest workers 2% of GDP, survey finds
Climate Change
Top maritime court rejects bid to halt UN deep-sea mining inquiry
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.

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.
Top maritime court rejects bid to halt UN deep-sea mining inquiry
Climate Change
Q&A: What the EU’s carbon market review means for climate action
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?
- What did companies and countries want from the ETS review?
- What is in the new proposal from the European Commission?
- What could the changes mean for greenhouse gas emissions?
- How was the proposal received?
- What is ‘ETS2’?
- What happens next?
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.

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.

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.

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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