Net zero aviation and shipping
Environmental Audit Committee
Closed
Inquiry
Aviation and shipping pose major challenges to reducing emissions. Together they account for 10% of UK greenhouse gas emissions and on current trends, aviation will be the largest emitting sector by 2050. The Government has set ambitious targets to reach net zero emissions by 2050 for the UK’s share of …
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32
Recommendations
38
Conclusions
2
Reports
5
Oral sessions
3
Letters
5
Events
Activity timeline 17 events
13 Mar
2025
2025
13 Feb
2025
2025
Report published
13 Feb
2025
2025
29 May
2024
2024
Report published
3 Apr
2024
2024
21 Dec
2023
2023
Report published
9 Jun
2022
2022
18 May
2022
2022
Oral evidence
18 May
2022
2022
Formal meeting (oral evidence session) · Room 6, Palace of Westminster
30 Mar
2022
2022
Oral evidence
30 Mar
2022
2022
Formal meeting (oral evidence session) · Room 15, Palace of Westminster
26 Jan
2022
2022
Oral evidence
Oral evidence sessions 5 sessions
18 May 2022
View on parliament.uk
Panel 1; Panel 3
Eamonn Beirne · Department for Transport
Emma Gilthorpe · Jet Zero Council
Holly Greig · Department for Transport
Lee Rowley · Department for Business, Energy and Industrial Strategy
Paul Griffiths · Department for Business, Energy and Industrial Strategy
Robert Courts · Department for Transport
Sophie Lane · Aerospace Technology Institute
30 Mar 2022
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Panel 1; Panel 2
Andy Cornell · Renewable Transport Fuel Association
David Morgan · easyJet
Dr Neville Hargreaves · Velocys
Helena Bennett · Green Alliance
Hemant Mistry · International Air Transport Association
Jonathon Counsell · International Airlines Group
Mr Jonathan Hinkles · Loganair
Paddy Lowe · Zero Petroleum
26 Jan 2022
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Alex Clark · Smith School of Enterprise and Environment, University of Oxford
Dr Tristan Smith · UCL Energy Institute
Guy Platten · International Chamber of Shipping
Katharine Palmer · Lloyd's Register
Michael Parker · Citi
Mike McCartain · Associated British Ports
1 Dec 2021
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Panel 1; Panel 2
Glenn Llewellyn · Airbus
Hannah Tew · Connected Places Catapult
Leo Murray · Possible
Matt Gorman · Heathrow Airport
Tim Johnson · Aviation Environment Federation
Val Miftakhov · ZeroAvia
27 Oct 2021
View on parliament.uk
Panel 1; Panel 2
Anna Ziou · UK Chamber of Shipping
Chris Young · Rolls-Royce
Dr Andy Jefferson · Sustainable Aviation
Dr Chika Miyoshi · Cranfield University
Sarah Kenny · Maritime UK
Simon Bullock · Tyndall Centre for Climate Change Research, University of Manchester
Reports 2 reports · click to expand
| Title | HC No. | Published | Items | Response |
|---|---|---|---|---|
| Seventh Report - Net zero and UK shipping | HC 509 | 29 May 2024 | 33 | Responded |
| Third Report - Net zero and the UK aviation sector | HC 404 | 21 Dec 2023 | 37 | Responded |
Recommendations & Conclusions
29 results
1
Conclusion
Accepted
Third Report - Net zero and the UK…
Non-CO2 climate impacts of aviation remain unquantifiable and poorly understood
The impact of conventional aviation activity on climate is still not fully quantifiable. While the contribution of aviation to levels of atmospheric CO and other greenhouse 2 gases is quantifiable and substantial, the climate impact of other emissions from aviation …
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Government Response
The government agrees with the conclusion, affirming its commitment to accelerate work on aviation's non-CO2 climate impacts by launching a multi-year, multi-million research program and establishing a Task and Finish Group that agreed to short-term actions for 2024. Findings from this research will be incorporated into the major review of the Jet Zero Strategy in 2027, with annual monitoring starting in 2025.
