But independent analysts say the rate of cuts must triple,
industrial baselines remain too generous, and
$14.9 billion in annual fossil-fuel supports make the headline look hollow.
| Key Points |
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In September 2025, Australia told the world it would cut greenhouse gas emissions by 62 to 70 per cent below 2005 levels by 2035.
On the same day, the Climate Change Authority warned that delivering even the lower end of that range would require the current pace of cuts to triple within a decade.1
That tension, between an ambitious headline target and the structural barriers to achieving it, now defines the central challenge of Australian climate policy.
Three interlocking problems have converged:
- A target architecture that independent analysts say falls short of 1.5°C Paris alignment.
- A reformed industrial emissions scheme that is showing early results but carries serious design weaknesses.
- A government that simultaneously champions decarbonisation at home while subsidising fossil-fuel exports on a scale few peer nations match.
The 2035 Target: How It Was Set, and What It Will Take
The Climate Change Authority's final advice, submitted in September 2025, recommended a target range of 62 to 70 per cent below 2005 emissions levels by 2035.1
The government accepted that advice in full, setting an identical range and submitting it to the United Nations as Australia's third Nationally Determined Contribution ahead of COP30 in Brazil.
The CCA's own annual progress report, released in November 2025, contextualised what the target demands. Annual emissions fell by 10 million tonnes of CO2 equivalent in the year to June 2025, the largest drop outside of the COVID-19 pandemic.1
But reaching the 2030 target requires accelerating that annual reduction to 18 million tonnes. Reaching the 2035 target will require cuts of 20 to 25 million tonnes per year throughout the remainder of the decade. That means the current pace must roughly triple.
The electricity sector has led the way. It contributed the majority of national emissions reductions in the past year, as coal-fired generation has been progressively displaced by large-scale solar and wind.1
Renewables now make up over 40 per cent of Australia's two largest electricity grids, up from 13 per cent in 2015.
Transport is a different story. Climate Action Tracker projects that, absent stronger intervention, transport will surpass electricity to become Australia's largest single source of emissions by 2030.2
Australia was among the last developed economies to adopt a vehicle efficiency standard, doing so only in 2024, alongside Russia. The government's own impact assessment estimates the New Vehicle Efficiency Standard will reduce cumulative emissions by 16 million tonnes between 2025 and 2030, or about 11 per cent below 2025 levels. Analysts consider that figure meaningful but insufficient.
Agriculture, heavy industry and the resources sector have shown little improvement. Emissions from fossil fuel production, agriculture and waste continue to flatline, according to the most recent national inventory data.2
The Climate Change Performance Index found in November 2025 that Australia's government planning documents accompanying the 2035 NDC indicated an aim at the lower end of the announced range, with no measures in place to support delivery of the 70 per cent upper bound.7
The 2035 target remains unlegislated. The 2030 target of 43 per cent below 2005 levels was embedded in the Climate Change Act 2022, providing regulatory certainty for business and investors. The 2035 equivalent has not received the same treatment, leaving its enforceability dependent on successive governments' willingness to honour it.
The Gap Between Australia's Target and 1.5°C
Climate Action Tracker has rated Australia's 2030 target "Insufficient" against modelled domestic pathways for limiting warming to 1.5°C.2
The assessment was issued after the government's December 2024 projections, which showed Australia tracking toward a 42.6 per cent reduction by 2030.
The CAT has also noted that continuous recalculations of land-use, land-use change and forestry projections have effectively reduced the apparent emissions reduction task for the energy, industry, agriculture and waste sectors.2
Government projections of land-sector removals quadrupled between 2021 and 2024. The CAT has called for full transparency in land-sector modelling, cautioning that emissions reductions driven by revised forestry estimates represent statistical adjustments rather than structural economic change.
Climate Analytics, in a briefing published in August 2025, found that net emissions had dropped 29 per cent between 2005 and 2024, but that gross emissions had decreased by only two per cent over the same period.8
The organisation called for Australia to set separate targets for both net and gross emissions in its NDC to clarify the level of abatement required from the Australian economy.
The Climate Change Performance Index, published in November 2025, ranked Australia 56th globally, four places lower than the previous year, among the very low-performing countries.7
The index's national experts called for Australia to manage a phase-out of coal and gas extraction, and to end fossil-fuel subsidies.
