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If you want to decarbonize concrete, it helps to understand the incredible scale of the problem.
To say that concrete poses a decarbonization challenge would be an understatement. Cement production alone is responsible for somewhere between 5 and 10% of global CO2 emissions [0], roughly two to four times more than aviation, a fact that even the construction industry is finally coming to grips with.
And yet the real problem with decarbonizing concrete isn’t the scale of its emissions, it’s the scale of concrete itself. There is simply a preposterous amount of the stuff. Contemplating concrete is like contemplating the universe — awesome, in the old God-fearing definition of the word.
Before we get into the jaw-dropping amount of concrete we produce every year, it’s worth briefly discussing how the stuff is made, and thus where its emissions come from.
Concrete is formed by mixing together cement (mostly calcium silicates), aggregates (such as sand and gravel), and water into a liquid slurry. The cement reacts with the water, forming a paste that binds the mixture into a single solid mass. Beyond concrete’s high strength and low cost, it’s these liquid beginnings that make concrete so useful. It can easily be formed into any shape and leveled with the help of gravity so you can walk on it or park a car 10 stories up on it. Essentially all modern concrete is also reinforced with steel bars, which provide tensile strength and arrest cracks.
So what about the emissions? Roughly 70-90% of the embodied carbon in concrete comes from manufacturing just the cement [1]. Partly this is because making cement is an energy-intensive process — limestone and clay are put into a kiln and heated around 2500 degrees Fahrenheit. But it’s also because the chemical reaction that turns the limestone into cement (known as calcination) releases CO₂ as a byproduct. Roughly 50-60% of cement’s carbon emissions are due to calcination [2], and thus wouldn’t be addressed by moving to less carbon-intensive electricity sources, like green hydrogen.
Now for the good stuff. Again, the most important thing to understand about concrete is the scale of its production. The world produces somewhere around 4.25 billion metric tons of cement annually (though estimates vary) [3], which works out to about 30 billion tons of concrete produced each year [4].
How much are 30 billion tons?
One way of looking at it is we produce around 4 metric tons, or just under 60 cubic feet (roughly a cube 4 feet on a side), of concrete for each person on the planet each year.
Another way of looking at it is to consider the total amount of mass, full stop, that civilization ingests each year. Estimates here vary quite a bit, but it seems to be in the neighborhood of 100 billion tons [5]. So of the total volume of material that gets extracted and used each year — including all mining, all oil drilling, all agriculture and tree harvesting — around 30% of it by mass goes toward making concrete. The amount of concrete produced each year exceeds the weight of all the biomass we use annually, and all the fossil fuels we use annually.
Total civilization annual material extraction, via Krausmann et al 2018. This is up to 2015, and has now exceeded over 90 Gt/year, with another ~8 Gt/year of recycled material.
Another way of looking at it is that the total mass of all plants on Earth is around 900 billion metric tons. So at current rates of production, it would take about 30 years to produce enough concrete to exceed all the Earth’s plant (dry) biomass.
Because humans have been producing concrete for a while, and because concrete tends to last a long time, we seem to be on the cusp of this happening. Elhacham et al 2020 estimate that total human-created mass (roughly half of which is concrete) reached the total weight of all Earth’s biomass sometime in 2020. Eyeballing their graph, concrete alone will exceed the total weight of all biomass sometime around 2040.
Anthropogenic mass vs biomass during the 20th century, via Elhacham et al 2020
In a pure mass-flow sense, human civilization is basically a machine for producing concrete and gravel (and to a lesser extent bricks and asphalt).
So civilization uses a lot of concrete. Where is it all going?
China, mostly. In recent history, China has been responsible for roughly half the world’s cement production, and by implication, concrete use [6]. The U.S., by comparison, only uses 2%, with Europe using another 5%.
Cement production by region, via Sanjuan et al 2020. Since cement production roughly tracks consumption (see here and here), we can also use this as a rough guide toward where concrete is used. Note that this gives yet another value for total global cement production of 4.65 Gt
Here’s another view from around 2010, showing what this has looked like over time (data after 2010 is a projection).
Cement consumption by region, via Altwair 2010
This gets summarized in the oft-repeated statistic that China used more cement in three years than the U.S. did in the entire 20th century.