4
Conclusion
Accepted
Third Report - Net zero and the UK…
Legislation for international aviation emissions commitment significantly delayed by government
We are nevertheless concerned that legislation to give effect to this commitment has not been brought forward for approval by Parliament, over two and a half years since the commitment was originally made and over two years since the Government …
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Government Response
The government notes the concern about delayed legislation but does not commit to bringing it forward. Instead, it outlines existing efforts to improve aviation efficiencies, such as Free Route Airspace deployment and funding for the Aerospace Technology Institute Programme.
6
Conclusion
Accepted
Third Report - Net zero and the UK…
Varying projections for UK aviation emissions reductions by 2050 lack reliability
The outputs from the modelling undertaken by the Climate Change Committee, the Government and Sustainable Aviation vary as to the projections of likely emissions reductions from UK aviation by 2050. In some instances these variations are substantial, and tend to …
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Government Response
The government agrees with the conclusion about varying emissions projections and outlines specific actions to develop Sustainable Aviation Fuel (SAF), including introducing a SAF mandate from 2025 requiring 10% SAF by 2030 and investing £135 million through the Advanced Fuels Fund.
8
Conclusion
Accepted
Third Report - Net zero and the UK…
Significant potential exists for increased operational efficiencies in UK aviation to reduce CO2.
There is evidently significant potential for increased efficiencies across all aviation’s operations which can lead to incremental reductions in CO2 emissions across the UK aviation sector. Efficiencies from fuel use in the current and emergent fleet of aircraft, better use …
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Government Response
The government agrees with the potential for increased efficiencies and details its role in securing international agreements, including ICAO's target to reduce global aviation fuel emissions by 5% by 2030 and the adoption of the CORSIA sustainability framework for SAF.
9
Conclusion
Accepted
Third Report - Net zero and the UK…
Achieving 0.5% annual aircraft fuel efficiency gains demands significant R&D and industry incentives.
We agree with the Climate Change Committee that the 0.5% year-on-year improvement in fuel efficiency from the aircraft fleet requires considerable effort both in research and development activity and in incentivising the industry to renew existing aircraft fleets.
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Government Response
The government notes the recommendation and has committed to introducing an industry-funded revenue certainty mechanism to support Sustainable Aviation Fuel production by the end of 2026, with a consultation on design options to be published within six months of the Energy Act 2023 receiving Royal Assent.
13
Conclusion
Accepted
Third Report - Net zero and the UK…
Sustainable aviation fuels offer emissions reduction, but reliance on nascent technology is high risk.
Sustainable aviation fuels may offer a means of reducing the carbon emissions attributable to the lifecycle of aviation kerosene from its production to its combustion, and the Government envisions a substantial role for SAFs. There is nevertheless potential for wide …
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Government Response
The government commits to monitoring progress against emissions targets annually from 2025, conducting major reviews of the Jet Zero Strategy every five years (first in 2027), and producing a comprehensive monitoring and evaluation framework.
15
Recommendation
Accepted
Third Report - Net zero and the UK…
Establish strongest safeguards in UK SAF policy to ensure significant lifecycle emissions savings.
We are concerned that the broad definition of what is currently considered a sustainable fuel, and the absence of a global standard for SAFs, may lead to the development of aviation fuels which cannot credibly be described as sustainable. We …
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Government Response
The government agrees with the recommendation, confirming it will introduce a SAF mandate from 2025 with strict sustainability criteria to ensure genuine lifecycle emissions savings. It will also require evidence of lifecycle emissions from fuel producers and is supporting the industry through the £135 million Advanced Fuels Fund.
17
Recommendation
Accepted
Third Report - Net zero and the UK…
Establish comprehensive global regulatory standards for sustainable aviation fuels through ICAO.
We further recommend that Ministers and officials work vigorously at the ICAO and in all other relevant international bodies for the establishment of a global regulatory standard for SAFs which is comprehensive and rigorous.
Government Response
The government agrees with the recommendation, noting it already took a leading role in achieving an agreement at ICAO's CAAF/3 for a 2030 emissions reduction target and the establishment of the comprehensive CORSIA sustainability approach for SAF, and continues to strengthen this framework.
22
Recommendation
Accepted
Third Report - Net zero and the UK…
Include funding for research into non-CO2 atmospheric effects of zero-emission flight technologies.