The Safeguard Mechanism: First Results, Persistent Weaknesses
The reformed Safeguard Mechanism, which took effect on 1 July 2023, is Australia's primary tool for regulating emissions from large industrial facilities. It covers around 220 facilities emitting more than 100,000 tonnes of CO2 equivalent per year, together responsible for a substantial share of national emissions.4
The mechanism sets declining baselines for each facility. The default rate of reduction is 4.9 per cent per year to 2030, after which baselines transition to industry-average benchmarks. Total net emissions from all covered facilities must not exceed 100 million tonnes in the 2030 financial year, against a cumulative cap of 1,233 million tonnes between 2021 and 2030.4
FY2024 was the first full compliance year under the reformed rules. The Clean Energy Regulator's data confirmed that total gross safeguard emissions fell from 138.7 Mt CO2-e in 2022–23 to 136.0 Mt CO2-e in 2023–24, across 219 covered facilities.3
Following the surrender of Australian Carbon Credit Units and Safeguard Mechanism Credits, net safeguard emissions fell to 127.8 Mt CO2-e. The CER issued the first Safeguard Mechanism Credits in February 2025, following that initial compliance reporting cycle.
Compliance was high overall, with 98 per cent of the 219 facilities not in an excess emissions situation by the April 2025 deadline.3
One notable exception was Fitzroy (CQ) Pty Ltd, the responsible emitter for two Queensland coal mines, which the Clean Energy Regulator confirmed was in an excess emissions situation of 583,079 tonnes CO2-e and accepted an enforceable undertaking after the company declared it lacked immediate financial capacity to purchase the required credits.
The penalty regime underpins compliance. Facilities that exceed their baseline without surrendering credits face a maximum civil penalty of one penalty unit per tonne of excess emissions. As of November 2024, one penalty unit equals AUD$330.4
Critics, including the Climate Change Performance Index's national expert panel, argue that even at that rate the penalty signal is too weak to compel large capital investments in abatement technology for facilities with high production values.
A structural concern centres on baselines for major gas facilities. The CCPI national experts assessed in November 2025 that the first public data released under the reformed mechanism showed emissions baselines are, especially for major gas facilities, more permissive than expected, with those facilities generating credits above what analysts had anticipated.7
The government committed to reviewing the mechanism's scope and design in 2026–27, once two years of post-reform data are available.
The mechanism currently applies to Scope 1 emissions only. It does not cover Scope 2 emissions from purchased electricity, nor Scope 3 emissions embedded in exported coal and gas. This matters acutely for Australia's LNG sector, where the combustion of exported gas by overseas buyers generates emissions that dwarf the facility's own operational footprint.
A carbon border adjustment mechanism is under active consideration. Consultation papers were published in November 2023 and November 2024, examining how to prevent carbon leakage as Australian industry faces competition from lower-regulation jurisdictions.4
Final recommendations are due to government in the near term, with cement, lime and clinker exports flagged as initial candidates for coverage.
The Subsidy Contradiction: $14.9 Billion and Growing
Consider the economics facing a small Queensland coal haulage company in 2024–25. Under the Fuel Tax Credits Scheme, the business received a refund on the excise it paid for diesel used off public roads. That refund is not incidental; it is the single largest item in Australia's fossil-fuel subsidy portfolio, worth $10.8 billion in 2025–26 and mainly benefiting multinational mining companies.5
When all federal and state supports are aggregated, Australian governments directed $14.9 billion in spending and tax concessions toward fossil-fuel producers and major users in 2024–25, a three per cent increase on the $14.5 billion recorded in 2023–24.5
The Australia Institute, which compiles the annual estimate, calculates that figure equates to $28,381 per minute, every minute of every day of the year.
The longer-term picture is starker. The forward-estimates value of fossil-fuel subsidies across all federal programs reached $55.5 billion in 2024–25, an increase of $1.2 billion on the previous year's estimate.5
The most recent figure, incorporating 2025–26 data, has risen further still. By March 2026, The Australia Institute calculated that total subsidies had grown to $16.3 billion, a 9.4 per cent increase on the prior year, growing faster than spending on the National Disability Insurance Scheme.
The Petroleum Resource Rent Tax, which applies to offshore oil and gas projects including those operated by Woodside, contributed a further $2.1 billion in concessions at the federal level in 2024–25.5
The total forward-estimates value of $55.5 billion is approximately 11.7 times the balance of Australia's national disaster response fund.
The Woodside Decision: A Defining Signal
On 12 September 2025, Environment Minister Murray Watt gave final federal approval for Woodside Energy's North West Shelf LNG facility to continue operating until 2070. The decision extended the plant's life by 40 years beyond its originally scheduled closure.6
Climate Analytics estimated that the extension, including the broader Woodside Burrup Hub development, could generate cumulative greenhouse gas emissions of approximately 6.0 billion tonnes of CO2 equivalent between 2026 and 2070. That figure represents roughly 80 per cent of the total 1.5°C-aligned pathway emissions for Australia as a whole.6
A separate estimate, used in regulatory filings and cited by Mining Weekly, put the lifetime carbon emissions from the NWS extension alone at up to 4.3 billion tonnes.