But since China has a much larger population than the U.S., we can get a more intuitive understanding of this by looking at cement consumption per capita. Here’s per capita consumption sometime around 2015:
Per capita cement consumption by country, via Globbulk
We see that the official numbers from China make it a huge outlier in cement consumption, using around eight times as much per capita as the U.S. However, in per capita terms, some Middle Eastern countries exceed it. Saudi Arabia is higher, and Qatar, which is somewhere over 2,000 kg/capita, is so high it doesn’t even show up on the graph. It’s the combination of China’s huge population and its huge per-capita consumption that make it such an outlier in concrete production.
The official Chinese numbers are so huge, in fact, that some analysts suspect that they’re inflated, either by manipulating the data or by producing construction projects that don’t have actual demand (or both). The graph above also includes a more “realistic” estimate (which is still 3x as high as U.S. per-capita use).
What does all this concrete construction mean in practical terms? Well, China has somewhere around 50-60% of the floor space per capita as the U.S. does, or roughly as much living space per capita as most European countries [7]. This is the result of a massive trend toward urbanization over the last quarter century. Urbanization rates went from around 25% in 1990 to 60% in 2017, a period in which China’s population also increased by 250 million. In other words, in less than 30 years over 550 million moved into Chinese cities, and they all needed somewhere to live. By building enormous numbers of concrete high rises, in under 20 years China quintupled its urban residential floor space and doubled its residential floor space overall.
Residential floor space in China over time, via Pan 2020
Beyond China, we see high per capita rates of cement use in the rest of Southeast Asia, as well as the Middle East [8].
One reason you see this volume of concrete use in lower-income, urbanizing countries is that concrete construction is comparatively labor-intensive to produce. The materials for concrete are extremely cheap, and much of its cost in high-cost labor countries (such as the U.S.) is from the labor to produce it — building and setting up the formwork, laying out the reinforcing, placing the embeds, etc. If you’re a country with a lot of low-cost labor, this is a pretty good trade-off.
In addition to the current largest users of concrete, one trend to keep an eye on long-term is India’s concrete use. If India ever proceeds on a path of mass urbanization similar to China (as some folks speculate it will), we could see a massive uptick in global concrete output — India’s urbanization rate of 34% is around where China was in the late 1990s. A shift in India toward a per capita cement consumption more consistent with the rest of Southeast Asia (say around 600 kg/capita) would increase worldwide cement consumption by about 13%, and it does seem as if India’s cement use is trending upward.
By contrast, one thing clear from this data is that the U.S. actually uses an unusually low amount of concrete. Per capita, it uses as little as any other Western country, and far, far less than some — like, surprisingly, Belgium.
So we’ve seen where it gets used in the world. Can we go deeper and look at specifically what concrete is being used for?
This will vary significantly depending on the region and the local construction tradition. In the U.S., we have roughly the following breakdown (via the Portland Cement Association):
Overall, roughly half of our concrete gets used in buildings — about 26% goes into residential buildings, 2% in public buildings, and 16% into commercial buildings. The other half gets used for infrastructure — streets and highways, water conveyance and treatment tanks, etc. Because most construction in the U.S. is just one- or two-story buildings (mostly wood for residential buildings and steel for commercial ones), concrete in buildings is probably mostly going into foundations, slabs on grade, and concrete over metal deck, though there’s probably a substantial amount going into concrete masonry units as well.
But the U.S. has a somewhat unusual construction tradition, where the vast majority of our residential construction, both single-family homes and multifamily apartments, is built from light-framed wood. In other places, it's much more common to use concrete. For instance, the U.K. uses closer to 80% of its concrete for buildings, with most of that going toward the superstructure, the concrete frame that holds the building up. China, which has urbanized on the back of huge numbers of concrete residential high rises, probably devotes an even larger share of its concrete to residential construction.
Understanding how much concrete the world uses, and where it’s being used, is important if you want to use less of it.
The scale of the industry is particularly important to keep in mind. For instance, you often see enthusiasm for the idea of replacing concrete buildings with mass timber ones. But assuming you could substitute all the world’s concrete for an equal volume of wood [9], you’d need to more than triple the total annual volume of global wood harvested [10], which puts a somewhat different spin on the issue.
Most other materials would have emissions as bad or worse than concrete if they were used on the same scale.
