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How do national governments calculate their share of greenhouse gas emissions from international air travel?

They don't—emissions from international flights are counted separately from any one country's emissions. But there are several ideas to change this.

 

November 28, 2022

Every year, countries report their national greenhouse gas emissions to the United Nations Framework Convention on Climate Change (UNFCCC), which established an international agreement for combating climate change. Included in these reports, or “national inventories,” are emissions from domestic air travel—but not emissions from international flights.
 
Instead, these emissions are included in a category called “bunker fuels,” together with emissions from international shipping, which is reported separately to the UNFCCC.
 
Considering the contribution of air travel to global CO2 emissions—about 2.5% of all emissions from burning fossil fuels1—it may come as a surprise that international travel often goes unmentioned in climate change agreements, such as the 2015 Paris Agreement. But these agreements are based on each country taking responsibility for reducing the emissions that occur within its borders, explains Jörgen Larsson, a researcher of sustainable consumption at Chalmers University of Technology in Gothenburg, Sweden. “This means that it is not obvious who should take responsibility for emissions from international aviation,” Larsson says.
 
This doesn’t mean, however, that no one is thinking about how emissions from international air travel should be credited to individual countries. In 1996, the UNFCCC listed eight allocation options for international bunker fuels, including based on where the fuel was sold, the country where the aircraft is registered, and the country of departure or destination.2
 
Each approach has pros and cons. Allocation based on fuel sales would credit more emissions to countries with large air travel hubs, such as the U.K. and Germany, and fewer to countries with no such hubs—even those whose residents are big international travelers.

Using country of departure is straightforward, but may overstate emissions from tourism hot spots like Iceland and Portugal. Iceland, for instance, emitted 3.5 tons of CO2 per person from international aviation in 2018; but when adjusted for tourism, this number falls to around 1 ton of CO2 per person, according to analysis by Our World in Data.3
 
One strategy to get around these challenges is to credit emissions based on passengers’ country of residence. Using Sweden as a case-study for this method, Larsson and colleagues found that international air travel by Swedish residents emitted the equivalent4 of 11 million tons of CO2 in 2014.5 This is similar to the country’s annual emissions generated by cars and much higher than the emissions from Sweden’s domestic air travel (0.9 million tons of CO2 equivalent).
 
Why does this matter? Like many wealthy countries, Sweden has much higher rates of international air travel than the global average. Larsson says that even if Sweden adopted a number of more sustainable travel technologies, like hydrogen fuel and high-speed rail, these wouldn’t be enough to meet global climate goals.6 “This means that air travel volumes must decrease if the aviation sector shall contribute to meeting this target.”
 
According to the United Nations, yearly emissions need to drop to between 2 and 2.5 tons of CO2 per person by 2030 to meet our global climate goals.7 Use any calculator that shows the per-person emissions from air travel—and there are many, developed by airlines, researchers, carbon offseters and more—and you’ll see that even one international flight eats quickly into this total.

For instance, the International Civil Aviation Organization (ICAO)’s Carbon Emissions Calculator shows that one passenger flying economy from Los Angeles to London and back will generate 880 kg of CO2.8 That’s between 35 and 45% of the per-person emissions budget laid out by the United Nations. And that’s just for one round trip.
 
Whatever allocation strategy and calculator is adopted, having a shared, worldwide system to equitably credit emissions from international air travel would provide decision-makers with the data and incentives they need to do something about this large contributor to climate change.

 

Thank you to Fran Butera of Honolulu, Hawaii, for the question. You can submit your own question to Ask MIT Climate here.

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Creative Commons Attribution-NonCommercial-ShareAlike 4.0 International license (CC BY-NC-SA 4.0).
Footnotes

1 The International Council on Clean Transportation: "CO2 emissions from commercial aviation, 2018." September 19, 2019.

2 United Nations Framework Convention on Climate Change: "Communications from Parties Included in Annex I to the Convention: Guidelines, Schedule and Process for Consideration." Section III: Allocation and Control of International Bunker Fuels. June 25, 1996.

3 Our World in Data: Where in the world do people have the highest CO2 emissions from flying? November 9, 2020.

4 Like many activities that contribute to climate change, flying emits a mix of CO2 and other greenhouse gases. These are converted to "CO2 equivalent emissions" for ease of comparison.

