Establish freight decarbonisation strategies

Every stakeholder, including national and sub-national governments as well as companies, should have a freight decarbonisation strategy in place as soon as possible. All freight transport activities, whether policies, projects or programmes, should be assessed against national, regional and global goals on decarbonisation, sustainability, just transition principles and resilience. Such frameworks establish the legal and institutional basis for many of the subsequent measures introduced over the coming years, including end-of-life pathways for internal combustion engine freight vehicles. They create an enabling environment for coordinated action by freight actors by aligning decarbonisation ambition with implementation capacity. These frameworks function not only as governance instruments but also as delivery mechanisms that catalyse implementation. 

Stakeholders will further benefit from aligning their freight frameworks and strategies with global agreements, such as the 2030 Agenda for Sustainable Development, the Paris Agreement and the Sendai Framework for Disaster Risk Reduction 2015–2030.

Related intervention area: CO2 emission reduction targets for freight transport supporting overall transport decarbonisation by 2050 (1) 

Stakeholders:

– First movers: Companies (to develop such strategies as soon as possible).

– Followed by: Governments (to develop national freight decarbonisation strategies in dialogue with private sector engagement)

Supporting examples:

  • The United Kingdom released in 2021 their Transport decarbonisation plan with the target to decarbonise their entire transport system by mid-century.
  • Over 200 multinational companies are committed to implement the Global Logistics Emission Council framework.
  • The Alliance for Logistics Innovation through Collaboration in Europe (ALICE) has released a framework for developing a roadmap towards zero-emission logistics by 2050, providing useful insights and solutions for stakeholders.
  • The Deep Decarbonization Pathways scientific network works with national climate policymakers and freight stakeholders to design and model freight decarbonisation strategies.

Set freight greenhouse gas emission reduction targets 

Ideally, freight greenhouse gas emissions should peak as soon as possible. The Paris-aligned scenario of the International Transport Outlook by the International Transport Forum (ITF) requires global freight transport emissions to peak at 3.9 gigatonnes of CO₂ equivalent in 2026 to achieve transport decarbonisation by 2050. To align with such decarbonisation scenarios, freight greenhouse gas emissions will need to decline by 75% by 2050 compared to 2019 levels. Without intervention, freight greenhouse gas emissions could increase by nearly 30% between 2019 and 2050. 

The International Energy Agency (IEA) provides pathways for individual freight transport modes. These pathways reflect more ambitious and deeper emission reductions than the ITF pathway. However, neither scenario accounts for regional and national differences or the wide-reaching socio-economic consequences of decarbonisation, which would require a more bottom-up and nationally-driven approach building on national scientific communities. Stakeholders therefore need to set freight transport greenhouse gas reduction targets as soon as possible to support decarbonisation by 2050. Any delay in implementing interventions or continued inaction would significantly reduce the remaining carbon budget available to stay within the goals of the Paris Agreement. Under current climate ambitions, the carbon budget consistent with limiting warming to 1.5°C would already be exhausted by 2032. 

At the Climate Change Conference COP30 in Belém, Brazil, 11 countries signed a declaration on resilient and low-emission transport for people, development and the planet. The declaration sets a goal to achieve, globally by 2035, a 25% reduction in overall energy demand and a shift to one third sustainable biofuels and renewable energy sources, recognising that each country’s contribution to this global effort will reflect its national circumstances.

ITF pathways required to reduce freight transport CO2 emissions (compared to 2019 levels):

  • 2030: 8% 
  • 2035: 14%
  • 2040: 31%
  • 2050: 75%

IEA pathways for each transport mode (compared to 2020 levels):

  • 2030 CO2 emission reductions:
    • 10% reduction from heavy trucks 
    • 33% reduction from rail
    • 14% reduction from shipping
  • 2035:  
  • 28% from heavy trucks 
  • 44% from rail
  • 37% from shipping 
  • 2040:  
    • 50% from heavy trucks 
    • 67% from rail
    • 58% from shipping 
  • 2050:  
    • 89% from heavy trucks 
    • 88% from rail
    • 85% from shipping 

Related intervention area: CO2 emission reduction targets for freight transport supporting overall transport decarbonisation by 2050 (1) 

Stakeholders:

– First movers: National/subnational governments in upper middle- and high-income countries; 

– Followed by: National/subnational governments in lower middle- and low-income countries; companies and freight vehicle manufacturers.

