• 5 MIN READ

How States Can Transform Cement and Concrete Production

Cement and concrete are foundational to our modern world. They are also a significant source of carbon emissions. Cement, the key ingredient in concrete, makes up about seven to eight percent of global carbon dioxide emissions. If the cement industry were a country, it would be the third-largest source of emissions behind China and the United States. Leveraging a suite of technologies, as detailed in Cement and Concrete 101, can effectively reduce emissions across the sector. There are several other strategies that state and local governments can consider as they collaborate with stakeholders.

Rethinking how we build.

Building plans often include sizable overdesign margins to ensure that concrete meets strength specifications. This can lead to the use of more cement than necessary. The overdesign can be relatively small if a concrete producer has a good quality control process and a history of consistent test results for a mix design. Reducing overdesign means using less cement, which means reducing carbon emissions (by as much as eight percent). Striking the right balance between safety and environmental performance is a promising strategy for reducing emissions across the sector.

Extending the life of existing buildings and repurposing unused buildings, also called adaptive reuse, are two other examples of how we can transform the way we build. In both cases, demand for cement and concrete, and therefore associated emissions, are reduced.

Leveraging state-level procurement power.

As of 2025, nine states have enacted “Buy Clean” policies. The public sector purchases nearly 50 percent of the cement produced in the United States. States and localities can leverage this significant purchasing power to increase the demand for low-carbon materials, including cement and concrete. Programs like Buy Clean typically target embodied carbon (the emissions associated with manufacturing, transporting, installing, maintaining, and disposing of building materials, including cement and concrete).

Programs like Buy Clean also typically require suppliers to provide environmental product declarations (EPDs). EPDs are estimates of emissions associated with extracting, manufacturing, and transporting individual materials. Along with other criteria used to score project bids, states can use EPDs to compare the environmental impact of materials across bidders. Buy Clean programs send a direct market signal that can help catalyze more production of low-carbon materials.

The Buy Clean Colorado Act (BCCO), enacted in January 2024, has served as a model. BCCO covers materials supplied for state projects costing $500,000 or more and sets a maximum acceptable global warming potential (GWP) limit for covered materials, including concrete. Concrete producers must ensure their mixes comply with the state’s GWP limits. Colorado expects to reduce GWP limits over time as low-carbon materials become more standard. While implementation of Buy Clean programs varies by state, many states have worked collaboratively for several years to advance the procurement of low-carbon construction materials in publicly funded projects.

Catalyzing innovative markets with financial incentives.

State governments can develop several financial strategies to support low-carbon cement and concrete, including:

  • Contracts for Difference: These contracts cover the price gap between low-carbon and traditional materials. This creates a guaranteed price to offset the upfront cost of commercializing these products and reduces the green premium.
  • Advanced Market Commitments: These are commitments to purchase low-carbon materials, ensuring a reliable future income stream for developers. Purchasers eager to reduce their supply chain emissions have joined forces to create platforms to match buyers and sellers of low-carbon materials.
  • Tax Credits, Loans, and Grants: Targeted industrial financial incentives supporting a wide range of projects that reduce emissions can be cost-effective ways for states to encourage industrial modernization, improve operational efficiency, and reduce emissions and criteria air pollutants. States can set aside a fixed pool of credits and develop guidelines for proposals to ensure projects align with the state’s goals.

Cement and concrete will remain an essential global resource. Reducing emissions across the sector will require ongoing coordination and collaboration. States have historically been leaders of low-carbon procurement policies. They can accelerate progress rapidly by sending strong market signals to build confidence across the cement and concrete value chain. Policies and financial incentives can be tailored to a state’s unique needs to lower costs, fully commercialize low-carbon materials, reduce emissions, and improve air quality for surrounding communities.

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Senior Program Coordinator - Carbon Management, GPI

Carrie Danner joined the Great Plains Institute in 2023 and serves as the operations coordinator for the Carbon Management team. In her work, she supports all projects within the program to elevate operations, specifically in the grant making and event planning spaces. Carrie earned a bachelor’s degree from Knox College in environmental studies. Prior to joining GPI, she supported programs at the Conservation Corps of Minnesota & Iowa as their member experience administrator.

Carbon Management Program Associate, GPI

Alana joined GPI in 2024 as a program associate on the Carbon Management team, specifically supporting the Industrial Innovation Initiative, where she helps to advance industrial decarbonization through GPI’s consensus-building approach. Alana previously worked as an account executive at Jamf, where she helped current K-12 education customers improve and scale the management and security of their Apple device deployments. Alana has spent most of her professional years working with Minnesota nonprofits, including two years as an AmeriCorps member with Twin Cities Habitat for Humanity.  She holds a bachelor’s degree in community environmental studies from the University of Wisconsin-Eau Claire.

Ankita Gangotra, Associate, WRI

Dr. Ankita Gangotra is an Associate in WRI’s US Climate Program, researching avenues to decarbonize the industrial sector, focusing on cement and steel decarbonization, environmental trade policies and international cooperation. Prior to joining WRI, Ankita was a postdoctoral research fellow in the School of Foreign Service and the Department of Physics at Georgetown University. Her research looked at the readily available technology and policy options for upgrading low-carbon cement production in the United States. Ankita has an integrated Master's in Electronics Engineering with Nanotechnology from the University of York, UK (2015) and a Ph.D. in Physics from the University of Auckland, New Zealand (2020). During her time in New Zealand, Ankita interned at the Office of the Prime Minister's Chief Science Advisor looking into equity, diversity and inclusion policy options for New Zealand’s science, research and innovation workforce.

