Indicator assessment
CONDITION

TREND

DATA QUALITY

This assessment excludes scope 3 emissions which are not reported for the ACT.
With a 47% reduction in total emissions between 1990 and 2021–22, the ACT met its legislated 2020 emissions target and has nearly reached the 2025 target of a 50–60% reduction. Most of the emissions reductions are from the achievement of 100% renewable electricity since 2020. Annual per capita emissions have also decreased by 67% between 1990 and 2021–22.
In 2021–22, 58% of emissions came from transport and 24% from stationary energy (mostly natural gas, does not include electricity). Although these sectors are the focus for future reductions in greenhouse gas emissions, there have been no significant reductions in either sector since 2012–13. The growth in emissions from diesel vehicles is of particular concern, contributing 40% of total transport emissions in 2021–22 compared to 23% in 2012–13.
Introduction
The ACT Government has legislated greenhouse gas emissions reduction targets under the Climate Change and Greenhouse Gas Reduction Act 2010. The legislated targets are for percentage reductions from 1990 levels and include:
- 40% reduction by June 2020 — this was met in 2019–20 (see Figure 7)
- 50% to 60% reduction by June 2025
- 65% to 75% reduction by June 2030
- 90% to 95% reduction by June 2040, and
- net zero emissions by June 2045.
The ACT’s greenhouse gas emissions may have been affected by the COVID-19 pandemic, mainly to due to the restrictions imposed by lockdowns and the significant increase in working from home arrangements. Any potential Covid Pandemic impacts are discussed where relevant.
Scope 3 emissions in the ACT
The assessment of greenhouse gas emissions in this report is limited to scope 1 (emissions released from activities within the ACT) and scope 2 (any emissions released in the ACT from the use of grid-supplied electricity and energy purchased to be used inside the ACT). However, scope 3 emissions contribute most of the ACT’s greenhouse gases.
Scope 3 emissions are those released outside the ACT because of activities occurring within its boundaries. For example, emissions generated from the production of imported goods and services such as food, constructed materials and products, and the associated transport of goods and services to the ACT. This means that scope 3 emissions are the responsibility of both consumers and producers.
In 2021, the Office of the Commissioner for Sustainability and the Environment undertook an investigation into the ACT’s scope 3 emissions. This meant that the ACT was the first jurisdiction in Australia to calculate its scope 3 emissions. Main findings include:
- Scope 3 emissions contributed 94% of the ACT’s total carbon footprint in 2020
- although the ACT makes up 1.6% of Australia’s population, its carbon footprint accounts for 2.3% of the nation’s total footprint, and
- in 2018, the largest contributors to scope 3 emissions in the ACT came from transport of goods and services (15%), food (12%), retail trade (12%), construction (9%) and public administration and safety (9%).
This result highlights the fact that the ACT is primarily a consumer, rather than a producer of goods and services.
Current efforts to mitigate climate change in the ACT have primarily focused on reducing greenhouse gas emissions from scope 1 and scope 2 sources. However, the dominance of scope 3 in the ACT’s total emissions emphasises the urgency of their consideration in the ACT’s net zero reduction plans. For the ACT to achieve, or at least approach, a true net zero emissions scenario, the ACT Government must consider scope 3 emissions.
More information on the ACT’s scope 3 emissions, including recommendations to reduce emissions, can be found in the Scope 3 Investigation.
Total emissions
In 2021–22, the ACT’s total greenhouse gas emissions were 1,647 thousand tonnes of CO2-e (Figure 7), this is a 47% decrease on 1990 levels and a 61% decrease on 2012–13 levels. Total emissions were reduced by land use, land-use change and forestry which provided a net sequestration of 171,000 tonnes of CO2-e, reducing total emissions by more than 10%.

