2025工业脱碳政策工具箱（英文版）.docx

Policy Toolbox for Industrial Decarbonisation

Policy Toolbox for Industrial Decarbonisation
Abstract

Abstract

The Policy Toolbox for Industrial Decarbonisation is a repository of policy instruments available to assist governments as they design, develop and implement their strategies for industrial decarbonisation. This work, undertaken as part of the Climate Club's Work Programme, builds on the policy toolbox outlined in IEA’s 2022 Achieving Net Zero Heavy Industry Sectors in G7 Members report, with the addition of further details on the instruments and considerations for implementation.
A robust industrial decarbonisation policy strategy is likely to include multiple different instruments, as governments choose the instruments that are most suited to their individual circumstances and objectives. The report draws on comparative policy analysis to discuss the main considerations and best practices for a wide range of policy instruments, as well as opportunities for international collaboration. It provides examples of relevant policies applied around the world.
The Policy Toolbox is divided into three broad areas with nine categories in total that group policy instruments according to their objectives. These broad areas are: Framework fundamentals, including (1) Establishing plans and policies for long- term GHG emissions reductions and (2) Mobilising finance and investment; Targeted actions for specific technologies and strategies, including
(3) Managing existing assets and near-term investment, (4) Creating a market for near-zero emissions materials production, (5) Developing technologies, and
(6) Accelerating material efficiency and circularity; and Necessary enabling conditions, including (7) International co-operation and a level playing field,
(8) Infrastructure planning and development, and (9) Tracking progress and improving data.

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Policy Toolbox for Industrial Decarbonisation
Acknowledgements

Acknowledgements

Policy Toolbox for Industrial Decarbonisation was prepared by the Energy Technology Policy (ETP) Division of the Directorate of Sustainability, Technology and Outlooks (STO) of the International Energy Agency (IEA). The project was designed and directed by Timur Gül, IEA Chief Energy Technology Officer. Araceli Fernandez Pales, Head of the Technology Innovation Unit (TIU), provided strategic guidance throughout the development of the project.
The principal IEA authors were: Antonella Pasetto, Tiffany Vass, and Isabel Geppert.
The development of this report also benefited from contributions from Andrew Ruttinger. Per-Anders Widell provided essential support throughout the process. Lizzie Sayer edited the manuscript.
Thanks also to Curtis Brainard, Poeli Bojorquez, Gaëlle Bruneau, Astrid Dumond, Grace Gordon, Jethro Mullen, Isabelle Nonain-Semelin and Lucile Wall of the Communications and Digital Office.
The report also benefited from collaboration with the Organisation for Economic Co-operation and Development (OECD) colleagues on the underlying policy mapping. Thanks go to Michael Alonzi and Anna Lockwood.
This report has been prepared as a deliverable under the Climate Club Work Programme
The work could not have been achieved without the financial support provided by the Government of Germany.
Peer reviewers provided essential feedback and input to improve the quality of the report. They include: Jasmine Bascombe, Adam Cohen, Ghadir Malek, Lorenza Micaletti, and Josh Watts (Government of the United Kingdom), Francesca Bazzocchi (Government of Italy), Viveca Bergstrand (Government of Sweden), Nikolas Black and Nick Gillard (Government of New Zealand), Malte Bornkamm, Michael Büchl, Sarah Heft, Stela Ivanova (Government of Germany), Joseph Cordonnier, Stephan Raes, Deger Saygin, and Cecile Seguineaud (OECD), Walker Darke, Andreea Nicoleta Miu, Sarbojit Pal, and Hugo Thomas Salamanca Dejour (United Nations Industrial Development Organization [UNIDO]), Tuğba Dinçbaş (Government of Türkiye), Taghareed Elgoweily (Government of Egypt), Jakob Embacher and Sophie Praniess (Government of Austria), Javier García Monge and Ambrosio Yobánolo (Government of Chile), Rossana Gresia

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(Government of Belgium), Višnja Grgasović and Mirna Maravić (Government of Croatia), Boyoung Kang (Government of South Korea), Nazareth Rojas (Government of Costa Rica), Roel Schoenmakers (Government of the Netherlands), and Eriko Seki (Government of Japan).