Supporting examples: New Zealand aims to reduce freight transport CO2 emissions by 35% by 2035 compared to 2019 levels.

Only electrified railways are constructed or only electric locomotives introduced

All new railway tracks, particularly on high-throughput corridors, should be electrified using overhead lines or conductor rail from 2026 onwards. Where traffic volumes are too low to make such electrification options economically viable, battery electric trains can be deployed. Railways currently account for the lowest share of freight transport emissions, at 2.3%, but further improvements to rail infrastructure are an important enabler of modal shift from road to rail. 

Related intervention area: Low-carbon freight transport infrastructure, operations, vehicles and renewable fuels (1)

Stakeholders: First movers: Governments (through national regulation) and railway entities (through procurement and construction regulations).

Supporting examples: As of 2025, already a dozen countries (e.g., Armenia, India, Laos, Singapore, Switzerland) have a near-complete electrified railway system in operation.

Invest in new jobs for low-carbon freight transport and logistics

The workforce needs to be prepared for the transition towards freight decarbonisation, which implies deep systemic transformations, evolving demand patterns and structural changes in supply chains and logistics. Even with substantial emission reductions, the logistics workforce is already experiencing the negative impacts of climate change. 

The creation, adaptation and substitution of jobs must be ensured through a just transition and targeted capacity building. Over the coming years, working environments will change and companies will need to ensure sufficient flexibility to accommodate these changes for workers. For example, battery-powered vehicles will require different operational schedules due to charging needs and reduced maintenance requirements. 

Related intervention area: Data, research, technology, innovation and capacity building

Stakeholders:

– First movers: Companies (invest in workforce skills, safety and trainings); educational institutions (develop freight and logistics programmes and courses)

– Followed by:  Governments (funding programmes and standards).

Supporting examples:

  • LEARN Logistics by Kühne Foundation supports capacity building in logistics and supply chain management in low- and middle-income countries.
  • The EV Skills Denmark India project project brings Danish and Indian students and teachers together to collaborate, exchange knowledge, and develop essential skills within e-mobility, including freight.

Scale up deployment and reduce investment risks for near zero-emission technologies for road freight

Governments should accelerate the deployment of low-carbon solutions for road freight by supporting low-carbon technologies, particularly battery electric trucks and vans. They need to ensure a robust enabling environment that lowers investment risks for vehicle manufacturers and avoids major disruptions to existing assets. Scaling up deployment will require coordinated action on infrastructure development, energy supply, logistics and workforce skills.

Related intervention area: Policies and regulations to promote the roll-out of a smart and interoperable recharging and refuelling infrastructure for zero emission fuels and renewable energy-powered freight transport vehicles (1)

Stakeholders:

– First movers: Governments and freight vehicle manufacturers in upper middle- and high-income countries put in efforts towards low-carbon transport as soon as possible.

– Followed by: Governments and companies elsewhere (to produce and import only zero-emission technologies)

Supporting examples: EU’s Alternative Fuel Infrastructure Regulation (AFIR) aims for fast-charging stations, with a total output of 600 kW for heavy-duty vehicles, to be installed every 60 kilometres along highways by the end of 2025.

Mobilise finance for low-carbon maritime transport investments

Policies should facilitate the deployment of low-carbon vessels by mobilising dedicated financial resources and creating enabling conditions for investment in low-carbon vessels and less greenhouse gas-intensive fuels. Such vessels should be deployed on major corridors by 2028, and no later than 2030. Scaling up the production of low-carbon marine fuels will require rapid expansion. Financial support should help ensure competitive fuel prices and an economically feasible transition. This can be achieved by encouraging private investment, guiding market forces and redirecting revenues from inefficient and polluting services. The earlier such measures are introduced, the easier it will be to achieve a large fleet of low-carbon vessels by 2040. Low-carbon vessels can also generate substantial revenues for shipbuilders and reduce operating costs for shipping companies.

Related intervention area: Earmarking climate finance for transport to address a country’s long-term transport investment needs

Stakeholders:

– First movers: International development finance institutions and governments.

