Fossil fuel support

While support to fossil fuels can reduce the burden of high energy bills on households and firms, it can have a sizeable fiscal cost, increase emissions, and undermine incentives for the energy transition and thus longer-term growth. Moreover, as currently designed, it tends to disproportionately benefit higher income households. Reforms should focus on better targeting those most in need and phasing out inefficient support for fossil fuels as soon as possible, to free-up much-needed public resources, make progress towards better functioning energy markets and the clean energy transition, help accelerate innovation in energy efficiency and better align fiscal policy with public policy and climate goals.

To help countries achieve this objective, the OECD produces and maintains an online Inventory of Support Measures for Fossil Fuels, which systematically identifies, documents and estimates the fiscal cost of individual policy measures encouraging the production or consumption of fossil fuels. This database helps governments to evaluate their allocation of scarce budgetary resources to fossil fuels and their alignment with environmental and well-being goals.

The OECD’s 2025 Inventory documents over 1 700 government budgetary transfers and tax expenditures providing support for fossil fuel producers and consumers in 52 OECD, G20, European Union (EU), and Eastern Partnership (EaP) countries.

New OECD and IEA data show that the fiscal cost of global support for fossil fuels decreased by 11% to USD 916.3 billion in 2024, down from USD 1 031.2 billion in 2023. Emergency measures introduced during the peak in energy prices in 2022 were significantly reduced and even phased out over the reporting period. Energy supply costs, used as a benchmark reference price, also continued to fall in many parts of the world, although less sharply than in 2023, thereby decreasing the estimated value of fossil fuels sold below this reference price. That said, with many measures supporting production and consumption of fossil fuels still in place, the fiscal cost of support measures for fossil fuels continued to remain elevated relative to the historical average.

Support measures covered by the Inventory are direct transfers and tax expenditures that can vary widely in terms of magnitude and the beneficiaries they target. The granular data of the Inventory allows for in-depth analysis of policies that can potentially encourage the production or consumption of fossil fuels in each country.

Support: budgetary transfers and tax expenditures that provide a benefit or preference for fossil-fuel production or consumption.

Subsidy (WTO definition): in the Agreement on Subsidies and Countervailing Measures (ASCM) under the World Trade Organization (WTO), a subsidy shall be deemed to exist:

1. if there is a financial contribution by a government or any public body within the territory of a country, i.e. where:

        i. a government practice involves a direct transfer of funds (e.g. grants, loans, and equity infusion), potential direct transfers of funds or liabilities (e.g. loan guarantees);

        ii. government revenue that is otherwise due is forgone or not collected (e.g. fiscal incentives such as tax credits);

        iii. a government provides goods or services other than general infrastructure, or purchases goods;

        iv. a government makes payments to a funding mechanism, or entrusts or directs a private body to carry out one or more of the type of functions illustrated in (i) to (iii) above which would normally be vested in the government and the practice, in no real sense, differs from practices normally followed by governments.

2. Or if there is any form of income or price support in the sense of Article XVI of GATT 1994.

3. And if a benefit is thereby conferred.

• Direct budgetary transfers: payments made by governments, or bodies acting on behalf of governments, to individual recipients. This includes direct spending, e.g. for specific support programmes, and government ownership (fully or through equity shares) of energy-related enterprises.

• Tax expenditures: tax concessions that are typically provided through lower rates, exemptions, or rebates of consumption taxes on fossil fuels (mainly value-added taxes and excise taxes) or measures to reduce the cost of the extraction of fossil fuels (including accelerated-depreciation allowances for capital expenditure, investment tax credits, deductions for exploration and development expenses, and preferential capital-gains treatment). Tax expenditures can also take less visible forms such as the special treatment of income from state-owned enterprises, tax relief for income earned on industry sinking funds (e.g. for site remediation), tax exempt bonds, the use of foreign tax credits for what may be considered royalty payments, or preferential tax rates on fuels used as inputs in fossil-fuel production. Tax expenditures are often premised on providing government support to activities or entities deemed to be socially beneficial; or on concerns relating to risk and uncertainty, energy security, capital intensity, high upfront costs, and long project timelines. Various approaches of varying levels of difficulty are used to derive estimates of the cost of tax expenditures. The revenue forgone approach is the most straightforward and the most commonly used in OECD countries. Revenue forgone is the difference between the tax revenue raised with and without the tax expenditure, all else being equal. The revenue forgone approach is a static measure. In other words, it does not account for behavioural responses related to the removal of the tax expenditure.