The individuals and organisations that contributed to this study are not responsible for any opinions or judgements it contains. The work reflects the views of the IEA Secretariat but does not necessarily reflect those of individual IEA member countries, Climate Club members, the Climate Club Secretariat, or of any particular funder or collaborator. All errors and omissions are solely the responsibility of the IEA.

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Policy Toolbox for Industrial Decarbonisation
Table of contents

Table of contents
Overview 7
Description and purpose 7
Methodology 10
Structure 12
1. Framework fundamentals 14
1.1. Establishing plans and policy for long-term GHG emission reductions 14
1.2. Mobilising finance and investment 40
2. Targeted actions for specific technologies and strategies 75
2.1. Managing existing assets and near-term investment 75
2.2. Creating a market for near-zero emissions materials production 92
2.3. Developing technologies 120
2.4. Accelerating material efficiency and circularity 132
3. Necessary enabling conditions 148
3.1. International co-operation and a level playing field 148
3.2. Infrastructure planning and development 164
3.3. Tracking progress and improving data 173

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Policy Toolbox for Industrial Decarbonisation
Overview

Overview

Description and purpose
This report is intended to serve as a detailed Policy Toolbox – a repository of policy instruments – that can be used by Climate Club members and other governments as they design, develop, implement and refine their strategies for industrial decarbonisation. The foundation for the report is the policy toolbox outlined in IEA’s 2022 Achieving Net Zero Heavy Industry Sectors in G7 Members report, which is referred as “the IEA Policy Toolbox” hereafter.
The IEA Policy Toolbox comprises multiple elements that the IEA considers relevant to an effective and comprehensive industrial decarbonisation strategy. These are grouped into three broad areas:
Ÿ Framework fundamentals, which refers to broader policies and plans that provide a long-term signal for decarbonisation and strategies to mobilise financing.
Ÿ Targeted actions for specific technologies and strategies, which encompasses measures taken to ensure that the required low- and near-zero emissions technologies are developed, a market is developed for such
technologies, high-emitting production stock is addressed, and that demand for materials is optimised.
Ÿ Necessary enabling conditions, which include having a sufficiently robust framework for international co-operation, support to develop adequate enabling infrastructure, and the proper mechanisms to collect data and track progress
Independently of the intended pace of the transition and the specific policy instruments that each country may wish to implement, ultimately government action under all three of these areas is likely to be necessary for a successful transformation of the industrial sector. Further, stakeholder collaboration is a necessary driving force for advances across all of the areas. This includes governments and industrial producers and associations taking a lead role, but also collaboration with other important actors including materials users, financial institutions and investors, technology suppliers, startups, trade unions, researchers and non-governmental organisations. The necessary level of collaboration will vary depending on the policy instruments, but in general terms, the more involved and committed the various actors in the process are, the greater the likelihood of policies being effective.
The purpose of the Policy Toolbox is to serve policy makers. It is intended to become a go-to hub to support governments in designing and fine-tuning their strategies. It can also serve as a reference for other stakeholders, such as private

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sector producers or taxpayers more broadly, to better understand the policies implemented by different governments and their implications. The toolbox primarily targets deep emissions reductions towards the achievement of long- term, internationally aligned government objectives but incremental emissions reductions will also be necessary in parallel and will need to be addressed by the overall policy strategy. It is technology-agnostic, aiming to provide a guide and springboard for different countries as they develop policies tailored to their diverse resource endowments and local conditions.
Users may wish to employ the menu (Table of contents) to navigate to the areas that are most of interest – as a toolbox, the report is not necessarily intended to be read from top to bottom. On the first level of the menu that users see when opening the toolbox, there will be an overview of the key categories, showing how they inter-relate and complement each other.
By navigating through each of these categories, users will be able to access a concise analysis of each policy instrument, including its benefits and key considerations for implementation. To complement this, each policy instrument comes with a list of reference policies to provide examples of practical implementation. This list draws from the steel and cement policy-mapping exercise conducted by the OECD and IEA for the Climate Club and does not claim to be exhaustive.
The Policy Toolbox allows the user to take an in-depth look into policy instruments of interest. This approach aims to provide an intuitive and accessible tool to policy makers by presenting a compilation of concise information at different levels of granularity, and thereby helping them to focus on the topics relevant to their strategies. Policy makers may use this toolbox for research, comparison and design of strategies, as well as for inspiration for implementation.