Consider, for instance, railway ties. In the U.S., these are still largely made out of wood, but in many places they have been replaced with concrete ties. And some places are considering changing from concrete ties to plastic composite rail ties instead. It’s hard to know the exact embodied emissions without a lot of specific details about the materials and supply chains used, but can we ballpark how much a plastic tie uses compared to a concrete one?
Per the Inventory of Carbon and Energy database, concrete varies between 150 and 400 kg of embodied CO2 per cubic meter, depending on the properties of the mix, with an “average” value of about 250. Plastics mostly have embodied emissions of about 3-4 kg of CO2 per kg of plastic, or about 3,500 kg per cubic meter (assuming a density of about 1,000 kg per cubic meter). So per unit volume, plastic has somewhere around 10 times the embodied emissions of concrete.
We can also do a more direct comparison. Consider a beam spanning around 20 feet and supporting a vertical load of 21,000 pounds per linear foot. The lightest U.S. standard steel section that will span this distance is a W16x26, which weighs about 236 kg and will have embodied carbon emissions of around 354 kg.
A concrete beam of the same depth, supporting the same load and spanning the same distance, will be 10.5 inches wide by 16 inches deep, with three #10 steel bars running along the bottom. This beam will have about 190 kg of embodied emissions from the concrete, and about another 230 kg of embodied emissions from the steel rebar. This is about 20% more than the steel beam, but in the same ballpark — and over half the “concrete” emissions are actually due to the embedded reinforcing steel.
This is arguably a nonrepresentative example (most concrete, such as in columns or slabs, will have a much lower ratio of steel), but the basic logic holds: Concrete is unusual in its total volume of use, not how emissions-heavy it is as a material. Most material substitutes that aren’t wood, recycled materials, or industrial byproducts that can be had for “free” won’t necessarily be much better when used at the same scale. In some ways, it’s surprising that the carbon emissions from concrete are as low as they are.
Of course, this calculus is likely to change over time — as electricity sources change over to lower carbon ones, you’re likely to see the embodied emissions of materials drop along with it. And since cement releases CO2 as part of the chemical process of producing it, concrete will look increasingly worse compared to other materials over time.
One potential option is to find ways of changing the cement production process to be less carbon-intensive. The easiest option is to just replace manufactured Portland Cement with some other cementitious material. Industrial byproducts such as blast furnace slag, silica fume, and fly ash, often have cementitious properties and don’t have a “carbon penalty” (since they’d be produced regardless.) Materials like these can potentially eliminate large volumes of cement in a concrete mix, and they’re a key part of current low-carbon concrete strategies — even “normal” concrete mixes tend to utilize these to some degree. But the total volume of these materials is limited by the extent of various industrial processes. And for things like fly ash (which is a byproduct from coal plants) and slag (which is a byproduct from CO2-emitting blast furnaces), we can expect production to decline over time.
Another option is to take advantage of the fact that concrete will naturally absorb CO2 over time, a process known as carbonation. Even normal concrete will absorb roughly 30% of the CO2 emitted during the production process over the course of its life. Companies like Carbicrete, Carboncure, Carbonbuilt, and Solida all offer methods of concrete production that allow the concrete to absorb CO₂ during the production process, substantially reducing embodied emissions. Interestingly, these producers mostly claim that their concrete is actually cheaper than conventional concretes, which would obviously be a massive tailwind for the technology’s adoption.
It’s not obvious what the best path forward is for addressing concrete carbon emissions (like with most things, I suspect it’ll end up being a mix of different solutions), but understanding the parameters of the problem is necessary for solving it.
Note: A version of this article originally appeared in the author’s newsletter, Construction Physics, and has been repurposed for Heatmap.
[0] - This figure varies depending on the source. Chatham House provides a frequently cited estimate of 8%. We can also ballpark it — roughly 0.93 pounds of CO₂ gets emitted for each pound of cement produced, around 4.25 billion tons of cement are produced annually, which gets ~3.95 billion tons of CO₂, and total annual CO₂ emissions are in the neighborhood of 46 billion tons, getting us a bit less than 9%.
[1] - Per Circular Ecology, ~70-90% of emissions are from the cement production process, depending on the type of concrete and what the rest of the supply chain looks like.
[2] - This seems to vary depending on where the cement is being made — in Myanmar, for instance, it’s around 46%.