– Followed by: Companies.

Supporting examples:

  • In 2022, the Norwegian company Yara launched the Yara Birkeland, a fully electric, autonomous and low-carbon container ship.
  • Also in 2022, the Japanese shipping company Asahi Tanker launched the first of two all-electric vessels. 
  • Since 2025, the Panama Canal reserves a slot for vessels meeting specific low-carbon emission requirements. It incentives the uptake of vessels capable of using low-carbon fuels.

Invest in intermodal terminals and ports.

Intermodality is a key element of sustainable freight transport. Supporting investment in intermodal hubs can enable regional and national modal shifts towards more efficient and resilient transport modes, such as rail and waterborne transport. These investments should support modal share targets for 2030 and 2050 that are aligned with achieving carbon neutrality by 2050. Shifting the transport of goods from road to electrified rail and inland water transport is one of the most cost-effective measures to reduce CO₂ emissions from freight transport, while also lowering external costs related to crashes, air and noise pollution, congestion and habitat damage.

Related intervention area: Shift to the most efficient, low-carbon modes of transport and use of intermodal freight transport corridors across borders 

Stakeholders:

– First movers: Governments with strong reliance on regional trade corridors (such as landlocked countries).

– Followed by: Companies with global trade and any other national governments facilitating domestic and global trade.

Supporting examples: The EU regulation for the TransEuropean Transport (TEN-T) Network mandates that all 431 major urban nodes in the Union should have an intermodal freight terminal in operation before 2040.

Every freight transport mode will be covered by a pricing mechanism

Pricing, taxation, tolling and market-based measures provide financial incentives and increased accountability in support of more intermodal, low-carbon, efficient and resilient freight transport and logistics, while better reflecting the full costs of freight transport modes for society and the environment. Pricing and market-based mechanisms can help ensure that polluters pay for external costs, including environmental and health impacts. Heavy-duty vehicles are the most polluting road vehicles and the largest contributors to road damage, with projections indicating a further increase in their impacts in the absence of effective policy intervention.

Related intervention area: Pricing and fiscality reflecting the entire costs 

Stakeholders:

– First movers: National and subnational governments in upper middle- and high-income countries.

– Followed by: National and subnational governments in lower middle- and low-income countries. 

Supporting examples:

  • By 2027, 81% of the road freight movement in the EU is expected to be covered by distance-based tolling.
  • In January 2025, Denmark implemented a kilometre-based and CO2-differentiated road toll for all trucks heavier than 12 tonnes.  The toll will expand to all trucks (3.5 tonnes and above) from January 2027 and then to the entire road network by 2028.

Introduce carbon pricing for all freight modes

Carbon pricing across all energy used to power freight transport can address the lack of commercial viability of decarbonisation solutions by creating demand certainty, stimulating supply and establishing markets that accelerate the transition to decarbonised freight. Effective carbon pricing frameworks typically combine a carbon tax, fuel excise taxes and a carbon price derived from an emissions trading system. In most countries, road transport is already subject to fuel excise taxation.  

Closely related, though not formally considered a carbon pricing instrument, is the International Maritime Organization (IMO) Net-Zero Framework. The framework aims to introduce performance-based greenhouse gas intensity targets for ships above 5,000 gross tonnage. It proposes a two-tier compliance structure with specific greenhouse gas fuel intensity thresholds. Ships that exceed these targets will be required to purchase remedial units, while ships performing below the direct compliance target will generate tradable surplus units. Under the current draft approach, tier 1 remedial units would be priced at USD 100 per tonne of CO₂ equivalent, while tier 2 remedial units would be priced at USD 380 per tonne of CO₂ equivalent.  Adoption of the Net-Zero Framework is expected in 2028, subject to approval by IMO member states following a one-year delay in the decision-making process. 

Related intervention area: Pricing and fiscality reflecting the entire costs

Stakeholders:

– First movers: National and subnational governments that already have some type of carbon pricing instrument which might not necessarily cover (freight) transport.

– Followed by: National and subnational governments that still have to introduce any kind of carbon pricing.