Figure 7: Total ACT greenhouse gas emissions (CO2-e) 2012–13 to 2021–22 and the 2020 and 2025 target emissions.
Data sourced from: Environment, Planning and Sustainable Development Directorate.
Note: Includes net CO2-e from land use, land-use change and forestry.
The largest change in total greenhouse gas emissions occurred between 2018–19 and 2019–20 when emissions dropped by 55%. This decrease was mainly achieved when the ACT reached its 100% renewable electricity supply target in 2020 (see Human settlements — Indicator HS2: Energy consumption and generation). From 2019–20 to 2021–22, total greenhouse gas emissions fell by 4%, despite a 3% increase in 2020–21.
Although the ACT has nearly achieved its 2025 total emissions target of a 50-60% reduction from 1990 levels, emission decreases will need to come from sources other than renewable electricity to meet further long-term targets, including net zero emissions. This may present significant challenges with changes to point-of-consumption technologies possibly needed (e.g. zero emissions vehicles and/or a transition away from natural gas), and achieving this can take time.[6]
Per capita emissions
The Climate Change and Greenhouse Gas Reduction Act 2010 introduced a legislated requirement for the ACT’s per capita emissions to peak in 2013 (compared to 1990 levels). This target has been met and per capita emissions have greatly decreased since 2012–13. The decrease in per capita greenhouse gas emissions has been important to offset annual population growth in the ACT (see Human settlements — ACT’s Population).
The annual per capita greenhouse gas emissions for the ACT was 3.6 tonnes of CO2-e in 2021-22 (Figure 8). This is a 68% decrease on 1990 per capita emissions. As with total emissions, the largest change in per capita greenhouse gas emissions occurred between 2018–19 and 2019–20, dropping by 55%. This decrease was mainly achieved when the ACT reached its 100% renewable electricity supply target in 2020 (see Human settlements — Indicator HS2: Energy consumption and generation). From 2019–20 to 2021–22, per capita greenhouse gas emissions fell by nearly 8%.

Figure 8: ACT annual per capita greenhouse gas emissions (CO2-e) 2012–13 to 2021–22.
Data sourced from: Environment, Planning and Sustainable Development Directorate.
Note: Includes net CO2-e from land use, land-use change and forestry.
The ACT’s 2021–22 per capita greenhouse gas emissions (3.6 CO2-e) is just 17% of the national per capita average (21.5 CO2-e in 2018–19) and lower than all other States and Territory’s, except for Tasmania.
In the future, further decreases in per capita greenhouse gas emissions will depend on the uptake of sustainable choices by the community such as reducing car use, reducing consumption and waste, replacing gas appliances with electrical options, and the use of low emission technologies.
Emissions by source
Greenhouse gas emissions 2021–22
The ACT’s greenhouse gas emissions are dominated by the transport and stationary energy sectors (Figure 9). In 2021–22, 58% of ACT’s greenhouse gas emissions came from transport (includes 2% from aviation) and 24% from stationary energy (mostly natural gas combustion, does not include electricity). These are the major sources of emissions accounting for around 82% of the ACT’s total emissions. The remaining emissions were from industrial processes and product use (9%), waste processing and decomposition (8%), aviation (2%) and agriculture (less than 1%).

Figure 9: Total and sector greenhouse gas emissions in the ACT for 2021–22.
Data sourced from: Environment, Planning and Sustainable Development Directorate.
Note: Percentage calculations exclude Land use, land-use change and forestry which provided a net sequestration of 171,000 tonnes of CO2-e in 2021-22, reducing total emissions by more than 10%.
Trends in sector emissions
Because the ACT reached its 100% renewable electricity supply target in 2020, there are no greenhouse gas emissions from electricity in the ACT (Figure 10). This means that transport and stationary fuels are the current focus because they account for most of the ACT’s greenhouse gas emissions. Current trends in non-electricity sector greenhouse gas emissions (Figure 11) show no significant reductions in emissions for either transport or stationary energy. This means that the ACT still has many challenges to further reduce greenhouse gas emissions and to meet the legislated future emissions targets.

Figure 10: ACT greenhouse gas emissions (CO2-e) by source, 2012–13 to 2021–22.
Data sourced from: Environment, Planning and Sustainable Development Directorate.

Figure 11: Main non-electricity sector sources of greenhouse gas emissions (CO2-e) in the ACT, 2012–13 to 2021–22.
Data sourced from: Environment, Planning and Sustainable Development Directorate.
Transport emissions
Transport emissions have fluctuated since 2012–13 with no evident trend of either a decrease or an increase. Changes in transport emissions from 2019–20 are likely influenced by the Covid pandemic impacts on vehicle use such as decreased usage during lockdown periods and reductions in commuting due to ongoing working from home arrangements (see Human settlements — Indicator HS4: Transport). Consequently, transport emissions may have been higher in the last few years in the absence of Covid impacts.
Emissions from transport fuels
With transport contributing 62% of total greenhouse gas emissions, the lack of any long-term decrease in the ACT’s transport emissions has important consequences for ongoing greenhouse gas reductions in the future.
Transport emissions are the result of growth in the number and use of vehicles in the ACT, including a rise in diesel-powered vehicles (see Human settlements — Indicator HS4: Transport). Diesel-powered passenger vehicles and goods vehicles under 4,500 kg have increased from 6% of total vehicles in 2010 to 20% in 2023. Diesel engines are higher in greenhouse gas emissions than equivalent petrol-fuelled cars.[7]
Between 2012–13 and 2021–22, the greenhouse gas emissions from diesel fuel nearly doubled, driving up the proportional contribution of diesel to total transport emissions from 23% to 40% (Figure 12). These figures suggest that diesel-powered vehicles are contributing disproportionally higher greenhouse gas emissions compared to petrol vehicles.

