Decarbonizing the Cement Industry: Technological, Economic, and Policy Barriers to CO2 Mitigation Adoption

Abstract

The cement industry accounts for approximately 7–8% of global CO2 emissions, primarily due to energy-intensive clinker production and limestone calcination. With cement demand continuing to rise, particularly in emerging economies, decarbonization has become an urgent global challenge. The objective of this study is to systematically map and synthesize existing evidence on technological pathways, policy measures, and economic barriers to four core decarbonization strategies: clinker substitution, energy efficiency, alternative fuels, as well as carbon capture, utilization, and storage (CCUS) in the cement sector, with the goal of identifying practical strategies that can align industry practice with long-term climate goals. A scoping review methodology was adopted, drawing on peer-reviewed journal articles, technical reports, and policy documents to ensure a comprehensive perspective. The results demonstrate that each mitigation pathway is technically feasible but faces substantial real-world constraints. Clinker substitution delivers immediate reduction but is limited by SCM availability/quality, durability qualification, and conservative codes; LC3 is promising where clay logistics allow. Energy-efficiency measures like waste-heat recovery and advanced controls reduce fuel use but face high capital expenditure, downtime, and diminishing returns in modern plants. Alternative fuels can reduce combustion-related emissions but face challenges of supply chains, technical integration challenges, quality, weak waste-management systems, and regulatory acceptance. CCUS, the most considerable long-term potential, addresses process CO2 and enables deep reductions, but remains commercially unviable due to current economics, high costs, limited policy support, lack of large-scale deployment, and access to transport and storage. Cross-cutting economic challenges, regulatory gaps, skill shortages, and social resistance including NIMBYism further slow adoption, particularly in low-income regions. This study concludes that a single pathway is insufficient. An integrated portfolio supported by modernized standards, targeted policy incentives, expanded access to SCMs and waste fuels, scaled CCUS investment, and international collaboration is essential to bridge the gap between climate ambition and industrial implementation. Key recommendations include modernizing cement standards to support higher clinker replacement, providing incentives for energy-efficient upgrades, scaling CCUS through joint investment and carbon pricing and expanding access to biomass and waste-derived fuels.

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