5 Larsson, Jörgen, et al. "Measuring greenhouse gas emissions from international air travel of a country's residents methodological development and application for Sweden." Environmental Impact Assessment Review, Vol. 72, Sep. 2018. doi:10.1016/j.eiar.2018.05.013

6 Åkerman, Jonas, et al. "Low-carbon scenarios for long-distance travel 2060." Transportation Research Part D: Transport and Environment, Vol. 99, Oct. 2021. doi:10.1016/j.trd.2021.103010

7 UN Environment Programme: "Emissions Gap Report 2020." Chapter 6, "Bridging the gap—the role of equitable low-carbon lifestyles." December 9, 2020.

8 International Civil Aviation Organization: ICAO Carbon Emissions Calculator. Utilized November 28, 2022.

Want to learn more?

Listen to this episode of MIT's "Today I Learned: Climate" podcast on air travel.

Transcriptions

Laur Hesse Fisher: [00:00:00] Welcome to Today I Learned Climate, the show where you learn about climate change from real climate scientists. Today's question is, what are those white lines that trail behind the airplanes and what do they have to do with climate change?

To get more insight around today's question, I reached out to Professor Steven Barrett, who leads MIT's Laboratory for Aviation, and the Environment.

Steven Barrett: [00:00:24] My name is Steven Barrett and I've been at MIT at eight years now, trying to improve scientific understanding of how aviation impacts the environment with a particular focus on climate change and air pollution.

Laur Hesse Fisher: [00:00:36] You may have read some headlines about why flying has become enemy number one, for many climate change activists. An article from the Washington Post from November last year is literally titled, For the Love of Earth, Stop Traveling. I don't know about you but I love to travel but I hate the fact that something that I love to do creates so much pollution.

Steven Barrett: [00:00:57] I mean a lot of people view environmental constraints as existential threat to aviation and I believe at least, aviation is positive and the more people can explore the world and experience different cultures and take up educational and work opportunities and see family and friends, the better.

Laur Hesse Fisher: [00:01:15] So Professor Barrett and his research team are not only working to better understand the problems of aviation and climate change but are also developing solutions.

Steven Barrett: [00:01:23] Like electric aircraft and also bio fuels and other policy changes.

Laur Hesse Fisher: [00:01:29] So we'll talk about those later.

But first, let's break down the problem.

Planes burn jet fuel, and when they do they release two gases. The most important are carbon dioxide and water vapor, water in its gas form. You're probably familiar with the climate impacts of CO2. This gas gathers in the atmosphere and forms a kind of blanket around the earth, trapping in heat and bumping up the average temperature of the planet. For hundreds of thousands of years this has created a very comfy place for humans and life to live, but as we've been adding more and more CO2 to the atmosphere, the blanket is becoming thicker and thicker, warming the planet more than we have in millennia. Just as a side note, I highly recommend checking out the climate primer that we've posted on our new MIT Climate Portal, Climate.mit.edu. You'll find the link to this in our show notes.

Okay, so the CO2 is creating this thick blanket making us warmer. The main issue with CO2 is that it sticks around in the atmosphere for a long time.

Steven Barrett: [00:02:32] CO2 has a lifetime atmosphere of hundreds of years. Now most of the CO2 that aviation's ever emitted is still in the atmosphere because it lasts so long.

Laur Hesse Fisher: [00:02:41] Think about fighter planes circling Europe in World War One, or Charles Lindbergh flying across the atlantic Ocean in 1927, the CO2 from those flights are still in the atmosphere.

Steven Barrett: [00:02:53] And so we're now experiencing the warming from all that accumulated CO2.

Laur Hesse Fisher: [00:02:58] Okay, so that's CO2, but planes also emit water vapor.

Steven Barrett: [00:03:03] When aircraft fly through a sufficiently cold or wet part of the atmosphere, it leaves behind it an artificial cloud called a contrail.

Laur Hesse Fisher: [00:03:09] Which is short for condensation trail, because the water vapor condenses into ice crystal in the cold air.

Steven Barrett: [00:03:16] Which are line shaped artificial clouds you sometimes see behind aircraft, and they form within a few seconds and they last a few hours if they form and persist.

Laur Hesse Fisher: [00:03:26] Understanding how contrails interact with heat and sunlight is gonna be really important in this episode, so let's break this down for a moment. So normally, heat and sunlight enters our atmosphere and warms the earth as we all know. Some of that heat bounces back off the surface of the earth and leaves the atmosphere. So contrails do two things inside of this process, they reflect incoming heat from the sun, so that heat ever reaches the earth's surface, and they also absorb the earth's heat, keeping in the heat that would normally never stay in our atmosphere. You could say that contrails act like both a jacket and a shade. They absorb heat radiating off of the earth, like how a jacket keeps in your body heat, and at the same time, they also act like a shade, preventing sunlight that would have normally warmed the earth from ever hitting the surface.