Zero-emission flight is sometimes described as providing ‘guilt-free’ flying. While it is the case that ZEF technologies remove the CO2 emissions from conventional aircraft movements which are aviation’s most damaging effect on the environment, the potential effects on the atmosphere …
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Government Response
The government accepted the recommendation, confirming it launched a multi-year, multi-million aviation non-CO2 research programme in October 2023, with further calls planned, and specifically focusing on hydrogen-powered aircraft impacts.
23
Conclusion
Accepted
Third Report - Net zero and the UK…
Requiring airlines to price emissions through trading schemes is a constructive mechanism.
Requiring airlines to set a price on their emissions, and purchase credits for these emissions through a trading scheme, can be a constructive mechanism to ensure that the carbon cost of aviation is more adequately reflected in the cost to …
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Government Response
The government agrees with the mechanism described and commits to enhancing the UK ETS for aviation, including phasing out free allocation by 2026 and developing proposals for how the UK ETS should treat Sustainable Aviation Fuels (SAF).
24
Conclusion
Accepted
Third Report - Net zero and the UK…
Free ETS allocations for aviation ending, SAF pricing needs to reflect carbon impact.
We welcome the decision of the UK Government and devolved administrations to end the issuing of free ETS allocations to aviation with effect from the 2026–2030 allocation period. We note that the use of SAF in aviation is currently zero-rated …
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Government Response
The government agrees, confirming the phase-out of free ETS allocations by 2026 and stating they will develop and consult on proposals for how the UK ETS should treat SAF in the future, exploring alternative options for its pricing.
25
Recommendation
Accepted
Third Report - Net zero and the UK…
Implement UK ETS changes to remove conventional aviation fuel from free allocations.
We recommend that the Government implement its proposed changes to the UK ETS so as to remove conventional aviation fuel from free allocations, and that it consult on a methodology to include SAF in the ETS in a way which …
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Government Response
The government agrees with the recommendation, confirming the phase-out of free aviation fuel allocations by 2026 and committing to developing and consulting on proposals for how to treat Sustainable Aviation Fuel (SAF) within the UK ETS.
26
Conclusion
Accepted
Third Report - Net zero and the UK…
Aviation emissions offsetting mechanisms offer only a temporary, stopgap solution.
Offsetting mechanisms, such as CORSIA, may provide an interim step towards contributing to the removal from the atmosphere of the emissions attributable to UK aviation. We commend the Government on the work it has already undertaken at international level to …
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Government Response
The government agrees with the committee's observation, detailing its leading role in the ICAO CAAF/3 agreement for a 5% global aviation fuel emissions reduction target by 2030, which enshrined the CORSIA sustainability approach for SAF as a comprehensive international standard.
27
Conclusion
Accepted
Third Report - Net zero and the UK…
Residual aviation emissions will require alternative abatement methods for net zero.
Aviation is a sector of the economy where emissions are recognised to be some of the hardest to abate. Under all the scenarios presented for the reduction in emissions from UK domestic and international aviation, it is recognised that there …
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Government Response
The government acknowledges aviation is a hard-to-abate sector and states it is already supporting various technology, fuel, and market-based measures to address aviation emissions.
31
Conclusion
Accepted
Third Report - Net zero and the UK…
Aviation emissions reduction faces significant challenges, with carbon costs risking innovation and market distortion.
While we note the ambition shown by the Government and by the aviation industry in proposing technological methods to reduce aviation emissions, we recognise the very significant challenges for the industry in delivering the required reductions, and note that any …
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Government Response
The government agreed with the conclusion, stating it will accelerate work on aviation's non-CO2 climate impacts, launching a multi-year, multi-million research programme in October 2023, with a major review of the Jet Zero Strategy in 2027.
2
Conclusion
Accepted
Seventh Report - Net zero and UK s…
The UK’s influence over and contribution to international shipping activity is considerable.
The UK’s influence over and contribution to international shipping activity is considerable. We commend the UK Government on its contribution to date in securing a global strategy which is far more ambitious than that initially adopted by the IMO in …
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Government Response
The government accepts the conclusion and is actively working with IMO Member States to champion ambitious GHG reduction regulatory measures for international shipping. They will continue to build international consensus for agreements in 2025, implementation in 2027, and to increase the stringency of the IMO's 2023 GHG Strategy in 2028.
