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
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 …
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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.
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.
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 …
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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 …
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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.
Conclusions (11)
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.
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.
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.
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.
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.