Supporting examples:

  • At least 95 national and subnational governments (mostly in Asia, Europe and North America) have implemented carbon pricing instruments, as of 2025.
  • By 2028, the EU Emissions Trading System 2 (ETS2) will be operationalised and include road transport under the  ‘cap and trade’ system. Similar approaches can be replicated in other regions in a timely manner. 

 

Implement cross-border freight agreements focusing on efficient, low-carbon mode choices

Countries should work towards cross-border freight agreements that address sustainability, decarbonisation, vulnerability, adaptation and resilience. Such agreements can ensure shared governance and build on common standards and joint implementation mechanisms. They can also facilitate plans to transport goods by rail and waterborne transport, thereby supporting intermodality. This, in turn, can lead to effective corridor-level demand management and improved modal choices. It is estimated that demand management could reduce emissions from harder-to-abate transport sectors by up to 20% by 2050. 

Related intervention area:

Shift to the most efficient, low-carbon modes of transport and use of intermodal freight transport corridors across borders 

Management of freight transport demand and trade development 

Stakeholders:

– First movers: Governments (regional agreements reflecting shared governance) and cargo owners with already well-established corridors.

– Followed by: Governments and companies in regions with low-intensity cross-border freight activity.

Supporting examples: The ASEAN region works towards wide-reaching regional freight agreements by 2030.

Digitalise freight handling

Digitalisation in freight transport can be implemented in various forms, such as automated logistics operations, route optimisation, online load-matching platforms and space management, among other options. Digitalisation is widely regarded as one of the most promising enablers, particularly for lower-income countries.. Digital tools can support a shift towards less carbon-intensive modes, increase vehicle load and occupancy rates, and improve operational efficiency. Network optimisation is widely considered feasible and offers significant potential to reduce emissions. 

Related intervention area: Multimodal data-focused interfaces, digital platforms and new approaches, enabling transparency and exchange

Stakeholders:

– First movers: Companies to digitalise their inventories and operations;

– Followed by: Governments to incentivise platform development fostering cooperation and exchange.

Supporting examples:

  • By 2027, the EU will implement the Electronic Freight Transport Information (eFTI) Regulation enabling a digital and paperless handling of goods. 
  • ASEAN guidelines for urban freight to target 50% of freight operators to adopt IoT and AI by 2030

2030 low-carbon freight targets achieved.

In addition to the global pathways outlined under the action ‘Set freight greenhouse gas emission reduction targets’, the following mode-specific targets should be achieved by 2030:

  • Rail:
    • 65% share of electricity in energy consumption 
    • 47% of rail lines electrified
  • Shipping:
    • 5% zero-emission fuels, incl. 8% biofuels, 6% ammonia and 4% hydrogen
    • 50% reduction in average GHG fuel intensity compared to 2019 levels
    • Large trade ports should provide low-carbon fueling infrastructure, enabling the primary use of low-carbon fuels across main shipping routes.
  • Road transport
    • Wide provision of EV charging units (40 million EV public charging units by 2030) .
    • 37% of heavy-duty trucks electrified
    • 13% share of biofuels in energy consumption

These values are modelled at the global level based on the cited sources. Efforts by each country should reflect national circumstances. A more ambitious transition would enable the transport sector to make a stronger contribution to economy-wide decarbonisation.

Related intervention area: Low-carbon freight transport infrastructure, operations, vehicles and renewable fuels

Stakeholders: Governments and freight vehicle manufacturers

Supporting examples:

  • In the EU, truck manufacturers are mandated to cut the average emissions of new trucks 45% by 2030, 65% by 2035 and 90% by 2040.
  • At the regional level, the EU aims for ‘near zero emission urban logistics’ and ‘essentially CO2-free city logistics’ in major urban centres by 2030. 
  • Heavy truck’s energy demand will plateau on 2022 levels (27 EJ) until 2030, and then decrease (e.g. 26 EJ in 2035). 
  • Maritime transport’s total demand in tonne-miles will plateau in 2030s due to changes in the global economy (home-shored production, localised supply chains, less transport of fossil fuels).  

Ensure a heightened role of freight in NDCs 

Freight transport actions have remained largely overlooked in NDC submissions in 2020 and 2025. As of 15 January 2026, of the 110 NDCs 3.0 submitted, only 45 NDCs, representing 41% of all submissions, included mitigation actions related to freight transport or a combination of freight and passenger transport. Parties to the Paris Agreement therefore need to place greater emphasis on freight transport in their 2030 NDC submissions.