3
Conclusion
Accepted
Seventh Report - Net zero and UK s…
We nevertheless observe that the strategy adopted by the IMO does not currently align with...
We nevertheless observe that the strategy adopted by the IMO does not currently align with a pathway consistent with the Paris Agreement target of limiting global warming to 1.5°C, and that its ambition is limited to achieving net zero emissions …
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Government Response
The government accepts the observation, committing to work with IMO member states to agree ambitious GHG reduction measures by MEPC 2025 for implementation in 2027, and to increase the stringency of the IMO’s 2023 GHG Strategy when revised in 2028.
4
Conclusion
Accepted
Seventh Report - Net zero and UK s…
The period to 2028 and the expected adoption of a further GHG Strategy will be...
The period to 2028 and the expected adoption of a further GHG Strategy will be a crucial one for international shipping emissions, as agreement is reached on regulatory measures to implement the 2023 Strategy and as IMO States seek consensus …
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Government Response
The government accepts the conclusion and is actively working with IMO Member States to agree and implement ambitious GHG reduction measures by MEPC 2025/2027. They will also seek to increase the stringency of the IMO's 2023 GHG Strategy in 2028.
5
Recommendation
Accepted
Seventh Report - Net zero and UK s…
We recommend that the Government continue to work at the IMO for adoption of effective...
We recommend that the Government continue to work at the IMO for adoption of effective regulatory measures to implement the 2023 Strategy. In tandem with this, Ministers must press for a 2028 Greenhouse Gas Strategy which consolidates the ambition of …
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Government Response
The government accepts the recommendation, committing to continue working with IMO Member States to champion ambitious GHG reduction regulatory measures, aiming for agreement by MEPC 2025 and implementation by 2027. They will also seek to increase the stringency of the IMO’s 2023 GHG Strategy when revised in 2028.
6
Recommendation
Accepted
Seventh Report - Net zero and UK s…
Prompt and effective implementation of IMO conventions will be essential to the delivery of meaningful...
Prompt and effective implementation of IMO conventions will be essential to the delivery of meaningful reductions in shipping emissions in line with Paris goals and national net zero pathways. We therefore urge the UK to work with those flag States …
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Government Response
The government accepts the recommendation, committing to work with other flag states through appropriate IMO mechanisms to maximise the implementation of GHG emission reduction measures. This includes supporting capacity building and technical cooperation at the IMO, and utilising the IMO Member State Audit Scheme.
7
Conclusion
Accepted
Seventh Report - Net zero and UK s…
Current international shipping emissions allocation method unsustainable for UK policy development.
The current method for allocating international shipping emissions between states appears unsustainable as a basis for making UK policy on international shipping emissions and determining the maximum emissions permissible from the UK’s international shipping in the Sixth Carbon Budget. The …
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Government Response
The government accepts the conclusion and has developed a new maritime emissions model based on global vessel data to review and update the methodology for calculating UK shipping emissions. They aim to legislate for the inclusion of international shipping emissions in the Sixth Carbon Budget.
8
Recommendation
Accepted
Seventh Report - Net zero and UK s…
Assess merits of introducing voyage-based measure for UK's international shipping emissions contribution.
We recommend that the Government urgently assess the merits of introducing a voyage- based measure of the UK’s contribution to international shipping emissions, so as to provide a sounder basis for developing policy on reducing that contribution. It is in …
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Government Response
The government accepts the recommendation, stating they have already developed a new maritime emissions model and will use it to review the methodology for UK national accounting. They also aim to legislate for the inclusion of international aviation and shipping emissions in the Sixth Carbon Budget at the earliest opportunity, subject to Parliamentary scheduling.
10
Recommendation
Accepted
Seventh Report - Net zero and UK s…
Set stretching interim targets for UK domestic and international shipping emissions.
Net zero offers the UK an unrivalled opportunity to secure benefits for the UK maritime sector and the UK’s research and manufacturing base. It is now high time for Ministers to advance to the next stage of policy development by …
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Government Response
The government accepts the recommendation, committing to publish a maritime decarbonisation strategy and actively considering options for stretching interim targets for UK domestic and international shipping emissions in 2030 and 2040.
14
Recommendation
Accepted
Seventh Report - Net zero and UK s…
Government's failure to commit to zero-emission marine fuel manufacturing facilities is disappointing.