[3] - Another number where the sources often don’t agree with each other, see here, here, and here for estimates on annual cement production.
[4] - Concrete is roughly 10-15% cement by weight, depending on the strength of the mix, what other cementitious materials are being used, etc. An average value of 12.5% yields 34 billion tons, which we’ll knock down to account for other uses of cement (masonry mortar, grout, gypsum overlay, etc.) This roughly tracks with estimates from PCA (“4 tons of concrete produced each year for every person on Earth”), and from the now-defunct Cement Sustainability Initiative, which estimated 25 billion tons of concrete against 3.125 billion tons of cement in 2015.
[5] - See here, here, and here for an estimate of total civilization mass flow. This doesn’t (I believe) include waste byproducts, which can be substantial — for instance, it doesn’t include the ~46 billion tons of CO₂ emitted each year, or the 16 billion tons of mine tailings, or the 140 billion tons of agriculture byproducts (though this last number is difficult to verify and seems high).
[6] - We see something similar with cement as we do with other bulky, low-value materials, in that it's made in lots of distributed manufacturing facilities relatively close to where it’s used. See here for a map of cement plants in the U.S. around 2001, for instance.
[7] - For China’s total floor space, see here (most sources seem to agree with these numbers). For U.S. floor space, see my Every Building In America article. For per-capita living space in Europe, see here.
[8] - The often high rates of cement use by middle-income countries have led some folks to develop a U-shaped cement consumption theory of industrial development — that countries start out using a small amount of cement, use more as they get richer and build up their physical infrastructure, and then eventually transition to using lower volumes of cement again. The Globbulk paper spends considerable time debunking this.
[9] - It’s not actually obvious to me what the substitution ratio would be. In strength-governed cases, you’d need proportionally more timber than concrete, but in other cases (such as replacing concrete walls with light-framed stud walls), you’d probably use less. Obviously, you can’t substitute all concrete for wood, but you can probably switch out more than you think — there’s no reason you couldn’t use wood foundations instead of concrete ones in many cases, for instance.
[10] - 30 billion tons of concrete is roughly 12.5 billion cubic meters, and total annual wood products produced is currently around 5.5 billion cubic meters.
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Current conditions: A rare wildfire alert has been issued for London this week due to strong winds and unseasonably high temperatures • Schools are closed on the Greek islands of Mykonos and Paros after a storm caused intense flooding • Nearly 50 million people in the central U.S. are at risk of tornadoes, hail, and historic levels of rain today as a severe weather system barrels across the country.
President Trump today will outline sweeping new tariffs on foreign imports during a “Liberation Day” speech in the White House Rose Garden scheduled for 4 p.m. EST. Details on the levies remain scarce. Trump has floated the idea that they will be “reciprocal” against countries that impose fees on U.S. goods, though the predominant rumor is that he could impose an across-the-board 20% tariff. The tariffs will be in addition to those already announced on Chinese goods, steel and aluminum, energy imports from Canada, and a 25% fee on imported vehicles, the latter of which comes into effect Thursday. “The tariffs are expected to disrupt the global trade in clean technologies, from electric cars to the materials used to build wind turbines,” explained Josh Gabbatiss at Carbon Brief. “And as clean technology becomes more expensive to manufacture in the U.S., other nations – particularly China – are likely to step up to fill in any gaps.” The trade turbulence will also disrupt the U.S. natural gas market, with domestic supply expected to tighten, and utility prices to rise. This could “accelerate the uptake of coal instead of gas, and result in a swell in U.S. power emissions that could accelerate climate change,” Reutersreported.
Republican candidates won in two House races in Florida on Tuesday, one of which was looking surprisingly tight going into the special elections. The victories by Jimmy Patronis in Florida’s First District and Randy Fine in the Sixth District bolster the party’s slim House majority and could spell trouble for the Inflation Reduction Act as the House Ways and Means Committee mulls which programs to cut to pay for tax cuts. But the result in Wisconsin’s Supreme Court election was less rosy for Republicans. Liberal Judge Susan Crawford defeated conservative Brad Schimel despite Schimel’s huge financial backing from Tesla CEO and Trump adviser Elon Musk, who poured some $15 million into the competition. The outcome “could tarnish the billionaire’s political clout and trigger worry for some Republicans about how voters are processing the opening months of Trump’s new administration,” as The Wall Street Journalexplained.