Carrie Dellesky, Program and Outreach Manager, Carbon Removal and Industrial Innovation, WRI

Carrie Dellesky is the Program and Outreach Manager for Carbon Removal and Industrial Innovation. She develops strategies to advance policies and practices for scaling up a suite of carbon removal approaches and decarbonizing the industrial sector. She engages allies and builds and expands partnerships to mobilize champions and enhance visibility, action and impact. She also leads communications to amplify research and thought leadership, including messaging, media relations, event planning, social media and digital strategy.

Zachary Byrum, Research Analyst, WRI

Zachary Byrum is a Research Analyst in WRI's U.S. Climate Program, where he provides technology and policy analysis for carbon removal and deep decarbonization. His work focuses on pathways to reduce industrial emissions as well as bolstering technological carbon removal. Prior to WRI, Zach was a research assistant in the Carbon Management Research Initiative at the Center on Global Energy Policy. In the preceding years, he served as White House Intern in the National Economic Council under the Obama Administration and then an assistant analyst at the Congressional Budget Office. Zach holds a Master of Public Administration in Environmental Science and Policy from the School of International and Public Affairs at Columbia University and a B.A. in Economics and Political Science from Goucher College.

Katie Lebling, Associate, WRI

Katie Lebling is an Associate in WRI's Climate Program where she works on research and analysis of technological carbon removal approaches and industrial decarbonization. Before joining WRI, she worked at The Asia Group, and interned at the Woodrow Wilson Center’s China Environment Forum and the Treasury Department’s Office of Environment and Energy. She holds a Master's degree from Johns Hopkins School of Advanced International Studies in Energy, Resources, and the Environment, where she spent one year of the program studying in Nanjing, China, and has a B.A. from Colby College in Biology and Chinese language.

Debbie Weyl, Deputy Director, WRI United States

Debbie Karpay Weyl is the Deputy Director for WRI U.S. She previously served as Manager for the Buildings Initiative at WRI Ross Center for Sustainable Cities. She led an expanding global partnership to accelerate building energy efficiency in cities around the world. She also contributed to program management and development, research, and knowledge exchange for urban energy efficiency and sustainability. Debbie joined WRI from CLASP, a global non-profit organization that improves the environmental and energy performance of appliances, lighting and equipment. From 2011-2016 Debbie managed and developed global programs, led research projects, and facilitated collaboration among international experts and other representatives in the public, private, and non-profit sectors. Prior to joining CLASP, Debbie worked at the U.S. Department of Energy, Office of Energy Efficiency and Renewable Energy, where she was a contractor supporting building efficiency and other energy efficiency programs in the United States. Debbie holds a Master of Science in Environment and Development from the London School of Economics and Political Science, and a B.A. in Politics (Political Economy and International Relations) from Princeton University.

Angela Anderson, Director of Industrial Innovation and Carbon Removal, WRI United States

Angela Anderson is the Director of Industrial Innovation and Carbon Removal in the Climate Program. She leads WRI's growing portfolio of work in industrial decarbonization and carbon removal and aims to change narratives around “hard-to-abate” sectors and promote the natural and technological interventions required to achieve net-zero targets. Prior to joining WRI, Angela worked as a program director, coalition builder, international advocate, and campaign strategist. She led the Climate and Energy Program at the Union of Concerned Scientists for ten years; facilitated US-NGO engagement in the international climate negotiations while at US Climate Action Network and at the Pew Environmental Trust; and founded Clear the Air, a national coalition to reduce pollution from power plants. Angela holds a B.A. in political science from Colorado State University.

Patrice Lahlum, Vice President of Carbon Management, GPI

Patrice Lahlum is the vice president of the Carbon Management program at the Great Plains Institute. The Institute, headquartered in Minneapolis, MN, works with diverse stakeholders and communities across the country to transform the energy system to benefit people, the economy, and the environment. We strive to combine our unique consensus-building approach, expert knowledge and analysis, and local action to promote solutions that strengthen communities, shore up the nation’s industrial base, and enhance domestic energy independence, all while eliminating carbon emissions. Patrice oversees several initiatives including the Carbon Capture Coalition, Industrial Innovation Initiative, Carbon Action Alliance, and the Regional Carbon Capture Deployment Initiative.

Kate Sullivan, Senior Program Coordinator, Carbon Management, GPI

Kate Sullivan joined the Great Plains Institute in 2019. As Senior rogram Coordinator, Kate uses her analytical and design skills to provide research, writing, and logistical support across the Carbon Management team. Prior to joining GPI, Kate worked as an Energy Counselor in the Center for Energy and Environment’s residential department, assisting homeowners with their energy needs and providing resources for efficiency upgrades. Kate earned her BA in Biology from St. Olaf College with an emphasis in Environmental Studies.

David Soll, Industrial Decarbonization Manager, GPI

David Soll joined the Great Plains Institute in 2023 and serves as Industrial Decarbonization Manager. He oversees the Industrial Innovation Initiative, a coalition advancing decarbonization solutions for the Midcontinent region’s most important industrial sectors. Prior to joining GPI, he taught history and environmental studies at the University of Wisconsin-Eau Claire, where he focused on urban infrastructure and energy conservation. David earned a Master’s in government from the University of Texas at Austin and a PhD in history from Brandeis University.

Jill Syvrud, Senior Program Manager, Carbon Management, GPI

Jill Syvrud joined the Great Plains Institute in 2017 and serves as the program manager for the Carbon Management Program. In addition to overseeing the overall program, Jill directly supports the Industrial Innovation Initiative, a coalition advancing decarbonization solutions for the Midcontinent region’s most important industrial sectors. Jill earned a bachelor of science in biology from the University of Wisconsin–Eau Claire and a master of science degree in science technology and environmental policy from the University of Minnesota’s Humphrey School of Public Affairs. Jill’s past experience includes multiple graduate research assistantships concentrating on technology innovation and sustainable megacities along and a previous position as an administrative and outreach coordination intern with the Midwest Renewable Energy Association.