Source · Select Committees · Environmental Audit Committee
Third Report - Net zero and the UK aviation sector
Environmental Audit Committee
HC 404
Published 21 December 2023
Recommendations
5
Deferred
Para 51
Lay draft statutory instrument defining international aviation and shipping emissions before Parliament
Recommendation
We recommend that the Government lay before Parliament for approval, without further delay, a draft statutory instrument under section 30 of the Climate Change Act 2008 to define the emissions from international aviation and international shipping which are to be …
Read more
Government Response Summary
The government agrees with the recommendation but does not commit to laying the draft statutory instrument. Instead, it discusses the refreshed Airspace Modernisation Strategy and its focus on modernising airspace and enabling new aircraft technologies.
7
Deferred
Commission comparative analysis of UK aircraft emissions models with Climate Change Committee.
Recommendation
We recommend that the Government work with the Climate Change Committee and Sustainable Aviation on a comparative analysis of the models underpinning the projections for UK aircraft emissions, so as to reach consensus, as far as possible, on the likely …
Read more
Government Response Summary
The government partially agrees with the recommendation but deflects the request for a comparative analysis of aviation emissions models. Instead, it focuses on the sustainability criteria of the forthcoming Sustainable Aviation Fuel mandate and its efforts to promote high SAF standards internationally.
10
Deferred
Para 78
Maintain and enhance engagement with aviation for 2% annual CO2 reduction monitoring.
Recommendation
We recommend that the Government sustain and enhance its engagement with the aviation industry on the delivery of operational efficiencies from current and future fleets of aircraft operating through the UK, to maintain the ambition to secure 2% year- on-year …
Read more
Government Response Summary
The government partially agrees, but focuses instead on its aspiration for zero-emission domestic routes by 2030 and a net-zero target for UK domestic aviation by 2040. It also outlines significant funding for the Aerospace Technology Institute Programme to support low and zero-carbon aircraft technology development.
11
Deferred
Para 79
Intensify DfT and CAA work on airspace modernisation, prioritising environmental sustainability.
Recommendation
We recommend that the Department for Transport and the Civil Aviation Authority intensify their work on airspace modernisation, bearing in mind the overarching principle of environmental sustainability.
Government Response Summary
The government agrees but deflects the specific focus on airspace modernisation. Instead, it details the launch of a multi-year, multi-million aviation non-CO2 research programme to improve understanding and mitigation of non-CO2 climate impacts, with initial calls for academic projects launched in October 2023.
15
Accepted
Para 111
Establish strongest safeguards in UK SAF policy to ensure significant lifecycle emissions savings.
Recommendation
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 …
Read more
Government Response Summary
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.
16
Accepted in Part
Para 112
Establish clear criteria for land allocation to grow SAF feedstocks in Land Use Strategy.
Recommendation
We note with approval the Government’s criteria restricting the feedstocks to be used in UK-manufactured SAF and specifying that feedstocks are not to be obtained from land with high biodiversity value or land with high carbon stocks. We recommend that …
Read more
Government Response Summary
The government partially agrees, stating that strict sustainability criteria in the forthcoming SAF mandate will ensure emissions savings and protect against land use change. It also confirms it takes every opportunity in international forums to press for high sustainability standards in SAF production.
17
Accepted
Para 113
Establish comprehensive global regulatory standards for sustainable aviation fuels through ICAO.
Recommendation
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 Summary
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.
19
Deferred
Para 115
Implement a price support mechanism to incentivise investment in SAF production pathways.
Recommendation
The Government must match its ambition for the development of a domestic SAF industry with an appropriate appetite for risk and innovation in order to ensure that commercial production of truly sustainable fuels develops at pace. The introduction of a …
Read more
Government Response Summary
The government notes the recommendation, referring to prior commitments to introduce a revenue certainty mechanism, with a delivery plan by the end of 2026. It will publish a consultation on options for designing and implementing the mechanism within six months of the Energy Act 2023 Royal Assent.
21
Accepted in Part
Para 143
Establish a 2040 target for zero-emission aircraft on essential UK connectivity routes.
Recommendation
While zero-emission flight technologies offer a route to significant reductions in aviation’s CO2 emissions, their deployment is realistically likely to be limited to short-haul flights for the foreseeable future. ZEF can play a significant role in Net zero and the …
Read more
Government Response Summary
The government partially agrees, having an aspiration for zero-emission routes by 2030 and a target for UK domestic aviation to reach net zero by 2040, but not a specific target for the full roll-out of zero-emission aircraft on a minimum number of essential routes by 2040. It also funds ZEF technology development.