Most importantly, even if all current NDCs 3.0 were fully implemented, the world would still be heading towards global warming of 2.3–2.5°C above pre-industrial levels by the end of the century. Deeper and more rapid greenhouse gas emission reductions are required to reduce the severe impacts of climate change.

Stakeholders: First movers: Governments (across all income groups but the NDC has to reflect its common but differentiated responsibilities and respective capabilities, in the light of different national circumstances).

Supporting examples:

  • Costa Rica’s NDC outlines high investments in the freight sector. The country plans to invest USD 6.2 billion in sustainable logistics (unconditional) and USD 840 million in freight rail (conditional).  
  • Djibouti’s NDC aims to increase the number of electric tricycles powered by solar energy to replace gasoline-powered tricycles for goods transport. 
  • Kyrgyzstan’s NDC is committed to the creation of ‘Green Trade Corridors’ with a focus on rail and electric transport.
  • Sri Lanka’s NDC seeks to modernise its railway services by expanding infrastructure, electrifying railways, establishing urban freight hubs and developing port–rail freight corridors.

Raise carbon pricing aligned to necessary decarbonisation pathways

Pricing measures are needed to reflect the costs imposed by each freight transport mode on society and the environment. Such measures can guide market forces towards the most sustainable services across supply chains.

By 2030 at the latest, comprehensive carbon pricing instruments should be implemented in every country and applied across all polluting transport modes. Where such instruments are already in place, carbon pricing levels can be increased to further support decarbonisation efforts.

Related intervention area: Pricing and fiscality reflecting the entire costs 

Stakeholders:

–  First movers: Governments (to raise carbon prices and ensure a functioning carbon market)

– Followed by: Companies (to comply with regulations)

Supporting examples: In the case of maritime transport, a proposal that could put the sector on a decarbonisation pathway points to a carbon price of at least USD 300 per tonne CO2 by 2030. It then has to gradually increase by 2050.

Shift freight from roads to railways and/or inland waterways

Shifting the transport of goods from road to electrified rail and inland water transport constitutes one of the most cost-effective measures to reduce CO2 emissions from freight transport, while also offering to lower the external costs linked to accidents, air and noise pollution, congestion, and habitat damage. A modal shift of freight depends on various factors (geographic context, infrastructure, types of goods, demand etc.).  

Related intervention area: Shift to the most efficient, low-carbon modes of transport and use of intermodal freight transport corridors across borders 

Stakeholders:

– First movers: Cargo owners and logistic companies (to ensure intermodality and modal shift strategies) 

– Followed by: Governments (to develop infrastructure and provide incentives)

Supporting examples:

  • India aims to raise the share of freight transported via railways from 27% in 2022 to 45% by 2030/31.
  • France targets a rail freight share of 18% by 2030 and 25% by 2050 of rail freight.

 Only electric vans are sold

Only battery electric vans should be sold from 2035 onwards, allowing for a limited delay in markets facing higher barriers. Electric heavy trucks should reach a global share of 65% of new vehicle sales by 2035. 

Related intervention area: Low-carbon freight transport infrastructure, operations, vehicles and renewable fuels 

Stakeholders:

– First movers: Governments and freight vehicle manufacturers in upper middle- and high-income countries; 

– Followed by: Governments and freight vehicle manufacturers in lower middle- and low-income countries; 

Supporting examples:

  • In the EU, 100% of new van sales will be zero-emission by 2035. Truck manufacturers are mandated to cut the average emissions of new trucks by 65% by 2035.
  • Urban freight fleet in ASEAN to be composed of 40% eco-friendly vehicles and 25% of freight transport shifted to multimodal solutions by 2035.

Every city is equipped with zero-emission zones and sustainable urban logistics plans

Urban freight policies should be guided by sustainable urban logistics plans (SULPs) or sustainable urban mobility plans (SUMPs). By 2035, cities should have the legal frameworks in place to introduce zero-emission freight zones. 

Related intervention area: Zero-emission zones and sustainable urban logistics plans 

Stakeholders: First movers: Local governments to implement regulations and zones within their jurisdiction.