The Trump administration announced mass layoffs across the Department of Health and Human Services on Wednesday, part of a larger effort to reduce the agency’s workforce by 25%. The cuts included key staffers with the Low Income Home Energy Assistance Program, which has existed since 1981 and helps some 6.7 million low-income households pay their energy bills. A 2022 white paper calls LIHEAP “one of the most critical components of the social safety net.” The move comes at a time when many U.S. utilities are preparing to raise their energy prices to account for higher costs for materials, labor, and grid upgrades. In a scathing letter to HHS Secretary Robert F. Kennedy. Jr., Senate Energy and Commerce Democrats call the workforce cuts “reckless” and demand detailed explanations for why roles have been eliminated.
Energy storage startup Energy Vault on Wednesday announced it had closed $28 million in project financing for a hybrid green hydrogen microgrid energy storage facility in California. The firm says its Calistoga Resiliency Center, deployed in partnership with utility company Pacific Gas & Electric, is “specifically designed to address power resiliency given the growing challenges of wildfire risk in California.” The zero-emission system will feature advanced hydrogen fuel cells that are integrated with lithium-ion batteries, which can provide about 48 hours of back-up power via a microgrid to the city of Calistoga during wildfire-related power shutoffs. The site is expected to be commercially operational in the second quarter of 2025.
“The CRC serves as a model for Energy Vault’s future utility-scale hybrid microgrid storage system deployments as the only existing zero-emission solution to address [power shutoff] events that is scalable and ready to be deployed across California and other regions prone to wildfires,” the company said in a press release. As Heatmap’s Katie Brigham wrote last fall, PG&E has become an important partner for climate and energy tech companies with the potential to reduce risk and improve service on the grid.
China will finalize its first-ever sale of a green sovereign bond Wednesday. The country is expected to issue the bond on the London Stock Exchange and has reportedly received more than $5 billion in bids. “It’s no coincidence that China has chosen to list its debut green bond in London, given European investors’ continued strong demand for environmental products,” Bloombergnoted. Green bonds are investment vehicles that raise money exclusively for projects that benefit the climate or environment. China’s finance ministry wants the bond to “attract international funds to support domestic green and low-carbon development,” and specifically climate change mitigation and adaptation, nature conservation and biodiversity, and pollution prevention and control. Some of the money raised might also go toward China’s EV charging infrastructure, according toReuters.
GE Vernova has now produced more than half of the turbines needed for the SunZia Wind project in New Mexico. When completed in 2026, the 2.4 gigawatt project will be the largest onshore wind farm in the Western Hemisphere.
Rob and Jesse catch up on the Greenhouse Gas Reduction Fund with former White House official Kristina Costa.
The Inflation Reduction Act dedicated $27 billion to build a new kind of climate institution in America — a network of national green banks that could lend money to companies, states, schools, churches, and housing developers to build more clean energy and deploy more next-generation energy technology around the country.
It was an innovative and untested program. And the Trump administration is desperately trying to block it. Since February, Trump’s criminal justice appointees — led by Ed Martin, the interim U.S. attorney for the District of Columbia — have tried to use criminal law to undo the program. After failing to get the FBI and Justice Department to block the flow of funds, Trump officials have successfully gotten the program’s bank partner to freeze relevant money. The new green banks have sued to gain access to the money.
On this week’s episode of Shift Key, Rob and Jesse talk with Kristina Costa, who has been tracking the effort to bankrupt the green banks. Costa helped lead the Inflation Reduction Act’s implementation in the White House from 2022 to 2025 — and is a previous Shift Key guest. She joins us to discuss how Trump is weaponing criminal law to block a climate program, whether there’s any precedent for his actions, and what could come next in the legal battle. Shift Key is hosted by Robinson Meyer, the founding executive editor of Heatmap, and Jesse Jenkins, a professor of energy systems engineering at Princeton University.
Subscribe to “Shift Key” and find this episode on Apple Podcasts, Spotify, Amazon, or wherever you get your podcasts.
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Here is an excerpt from our conversation:
Robinson Meyer: There's kind of two lines you hear from the Trump administration about this, two claims made by the Trump administration about the reason for these seizures, and I just wanna talk about them briefly because this is an unprecedented action. We should look at why the government has claimed that it needs to take this unprecedented action.