• Induced transfers (or price support or price-gap): estimated subsidies due to market regulation and price support for lower end-user price relative to the full cost of supply. It refers to a change in prices received by producers and paid by domestic consumers as a consequence of government interventions, such as through direct price regulation, pricing formulas, border controls or taxes, and domestic purchase or supply mandates. The difference between the end-use price and the reference price (reflecting the full cost of the supply, which would prevail in a competitive market) amounts to the price gap or induced transfer. For countries that import a given product, consumer subsidy estimates derived through the measurement of price-gaps are explicit. That is, they represent net expenditures resulting from the domestic sale of imported energy at lower, regulated prices. In contrast, for countries that export a given product – and therefore do not pay world prices – subsidy estimates are implicit and have no direct budgetary impact. Rather, they represent the opportunity cost of pricing domestic energy below market levels. For countries that produce a portion of their fossil-fuel consumption themselves and import the remainder, the estimates represent a combination of opportunity costs and direct government expenditures.

• Producer Support Estimate (PSE): transfers or expenditures from consumers and taxpayers to producers of fossil fuels. Fossil-fuel production encompasses the following activities along the supply chain: exploration and extraction; bulk transportation and storage; and refining and processing.

• Consumer Support Estimate (CSE): transfers or expenditures in favour of consumers of fossil fuels. Consumption of fossil fuels refers to the stage at which fuels are combusted or used as raw materials by various end-use sectors, whether it occurs in motor vehicles, stationary engines, heating equipment or power plants. Consumption encompasses the following activities: the use of fossil fuels in power and heat generation; their use in industrial processes and activities outside of the energy sector; and all other final uses of fossil fuels, whether in the transport sector, the residential sector, or primary industries outside of the energy sector (e.g. agriculture and forestry).

• General Services Support Estimate (GSSE): transfers or expenditures arising from policy measures that create enabling conditions for the fossil-fuel sector through the development of private or public services, institutions and infrastructure (regardless of their objectives and impact on fossil-fuel production and or consumption). It includes policies where fossil fuels are the main beneficiaries, but does not include any payments to individual producers. GSSE transfers do not directly alter producer receipts or costs, or consumption expenditures, although they may affect production or consumption of fossil fuels in the long term.

See the OECD’s PSE-CSE accounting framework for more details.

The range of fuels covered by the Inventory comprises both primary fossil-fuel commodities (e.g. crude oil, natural gas, coal, and peat) and secondary refined or processed products (e.g. diesel fuel, gasoline, kerosene, and coal briquettes). Primary fuels include in particular those fossil fuels that are extracted from unconventional sources, such as oil extracted from bituminous sands, shale-based natural gas, or coal-bed methane. Measures supporting the production or use of biofuels are not, however, included in the Inventory.

• Coal: including hard coal and briquettes, and peat.

• Natural gas: both liquefied and in the gaseous state.

• Petroleum: petroleum oils and oils obtained from bituminous minerals, crude oil as well as secondary refined or processed products (e.g. diesel fuel, gasoline, kerosene). 

• End-use electricity: electricity for end-user consumption of fossil-fuel origin. Support under end-use electricity includes measures providing electricity tariffs below cost recovery or annual average-cost pricing for electricity end-users and only includes the fossil-fuel component of the support (i.e. renewables and other non-fossil-fuel sources are excluded). Amounts related to cross-border power exchanges are also excluded due to the technical difficulties in determining the traded electricity’s ultimate generation origin. Support amounts benefiting fossil fuels as power generation inputs are aggregated under their respective fuel type, i.e. petroleum, coal or natural gas.

The Inventory adopts the IEA’s World Energy Balances categorisation of fossil-fuel production and consumption sectors.

• Production sector: includes measures that support the production, exploration, trade, storage and transportation of fossil fuels.

• Transportation sector: includes measures that support the final uses of fossil fuels in the transport sector, including domestic aviation, domestic navigation, road, and rail.

• Residential sector: includes measures that support the final uses of fossil fuels in the residential sector, including consumption by households.

• Electricity generation sector: includes measures that support the use of fossil fuels in electricity and heat generation. This includes fossil-fuel inputs to electricity and heat plants, both main and auto producers.

• Other sectors: includes measures that support the use of fossil fuels in the energy transformation sector other than electricity and heat generation; industrial and manufacturing sector; commercial and public services; agriculture, forestry and fisheries sector; non-energy use.