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Figure 1 A policy toolbox for decarbonisation of heavy industries
Framework fundamentals
Mobilising finance and investment

• Direct public funding
• Direct public equity investment
• Subsidised interest rates and concessional loans
• Public guarantees
• Facilitation to connect financing and funding needs
• Contracts for difference (CfDs)
• Tax credits
• Public Private Partnerships PPPs) and Blended Finance
• International finance
• Sustainable investment schemes/taxonomies/roadmaps
Establishing plans and policy for long-term GHG emission reductions
• Roadmaps, plans and targets (including via NDCs)
• Emissions Trading Systems (ETSs)
• Carbon taxes
• Tradeable Performance Standards (TPSs)
• Just transition planning

Targeted actions for specific technologies and strategies

Production technologies
Managing existing assets and near-term investment
Developing earlier- stage technologies
Demand and recycling
Accelerating material efficiency
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•
•
•
Requirements for retrofit-ready builds Sunset clauses Measures to reduce excess capacity TPSs
Carbon Product Requirements (CPRs)
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•
R&D and demonstration funding
PPPs
Programmes and networks for innovation knowledge-sharing, and co-ordination Regulatory sandboxes
•

•
•
•
•
Modified design regulations focused on material efficiency Incentives for extended end-use lifetimes and demolition or landfilling fees
• Training programmes in material efficiency for engineers, architects, and construction workers
• Material efficiency awards and certifications
• Embodied carbon limits or taxes on end-use products
Creating a market for near-zero emission materials production
• CfDs
• Public procurement for near-zero emissions
• State-backed intermediaries
• Near-zero emissions private procurement
• Collaborative procurements and buyers’ alliances
• Near-zero emission material mandates/ quotas and minimum content regulations
• Embodied carbon limits or taxes on end-use products
• Certifications and product stewardship

Necessary enabling conditions

International co-operation and a level playing field
• Co-ordination of carbon pricing, regulations, subsidies and other measures
• Carbon border adjustments (CBAs)
• International technology co-development and strategic partnerships
• Multilateral alliances and collaborative fora
• Capacity-building and international best practice sharing
• International finance
Infrastructure planning and development

• Co-ordinated planning and public financing for required supporting infrastructure
• Streamlined and accessible permitting
Tracking progress and improved data
• Improved data collection and reporting
• Standards, definitions, certifications and labelling for low- and near-zero emission materials production
• Work towards common international methodologies and definitions
• Sustainability certifications and product stewardship initiatives

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Source: Adapted from IEA (2022), Achieving Net Zero Heavy Industry Sectors in G7 Members.

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Methodology
Starting from the IEA Policy Toolbox, this report analyses and provides further detail on the policy instruments under each of the three major groups in the toolbox. The policy categories and instruments are analysed based on the questions in the Structure described below. Examples for each policy instrument are included, based on the Policy mapping.

As with any policy analysis, this methodology involves a certain level of expert judgement that is grounded in the IEA’s long-standing experience in global energy policy analysis. It also leverages the strategic exchanges of the Climate Club regarding best practices and policy experiences of a large and diverse group of countries. The aim is to not be prescriptive, but rather to present the different aspects for policy makers to consider when choosing and designing policy instruments. The approach intends to open a discussion, describing the circumstances that could render each policy instrument more or less suitable and the considerations for implementation.

Key indicators for policy implementation
Policy making involves making considerations across a variety of different factors, in order to select an