The first has to do with this video made by Project Veritas, a kind of conservative media organization …
Kristina Costa: A hit squad.
Meyer: A hit squad that recorded, unwittingly, an EPA official who described the EPA’s actions during December 2024, between the loss of the election and the inauguration, as “throwing gold bars off the Titanic.” That the agency was so eager and desperate to spend as much of the IRA down as it could before the Trump administration took office that it was like they were throwing gold bars off the Titanic — you know, a sinking ship.
The EPA administrator has fixated on this line and described it as waste and self-dealing, suggesting reckless financial mismanagement, blatant conflicts of interest, astonishing sums of tax dollars awarded to unqualified recipients and severe deficiencies of regulatory oversight.
You were involved in setting up the IRA. I wonder, first of all, just how do you reflect on this episode? And second of all, was the Biden administration doing the proverbial version of throwing gold bars off the Titanic during the post-election period?
Costa: Yeah, so I mean, it falls apart as any sort of quote-unquote evidence in what's happening with the Greenhouse Gas Reduction Fund if you just believe in the linear nature of time. So, as I said, we announced EPA made the selections in April of 2024. The funds were fully obligated in August of 2024. Grantees were starting to make announcements about investments in October of 2024 — all dates which precede election day by weeks to months. And so it is just a complete fabrication on the part of Lee Zeldin that there was any sort of inappropriate action on the part of the Biden EPA or any of the other agencies in doing what Congress directed us to do, which was to award and obligate funds to recipients consistent with the provisions of the Inflation Reduction Act that authorized and appropriated funds for the programs.
We had also — and I think I might have said this when I was with you guys in December — one of the first things that we did, from the White House implementation team, was to meet with all of our grant agencies and, in September and October of 2022, set targets for them for how much funding we wanted them to try to award and obligate by the end of the administration. And we set a goal, basically, that we would be aiming to have at least 80% of the available funds obligated by the end of 2024. And we hit that. And so the idea that there was some massive acceleration post-election — like, were there some contracts that the agencies obligated in December and January that, in the event of a Kamala Harris administration, they would've maybe obligated in February and March instead? Sure. I'm not going to say otherwise, but those grants had been made already. There wasn't this rush of actual decision-making.
Music for Shift Key is by Adam Kromelow.
That trust was hard won — and it won’t be easily regained.
Spring — as even children know — is the season for planting. But across the country, tens of thousands of farmers who bought seeds with the help of Department of Agriculture grants are hesitating over whether or not to put them in the ground. Their contractually owed payments, processed through programs created under the Biden administration, have been put on pause by the Trump administration, leaving the farmers anxious about how to proceed.
Also anxious are staff at the sustainability and conservation-focused nonprofits that provided technical support and enrollment assistance for these grants, many of whom worry that the USDA grant pause could undermine the trust they’ve carefully built with farmers over years of outreach. Though enrollment in the programs was voluntary, the grants were formulated to serve the Biden administration’s Justice40 priority of investing in underserved and minority communities. Those same communities tend to be wary of collaborating with the USDA due to its history of overlooking small and family farms, which make up 90% of the farms in the U.S. and are more likely to be women- or minority-owned, in favor of large operations, as well as its pattern of disproportionately denying loans to Black farmers. The Biden administration had counted on nonprofits to leverage their relationships with farmers in order to bring them onto the projects.
“This was an opportunity to repair some of that trust, through this project,” Emily Moose, the executive director of the sustainable agriculture organization A Greener World, told me in an email. Moore and her teammates spent years recruiting farmers from the group’s Oregon community, and eventually got 77 of them to sign up to create certified regenerative farm management plans. A Greener World was notified in January that its reimbursements were being suspended, and now risks losing $10,000 in incentive payments, meaning the farmers in the program “are now having to weigh paying for certification out of pocket or dropping the certification process entirely and losing market opportunities.”
Nicole Delcogliano, director of programs at the Organic Growers School, a farmer training organization in North Carolina, and a small farmer herself had similar hopes for a grant the group received to help mentor and educate early-stage farmers. The department had “finally started to build back a little bit of trust,” she told me. With the funding pause, she said, “I think that is going to be lost.”