As with low-carbon aviation fuel, the development of manufacturing capacity for zero-emission marine fuels is vital for the security of the UK’s maritime trade and for the establishment of green shipping corridors. It is disappointing that the Government says it …
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Government Response
The government notes the recommendation, explains the complexity of manufacturing low-carbon marine fuels, and outlines existing support through hydrogen projects, maritime clusters, and the £206m UK SHORE programme for innovation in zero-emission fuels.
24
Conclusion
Accepted
Seventh Report - Net zero and UK s…
Government delay in shore power policy for UK ports is unwelcome during grid connection challenges.
It is regrettable that the Government has changed course on its policy on the provision of shore power to UK ports. In a period where grid connections are currently at a premium and demand for electricity supply is increasing, the …
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Government Response
The government accepts the conclusion and is considering options for a call for evidence, alongside its domestic maritime decarbonisation plan, to understand existing clean energy infrastructure at ports and enable their decarbonisation, including timely grid connection upgrades.
26
Conclusion
Accepted
Seventh Report - Net zero and UK s…
Clydebank Declaration and green shipping corridors represent significant progress in decarbonising shipping.
The initial Clydebank Declaration, and the consolidation and development of initiatives for green shipping corridors since COP26, represent considerable progress in collaboration between governments, and between the Government and industry, in the practical measures required to make decarbonised shipping a …
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Government Response
The government partially accepts the commendation, detailing ongoing funding through the UK SHORE programme (£1.1m for feasibility studies, £80.4m for ZEVI) and bilateral partnerships to support the establishment of Green Corridors, demonstrating continued proactive work in this area.
27
Conclusion
Accepted
Seventh Report - Net zero and UK s…
UK demonstrating green corridor implementation and welcoming international collaborations on maritime decarbonisation
The UK, as a leading proponent of this multilateral approach, is demonstrating how green corridors can be implemented on domestic, regional and intercontinental routes. We welcome the recent announcement of collaborations to establish green corridors between the UK, the Netherlands, …
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Government Response
The government partially accepts the welcome, detailing ongoing funding through the UK SHORE programme (including £1.1m for feasibility studies and £80.4m for ZEVI) and established bilateral partnerships to support the development of Green Corridors, with further project winners to be announced soon.
30
Recommendation
Accepted
Seventh Report - Net zero and UK s…
Press for global market-based measure for international shipping at IMO level by 2028
The Government must press for a global market-based measure for international shipping to be adopted and implemented at IMO level by the end of the current GHG Strategy period in 2028. To avoid ‘double counting’, any IMO measure ought to …
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Government Response
The government accepts the recommendation, committing to champion the adoption of an international shipping levy at the IMO's 83rd MEPC in April 2025, to take effect in 2027, and will seek to avoid double counting with other GHG pricing schemes.
31
Conclusion
Accepted
Seventh Report - Net zero and UK s…
Clean Maritime Plan revision substantially delayed beyond original and deferred timetables
The Clean Maritime Plan—the element of the Government’s Maritime 2050 strategy focused on decarbonising shipping—was issued in its initial form in 2019. At the time of publication, it was envisaged that the Plan would be reviewed in 2022. The revision …
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Government Response
The government accepts the conclusion and commits to publishing the delayed maritime decarbonisation strategy shortly. It will provide a pathway to net zero with interim goals, policy interventions, a framework for support, and a timeline for delivery.
Correspondence 3 letters
13 Mar 2025
To committee
Letter from the Secretary of State for Transport relating to the Government's Response to the Seventh Report from the Environmental Audit Committee of Session 2023–24, on Net zero and UK shipping, dated 3 March 2025
Parliament page
13 Feb 2025
To committee
Letter from the Chair of the Committee to the Secretary of State for Transport, relating to the Government's Response to the Seventh Report from the Environmental Audit Committee of Session 2023–24, on Net zero and UK shipping, dated 12 February 2025
Parliament page
9 Jun 2022
To committee
Letter from the Parliamentary Under Secretary of State (Minister for Aviation, Maritime and Security), Department for Transport, relating to the impact on aviation emissions in relation to the changes to rates for Air Passenger Duty banding, dated 27 May 2022
Parliament page