Steven Barrett: [00:04:21] At nighttime, they're always warming because there's no incoming solar radiation but there is outgoing infrared which gets trapped. And then in the daytime they can either be warming or cooling.

Laur Hesse Fisher: [00:04:31] That's because it also matters where the contrail is. The balance of absorbing versus reflecting heat changes depending on if the contrail's over a darker area like the ocean, which absorbs more heat than it reflects, or over brighter areas like ice, which reflects more than it absorbs. If you wanna know more about this, check out our show notes on climate.mit.edu.

Overall, just like your jacket, scientists think that contrails have a warming effect, trapping in more heat than they reflect. And the models show that this warming effect is dramatic.

Steven Barrett: [00:05:08] So you have as much warming from the last six hours of contrails as you do from the whole history of aviation CO2 emissions.

Laur Hesse Fisher: [00:05:15] whoa, so contrails contribute a lot to warming but only temporarily, whereas CO2 lingers for hundreds of years. In fact, after 9/11, all planes were grounded for three days, and scientists studied and were able to see and measure how the lack of contrails really did impact the planet's temperature, which brings up another question. How do scientists actually study this stuff?

Steven Barrett: [00:05:40] Yeah, I mean in some ways a lot of climate science is difficult because we don't have a spare planet to do a control experiment on and that makes life much harder, so if we could create one, that would be ideal. But failing our ability to do that, we've got to approach problems in a more piecewise way. So that means building up models from rigorously verified pieces of evidence, so say for example, creating models of atmospheric chemistry, verifying those models of atmospheric chemistry, including verifying that experimentally in say smog chambers.

Laur Hesse Fisher: [00:06:16] So Professor Barrett and his team build and use climate models that try to simulate what's happening ten miles about us.

Steven Barrett: [00:06:22] A model is a computer representation of equations that govern physics, so they're equations that are transformed into computer code, and these things usually have millions of lines because you're trying to model or trying to capture in a computer code, what's going on from chemicals reacting, to emissions into the atmosphere, to clouds forming, winds, rain; a huge number of different processes that all get put into climate and atmospheric models.

Laur Hesse Fisher: [00:06:50] Most computer models can take weeks, months or even more than a year to run on super computers, because they require so much computational power.

Steven Barrett: [00:07:00] So you can run hypothetical cases and use the answers to understand what the effect is of aviation even now or in the future or if you were to change it in some way. You have generations of researchers who contribute a piece to the work, and in this case, often they'll work on modifying, improve or create computer codes that represent or improve the representation of some kind of physics or chemistry process. And the models that get built that represent the atmosphere and how it responds, are the product os hundreds of PHDs across scores of universities over decades, so this atmospheric and climate models represent the sum totals of generations of people's work towards building them.

Laur Hesse Fisher: [00:07:42] Okay so CO2 is still lingering and will still be lingering for hundreds of years. And contrails also trap heat depending on how many planes are flying at any given time. So how much does this actually matter? Well if you include both the CO2 and contrails, aviation contributes about six per cent of the warming we're experiencing today. Six per cent might sound small but it's actually a really big number. The country of India contributes six per cent of the world's greenhouse gases, and it's the world's third largest emitter. And aviation is on the rise.

Steven Barrett: [00:08:22] The current forecasts are that aviation would double or triple by mid century, and at the same time most scientists say that you want to reduce CO2 emissions by about 80%. So even though today aviation's only about six per cent, if we want to reach something like an 80% or more reduction of CO2 emissions, while enabling growth in aviation because of the positive effect it has on society, that creates a huge challenge that is very difficult to answer.

Laur Hesse Fisher: [00:08:50] These are hard questions but many people around the world are working on solving them. Airline industries are always looking at more and more fuel efficient planes, largely because it's in their economic interest to do so. Researchers like Professor Barrett are developing super efficient plane technologies. Companies are manufacturing lower carbon fuels like bio fuels made out of plant matter. There are a lot of solutions being pursued and there are great challenges with each of these solutions. But one thing is for sure, because of how long CO2 lasts in the atmosphere, the decisions that we make now, have an impact far into the future.

To see some of the work that MIT and others we know, are doing to reduce aviation's impact on climate change and other cool climate science explanations, check out tilclimate.mit.edu. That's tilclimate.mit.edu.

Thanks to Professor Barrett for coming in and speaking with us and thank you for listening.