Affected grants include billions set aside for the USDA through the Inflation Reduction Act for soil and water conservation projects, as well as more than $820 million earmarked for the Rural Energy for America Program, or REAP, which incentivized agricultural producers to make energy-efficiency improvements on their land. Grants issued through the Partnerships for Climate-Smart Commodities program for farm innovations that have greenhouse gas and carbon sequestration benefits — funded through the USDA’s Commodity Credit Corporation, a Dust Bowl-era entity more typically leveraged to protect farm income and prices during disasters — are also on pause. Original plans for the program under Biden would have seen it eventually scaled to 60,000 farms, reducing an estimated 50,000 million metric tons of CO2 equivalent.
Though the Trump administration eventually released about 1% of the IRA-related USDA grant money in late February, much remains out of reach, with no timeline for payout. The National Sustainable Agriculture Coalition assumes that the “majority” of the $2.3 billion allocated to farmers on IRA-funded contracts is “likely still in USDA’s coffers.” Additionally, more than half of the $3.1 billion allocated to the Partnerships for Climate-Smart Commodities program had not yet been paid out by the end of February, according to The Hagstrom Report, an agricultural news service. (The Trump administration has said it would reconsider REAP grants if applicants rewrite them to “remove harmful [diversity, equity, inclusion, and accessibility] and far-left climate features.”)
All of the affected grant programs work on a reimbursement basis, with the farmers incurring costs upfront protected, in theory, by a contractual guarantee that the government will pay them back. Individual farmers aren’t usually the direct beneficiaries of USDA grants, however. The USDA more commonly awards a grant to nonprofit organizations that, in turn, provide financial and technical support to farmers making sustainable transitions. Many of the nonprofits are now having to furlough or lay off staff. Meanwhile, farmers are still seeking their reimbursements, but there’s no funding there to pay them.
Hannah Smith-Brubaker, the executive director of Pasa Sustainable Agriculture, a Pennsylvania-based nonprofit that was awarded a Climate Smart Commodities grant and a Farm and Food Workers Relief from the USDA, is planning to furlough 60 people — most of her team — due to the pause. Another project director at a Mid-Atlantic sustainability nonprofit told me his organization has “been lending cash” from their own books since January 27, when the pause was announced, and that he anticipated being laid off shortly after our call.
But while the nonprofits are certainly hurting, the farmers are the ones stuck with the final bill. In addition to the USDA’s history of discriminating against Black farmers, many who manage smaller acreages report feeling overlooked by the federal government in favor of powerful agro-business conglomerates. More than 70% of farmers under age 40 reported being unfamiliar with USDA programs that could help them, and nearly half said they’d never received support from the agency, according to polling by the National Young Farmers Coalition published in 2022.
“In the last administration, there was recognition that they didn’t have the trust of a lot of farmers who historically haven't been served, or been underserved, by USDA,” Smith-Brubaker said. With programs like the Climate-Smart Commodities grant, the Biden administration “asked us to leverage the trust that we already have with farmers — to ask them to trust us to enter into this program.”
It worked: Many of the more than 30,000 contracted farms are already a year or two into multi-year projects with nonprofits designed to improve soil health, plant cover crops, or improve farm efficiency. That means they’ve already hired the extra staff for the projects, placed orders for new equipment, and set aside precious land for soil-enrichment projects.
But with no word on the future of their funding, some are now hesitating over whether to spend more money out of pocket on those projects if the government might not uphold its end of the deal. The pause has led many of the farmers I spoke with to reevaluate their trust in future USDA funding. “It’s unsettling because you’re like, ‘Well, if I implement the practices I’m supposed to, but then I don’t get that reimbursement sometime in 2025, what does that look like?’” said Delcogliano, who received one Conservation Stewardship Plan payment in October for her farm, Green Toe Ground, but hasn’t yet heard yet whether future payments will be affected.
Delcogliano also emphasized that despite the commodities grant containing the “buzz word” of “climate,” what it actually encourages are long-established practices that help conserve water and soil. “It’s just smart farming,” she told me. Ed Winebarger, a chef and farmer in North Carolina, told me he participated in the Climate-Smart Commodities program for a year and saw an immediate 20% increase in production. “My crops did better, the system works — period,” he said.
