Forerunner city or net-zero opportunist? Carbon dioxide removal in Stockholm, residual emissions and risks of mitigation deterrence

Abstract

The City of Stockholm aims to achieve net-zero emissions by 2030 by compensating for residual emissions using bioenergy with carbon capture and storage (BECCS). Relying heavily on negative emissions to reach the target, the city's strategy presents an interesting case of net-zero climate policymaking. Based on the analysis of interviews, City Council debates, and policy documents, the Stockholm case underscores the importance of understanding municipal climate policy in a multi-level policy setting, where the ability to govern emissions varies heavily between sectors depending on politics and policy at other levels of governance. Both waste incineration and road transport are perceived to include hard-to-abate emissions in 2030, partly due to governance linkages involving regional, national, and EU-level governing bodies. The energy utility, Stockholm Exergi, plans to implement BECCS, with funding from the EU and other public and private sources, at a heat and power plant. The unique opportunity to use BECCS as part of the city's net-zero target has made it possible to advance the net-zero goal from 2040 to 2030. However, there are risks that relying on BECCS may muffle public debate on what constitutes residual emissions in the city, subsequently leading to smaller municipal investments in emission reductions. Additionally, there are risks that the schedule for implementing BECCS is overly optimistic, meaning goal fulfilment may be threatened. However, this risk is not isolated to BECCS; similar risks are associated with combining fossil fuels with CCS. We recommend that the city critically examines the residual emissions, considers separate targets instead of a net-zero goal, and conducts risk assessments of key mitigation technologies to maintain its status as climate policy forerunner.