22
Accepted
Para 144
Include funding for research into non-CO2 atmospheric effects of zero-emission flight technologies.
Recommendation
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 …
Read more
Government Response Summary
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.
25
Accepted
Para 160
Implement UK ETS changes to remove conventional aviation fuel from free allocations.
Recommendation
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 …
Read more
Government Response Summary
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.
33
Rejected
Para 199
Climate Change Committee urges development of aviation demand management policy and technology options.
Recommendation
The Climate Change Committee has argued that demand-side measures have an important role to play in ensuring that the aviation sector delivers the necessary emissions reductions and that risks in the current approach are mitigated. That Committee has therefore urged …
Read more
Government Response Summary
The government notes the recommendation but rejects directly limiting aviation growth, stating the Jet Zero Strategy focuses on new fuels and technology. They will only consider further measures if the sector is not meeting emissions reductions trajectory.
35
Accepted in Part
Para 201
Undertake initial review of Jet Zero Strategy modelling by end of 2025 for emissions targets.
Recommendation
We recommend that an initial review of the Jet Zero Strategy and the modelling underlying its ‘high ambition’ scenario be undertaken no later than the end of 2025, with a view to determining whether the Strategy remains on track to …
Read more
Government Response Summary
The government notes the recommendation, stating they will monitor progress annually from 2025 but reaffirming the first major review of the Strategy and delivery plan will be in 2027, rather than by the end of 2025. They also plan to produce a comprehensive monitoring and evaluation framework.
36
Acknowledged
Para 202
Aviation sector must actively engage in review of emissions reduction shortfalls.
Recommendation
The review should be undertaken with the active engagement of the UK aviation sector, which is principally responsible for delivering the reductions in emissions it has claimed are possible: any shortfalls in delivery ought to be reviewed and urgently remedied.
Read more
Government Response Summary
The government notes the recommendation and outlines its commitment to a data-led approach, including annual monitoring of the Jet Zero Strategy from 2025, major reviews every five years, and the development of a comprehensive monitoring and evaluation framework.
37
Deferred
Develop policy proposals for aviation demand reduction, including frequent flyer levy.
Recommendation
Should the evidence of the review indicate that technological measures alone will not deliver the emissions reductions predicted, we recommend that Ministers reconsider the role of demand management measures in aviation emissions policy. In preparation for the outcome of that …
Read more
Government Response Summary
The government notes the recommendation but reiterates its current strategy to achieve net zero without limiting aviation growth, stating it will only consider further measures if the sector is not meeting its emissions reductions trajectory.
Conclusions (22)
1
Conclusion
Accepted
Para 30
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 is currently not well understood and difficult to quantify. Measures …
Government Response Summary
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.
2
Conclusion
Deferred
We consider that any strategy designed to reduce the impact of UK aviation activity on global warming ought to encompass the environmental effects of aviation in their entirety. We therefore recommend that the Government actively commission, promote and support research into the total environmental effects of aviation, with a view …
Government Response Summary
The government notes the recommendation but responds by stating it will include international aviation and shipping emissions in the Sixth Carbon Budget, legislating for this at the earliest opportunity, rather than committing to actively commissioning and supporting broader research into aviation's total environmental effects.
3
Conclusion
Acknowledged
Para 49
The Government’s decision to include international aviation emissions in the UK’s budgets with effect from the Sixth Carbon Budget has sent a very positive signal about the UK’s resolve to address carbon emissions from UK aviation by the use of policy instruments. Establishing a requirement to bring aviation emissions within …
Government Response Summary
The government notes the recommendation, acknowledges the complexity and varying models for aviation emissions, and states that DfT is continually improving its modelling capability and will consider new evidence as part of monitoring the Jet Zero Strategy.
4
Conclusion
Accepted
Para 50
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 promised to legislate “within twelve months”.
Government Response Summary
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
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 reduce overall confidence in the reliability of the projections from …
Government Response Summary
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
Para 76
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 of airspace and reductions in emissions from airport and aviation …
Government Response Summary
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
Para 77
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.
Government Response Summary
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.
12
Conclusion
Deferred
We support the Government’s aim to secure net zero in UK airport operations by
Government Response Summary
The government agrees but focuses on enhancing the UK Emissions Trading Scheme for aviation, including phasing out free allocation by 2026. It will also develop and consult on proposals for how the UK ETS should treat Sustainable Aviation Fuel use, exploring alternatives to SAF being zero-rated in the future.