The scope 3 problem is acute. Woodside has indicated the project extension would emit about 80 million tonnes of scope 3 emissions annually when exported gas is combusted by overseas buyers. Those emissions do not count toward Australia's national greenhouse gas accounts but contribute substantially to global warming.9
Under Australian national environment law, the federal government is not required to consider the climate harm a project causes globally, a legal loophole that continues to enable approvals.
The approval placed visible strain on Australia's bid to co-host COP31 with Pacific nations in 2026. Climate Analytics CEO Bill Hare described the decision as a "dangerous decision that gaslights the nation" and warned it would qualify as a "wrongful act" under the recent International Court of Justice advisory opinion on climate change.6
The Climate Change Performance Index noted that Australia's economic interests in maintaining fossil-fuel trade ecosystems "continually undermine its ambitions" in international climate diplomacy.7
What Credible Progress Would Look Like
Independent analysts broadly agree on the direction of reforms needed. The Safeguard Mechanism requires tighter baselines post-2030, with stronger constraints on offset use in sectors where on-site abatement is technically feasible.7
The CCPI experts specifically called for the mechanism to be strengthened by tightening baselines and limiting offsets where abatement is achievable, to secure deeper industrial cuts during this decade.
The price cap on government-held Australian Carbon Credit Units, set at $75 per tonne in FY2024 and indexed to CPI plus two per cent annually, is due for formal review in 2026–27.4
Many analysts argue the effective carbon price signal remains too low to drive deep decarbonisation in heavy industry.
The 2035 target needs legislative protection. Without that step, subsequent governments retain the legal authority to revise or abandon the commitment. The CCA's 2025 annual progress report recommended seven priority actions, including streamlining approvals for renewable energy projects and extending the Capacity Investment Scheme to maintain deployment momentum.1
Fossil-fuel subsidy reform presents a harder political challenge. The Fuel Tax Credits Scheme has broad support from mining, farming and transport sectors. A phased reduction, structured to protect small operators and fund transition support for affected regional communities, would require sustained political will that neither major party has signalled.
The Australia Institute noted in March 2026 that the Australian government itself had signed the Belém Declaration on the Transition Away from Fossil Fuels at COP30, recognising "the need to phase-out inefficient fossil fuel subsidies as soon as possible."5
On the international front, the government's Future Made in Australia agenda, which commits $22.7 billion in clean industry support over 10 years, offers a potential model for export diversification. Green hydrogen, critical minerals processing and low-emission manufacturing have been identified as areas where Australia holds competitive advantages.
Analysts note, however, that the total value of those commitments remains substantially smaller than the forward-estimates value of fossil-fuel subsidies.
Conclusion
Australia's climate policy landscape in 2025 and 2026 is defined by a gap between ambition and structure. The 2035 target of 62 to 70 per cent below 2005 levels is the most ambitious the country has ever set.
The institutional architecture, including the reformed Safeguard Mechanism, the Net Zero Plan and the Future Made in Australia agenda, represents a more coherent policy framework than Australia has previously assembled. Yet the pace of actual emissions reduction remains well below what the targets require.
Two structural problems dominate. The first is enforcement: baselines under the Safeguard Mechanism decline at 4.9 per cent per year to 2030, a rate designed to meet that nearer-term objective but not the steeper gradient needed in the years beyond it.
Civil penalties remain modest relative to the capital costs involved in industrial decarbonisation, and many facilities continue to meet obligations through offset purchases rather than on-site abatement.
The second is the fossil-fuel subsidy architecture, which continues to direct almost $15 billion per year toward the industries that domestic climate policy is simultaneously trying to constrain.
The Woodside North West Shelf extension crystallised that contradiction in its starkest form. A government that set a landmark 2035 target and a government that approved 40 more years of gas processing are not two separate governments.
They are the same government, and that tension will define Australia's climate credibility for decades to come.
How the country resolves it, through policy reform, legislative accountability or mounting international and legal pressure, will matter not just for Australia but for the Pacific communities and global climate trajectory directly affected by the choices made in Canberra.
References
1. Climate Change Authority, 2025 Annual Progress Report
2. Climate Action Tracker, Australia Country Assessment
3. Clean Energy Regulator, 2023–24 Safeguard Mechanism Data Insights
4. International Carbon Action Partnership, Australian Safeguard Mechanism Profile
5. The Australia Institute, Fossil Fuel Subsidies in Australia 2025
6. Climate Analytics, Australian Government Approves Woodside North West Shelf to 2070, September 2025
7. Climate Change Performance Index, Australia Assessment 2025
8. Climate Analytics, 1.5°C-Aligned Targets for Australia, August 2025
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