Figure 12: Main sources of transport greenhouse gas emissions (CO2-e) in the ACT by fuel type, 2012–13 to 2021–22.
Data sourced from: Environment, Planning and Sustainable Development Directorate.
Notes: Petrol includes fuels classified as auto gasoline; E10 is regular unleaded petrol blended with 10% ethanol; diesel includes fuels classified as automotive diesel oil. Gas fuel includes liquefied petroleum gas and compressed natural gas.
Studies have also shown that the greenhouse gas emissions from diesel cars, utes and vans in Australia have risen sharply since 2011, effectively cancelling out the cut in pollution from new renewable energy replacing some coal plants.[8] The large increase in diesel vehicles is also a concern for air quality given their higher emissions of nitrogen oxides and much higher emissions of particulate matter (see Air).
To achieve cuts in transport emissions, there will need to be a decrease in the number and use of vehicles in the ACT, especially diesel-powered vehicles. There will also need to be a significant increase in the number of electric vehicles, which combined with the use of renewable energy for charging, will further reduce ACT’s greenhouse gas emissions.[9]
Stationary energy emissions
Stationary energy emissions (mainly from natural gas combustion) have also tended to fluctuate since 2012–13 and show no sign of decreasing. There have been small annual rises in stationary energy emissions from 2018–19 to 2021–22, with 2021–22 having the highest emissions over the 2012–13 to 2021–22 period. Around 85% of stationary energy emissions come from natural gas combustion which, in terms of per capita emissions, has declined. The decline is due to gas appliances being converted to electricity, gas appliances becoming more efficient, and gas connections being limited in new dwellings. However, the decreasing trend in per capita gas use appears to be slowing and total natural gas use has increased in recent years (see Human settlements — Indicator HS2: Energy consumption and generation).
Emissions from other sources
Trends in emissions from other sources include:
- Emissions from industrial processes and product use have been increasing since 2012–13 and are mostly the result of the use of hydrofluorocarbon gases in refrigeration and air-conditioning. Emissions from this sector have increased by 21% since 2012–13.
- Emissions from waste were greater in 2020–21 and 2021–22 compared to previous years, with 2020–21 having the highest emissions during the 2012–13 to 2021–22 period. Emissions in this sector are driven by population and are likely to increase over time as the population grows. It is important to note that emissions from landfill are mostly legacy emissions as the breakdown of organic solid waste is a slow process, therefore waste from up to 40 years ago is continuing to breakdown and generate greenhouse gases (methane).
- From 2019–20 to 2021–22, aviation emissions were lower than previous years due to the impacts of the Covid pandemic on travel, as well as a shortage of pilots. Emissions associated with commercial aviation fell to its lowest level in 2020–21 at the height of the pandemic. However, aviation emissions rose again in 2021–22 as travel opportunities increased.
- Emissions from agriculture have been decreasing since 2016–17 and were lower in the 2019–20 to 2021–22 period than in previous years. The drop in emissions since 2016–17 is accounted for by a drop in livestock numbers due to the pre-2020 drought and market conditions.
- The land use, land use change and forestry sectors has been acting as a net sink for ACT emissions since 2015–16, based on increased carbon stocks in growth and regeneration of forests and grasslands. The emissions associated with the 2020 bushfires are excluded from the ACT’s greenhouse gas inventories.
Data gaps
- To inform future greenhouse gas emission reductions, there will need to be improved data and reporting on:
- transport emissions, particularly on the specific contributions of commercial and private transport sectors by fuel types, and
- the ACT’s scope 3 greenhouse gas emissions.
- More detailed information is required on the ACT’s carbon stocks including by location and vegetation community type, as well as changes over time due to fire and other disturbances such as drought. The ability of natural ecosystems, particularly forests, to sequester carbon is vital for the mitigation of climate change.
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