13
Conclusion
Accepted
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 variability in lifecycle emissions across the general class of fuels …
Government Response Summary
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.
14
Conclusion
Acknowledged
Para 110
We welcome the initiatives taken by the Government to date to establish a domestic industry for the manufacture of sustainable aviation fuels, and the steps it is taking to build long-term supply chains for domestic and international aviation. We note the measures announced to date on the establishment in 2025 …
Government Response Summary
The government notes the committee's observation and states that while its Jet Zero Strategy focuses on new fuels and technology without limiting growth, it will consider further measures if the sector does not meet emissions reduction targets.
18
Conclusion
Para 114
We welcome the establishment of an UK SAF Clearing House at the University of Sheffield to support SAF producers through the process of certification and approval of their products for commercial use.
20
Conclusion
Acknowledged
Para 142
Zero-emission flight represents a very promising long-term prospect for achieving reductions in the CO2 emissions from UK aviation. Unlike the use of SAF, zero- emission flight technologies hold out the promise of eliminating the carbon emissions entailed in aircraft movements. We are encouraged by the significant contributions to research and …
Government Response Summary
The government acknowledges the committee's observation by detailing its significant financial support for the Aerospace Technology Institute Programme, which funds the development of new and zero-carbon emission aircraft technology.
23
Conclusion
Accepted
Para 158
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 the consumer. This in itself may influence consumer demand for …
Government Response Summary
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
Para 159
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 for ETS, even though the emissions from burning SAF in …
Government Response Summary
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.
26
Conclusion
Accepted
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 secure an agreement on an international offsetting mechanism. More remains …
Government Response Summary
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
Para 193
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 will be residual emissions which will have to be addressed …
Government Response Summary
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.
28
Conclusion
Deferred
Para 194
There is considerable dispute over the desirability of policy measures which would reduce UK aviation emissions by reducing the demand for aviation services. The Climate Change Committee has been clear that demand management is the most effective way of reducing aviation CO2 and non-CO2 emissions, and whilst there are a …
Government Response Summary
The government noted the conclusion, stating its Jet Zero Strategy focuses on new fuels and technology rather than limiting aviation growth, but committed to considering further measures if emissions targets are not met.
29
Conclusion
Acknowledged
Para 195
We note that UK Ministers have so far ruled out the inclusion of active demand management measures in the Jet Zero Strategy in preference for a policy which promotes the growth of the airline industry following the pandemic. This is beyond the approach proposed by the Climate Change Committee. Although …
Government Response Summary
The government notes the committee's observation about its preference for growth over demand management in the Jet Zero Strategy, stating its focus is on new fuels and technology to achieve net zero, but will consider further measures if emissions targets are not met.
30
Conclusion
Deferred
Para 196
While the Jet Zero Strategy contains measures to influence consumers towards more sustainable choices, and includes carbon pricing measures which will have an indirect effect on demand, it does not include any policy instruments designed to discourage flying in favour of other modes of travel or of communication. Ministers appear …
Government Response Summary
The government notes the recommendation, reiterating its Jet Zero Strategy focus on new fuels and technology, and states it will only consider further measures if the sector is not meeting its emissions reductions trajectory.
31
Conclusion
Accepted
Para 197
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 additional costs associated with carbon reduction, such as carbon pricing …
Government Response Summary
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.
32
Conclusion
Deferred
Para 198
We recognise that the Government’s decision, while consistent with a policy of promoting the UK aviation industry, carries a degree of risk. In order to deliver the emissions reductions foreseen, the high ambition scenario in the Jet Zero Strategy needs to be followed through with vigour and conviction and needs …
Government Response Summary
The government notes the recommendation, reiterating its Jet Zero Strategy focus on new fuels and technology, and states that it will only consider further measures if the sector is not meeting its emissions reductions trajectory.
34
Conclusion
Accepted in Part
Para 200
Ministers have committed to five-yearly reviews of progress against the Jet Zero Strategy’s targets, and have undertaken to take action to amend policy if it appears to be necessary. On the current timetable the first such review is to take place in 2027. This appears to us to be a …
Government Response Summary
The government notes the concern about the review timetable, stating they will monitor progress annually from 2025, with the first major review of the Jet Zero Strategy remaining in 2027. They also plan to produce a comprehensive monitoring and evaluation framework.