Small farmers who pursued the government grants likely would have been interested in the practices regardless of the financial incentives in many cases; Erin Foster West, the Policy Campaigns Director for the National Young Farmers Coalition, told me the group’s research found nearly 85% of its membership was “motivated by environmental stewardship to farm.” Caroline Anderson Novak, the head of the Professional Dairy Managers of Pennsylvania — which is collaborating with Penn State on its greenhouse-gas-reducing Climate-Smart Commodities program, and which hasn’t received a notification of a pause from the USDA as other organizations have — told me that things like experimental feeds and sharper data assessments represent “operational improvements” that just happen to have attractive climate upsides. “They are things that the farm already wants to do,” she said.
What the grants do is provide the capital necessary for farmers to put these efficiency upgrades into practice. Margins, particularly at small farms, can be razor thin, and the risks of operational experiments can be steep. “A lot of the time, you would need to pursue a loan just to get started with the project,” Emma Jagoz, the owner of Moon Valley Farm in Maryland, who has hundreds of thousands in USDA grants tied up by the pause, told me.
As a result, farmers waiting for clarity on their grants generally have clear eyes about the root of the problem. “The organization that we work with, they can’t help the cuts. It’s not their fault,” Patrick Brown, who enrolled 90% of his North Carolina farm’s acreage in a climate-smart project, told me. “This administration has blatantly stated their approach.”
Kristin Reilly, the executive director of the Choose Clean Water Coalition, a collective of small nonprofits in the Chesapeake Bay watershed that is helping its farming partners navigate the funding freeze, agreed that “the practitioners on the ground are definitely seeing that it’s not the nonprofits who are not paying them; they’re struggling along with them.”
Almost everyone I spoke with was pessimistic that the USDA would honor the grants, even as Earthjustice and other groups have launched lawsuits against the federal government over the freeze. (Pasa has joined a lawsuit with the Southern Environmental Law Center.) “I don’t think [the pause is] going to lift as long as this guy is in power because he’s so disconnected from reality,” Winebarger, the North Carolina chef and farmer, said of President Trump. “He’s never put his hands in dirt in his entire life. He doesn’t understand me. He doesn’t understand my farming neighbors.”
Delcogliano shared a similar sentiment: “The government is incompetent,” she told me. “They’re not in touch with the people that are actually doing the work.”
Perhaps most crucially, while the federal money is paused, the climate continues changing. Any given season could bring a new drought or deluge that wipes out a farm entirely. Though separate from the troubles with the grant pauses, both Delcogliano and Winebarger are also recovering from extensive damage to their farms from Hurricane Helene, a process they told me has been made even more painful due to the lack of emergency funding available from the Federal Emergency Management Agency. Farmers will also be particularly vulnerable to the impacts of some of the tariffs the Trump administration plans to enact this week.
“It just feels like I’m driving behind a truck full of hammers that are dumping on me,” Winebarger said of the compounding problems. “And I can’t dodge them — they’re going to hit me. I don’t know how we’re going to get out from underneath this.”
Wolfe’s Neck Center for Agriculture & the Environment, a Maine-based nonprofit that stands to lose a $35 million Climate-Smart Commodities grant, has begun to reformulate how its programs could continue with the support of buyer funds, state funding sources, or philanthropic dollars instead. It had once envisioned working with more than 400 partners over the grant’s lifespan, but that idea has given way to smaller-scale projects it can still afford.
“This is about so much more than climate change,” Ellen Griswold, the director of Wolfe’s Neck, stressed to me about the importance of finding a way forward with or without the government. “It’s about making farmers as resilient and profitable as possible. Without this assistance, there will be impacts to the farming community” — including farmers themselves and their suppliers. That could include a fencing company, nursery, or refrigerated truck dealer farmers can no longer afford to pay, or regional schools or food banks that are now forced to pay more for local, organic produce.
The reverberations of the grant pause will be felt far into the future, too. Even if the contracts are ultimately honored by the Trump administration, some farmers will undoubtedly feel justified in their suspicions of partnering with the federal government. Nonprofits will have more difficulty convincing community partners to take on voluntary climate projects down the line, and common-sense efficiency projects with climate co-benefits will stay dormant.
“If another opportunity comes along like this, I completely understand if farmers say, ‘No, I’m not doing that,’” Smith-Brubaker of Pasa said.