Supporting examples: ASEAN urban freight guidelines recommend complete alignment of freight policies with SUMPs/SULPs frameworks by 2035. 

 Only electric trucks are sold

Only battery electric medium- and heavy-duty vehicles should be sold globally from 2040 onwards, allowing for a limited delay in markets facing higher barriers.

Related intervention area: Targets to phase out internal combustion engine vans and trucks and achieve sales of new electric or fuel cell electric freight vehicles 

Stakeholders:

– First movers: Governments and freight vehicle manufacturers in upper middle- and high-income countries. 

– Followed by: Governments and freight vehicle manufacturers in lower middle- and low-income countries. 

Supporting examples:

  • New fossil-fuelled ICE truck sales end in 2040 in advanced economies and China, and in 2045 in the rest of the world.
  • California (United States) requires all medium- and heavy-duty trucks to be zero-emission by 2042, enabled through a sales ban of fossil fuel-powered vehicles in 2035.
  • In the EU, truck manufacturers are mandated to cut the average emissions of new trucks by 90% by 2040.

Adapt universal access to open freight data

All freight and logistics stakeholders and public authorities should have open data systems in place.

Related intervention area: Mandatory disclosure through open data and transparency standards 

Stakeholders:

– First movers: Governments (to raise carbon prices and ensure a functioning carbon market)

– Followed by: Companies (to comply with regulations)

Supporting examples: ASEAN cities will ensure that they have open freight data systems by 2040.

Raise carbon pricing to high levels

By 2040, comprehensive carbon pricing instruments should be further strengthened to ensure that polluting transport modes are phased out as soon as possible.

Related intervention area: Pricing and fiscality reflecting the entire costs 

Stakeholders:

– First movers: Governments (to raise carbon prices and ensure a functioning carbon market)

– Followed by: Companies (to comply with regulations)

Supporting examples: Studies point to a potential carbon price in maritime transport of USD 673-874 per tonne of CO2 by 2040 to be aligned to a decarbonisation pathway.

 Decarbonised freight transport achieved

By 2050, the share of oil use in transport is expected to decline to around 10%, while electricity accounts for nearly 45% of total final energy consumption. Hydrogen-based fuels are projected to account for 28%, and bioenergy for 16%. End-of-life strategies for internal combustion engine vehicles will be in effect, enabling a swift transition to low-carbon vehicles.

The following global targets by mode should be achieved:

  • For rail transport: 
    • 96% share of electricity and hydrogen in total energy consumption in rail by 2050 
    • 65% of rail lines electrified by 2050
  • For shipping: 
    • 93% low-carbon fuel adaptation by 2046. 
    • By 2025, 19% biofuel use, 44% ammonia use,  and 19% hydrogen use
  • For road transport: 
    • Wide provision of EV charging units (200 million EV public charging units by 2050) and hydrogen refuelling units (90,000 units by 2050).
    • 41% biofuel blending in oil products in 2050.

These values are modelled at the global level based on the cited sources. Efforts by each country should reflect national circumstances. A more ambitious transition would enable the transport sector to make a stronger contribution to economy-wide decarbonisation.

Related intervention area: Low-carbon freight transport infrastructure, operations, vehicles and renewable fuels 

Stakeholders:

 –   First movers: Governments (to raise carbon prices and ensure a functioning carbon market)

– Followed by: Companies (to comply with regulations)

Shift 45-50% of goods from road to railways and/or inland waterways

Further shifts of goods away from road transport are important to accommodate projected increases in demand. These shifts can be enabled through integrated freight transport plans at national and sub-national levels. Improved planning is a core element of demand management approaches, which can reduce emissions from harder-to-abate transport sectors by up to 20% by 2050. 

Related intervention area: Shift to the most efficient, low-carbon modes of transport and use of intermodal freight transport corridors across borders

Stakeholders:

– First movers: Cargo owners and logistic companies (to ensure intermodality and modal shift strategies).

– Followed by: Governments (to develop infrastructure and provide incentives).

Supporting examples: In the EU, more than 50% of road freight over 300 km should shift to other modes such as rail or waterborne transport by 2050, facilitated by efficient and green freight corridors. To meet this goal will also require appropriate infrastructure to be developed.