ProBioQAV – Brazil's National Sustainable Aviation Fuel Programme (Fuel of the Future Law, Law 14.993/2024; Decree 13.094/2026)

ProBioQAV is Brazil's policy to cut greenhouse gas emissions from domestic flights using sustainable aviation fuel (SAF). Unlike the EU and UK schemes, which make fuel suppliers blend a share of SAF, it sets an emissions-reduction target for airlines. The target is 1% from 1 January 2027, rising to 10% by 1 January 2037, measured over the fuel's full life cycle from well to wake.

The programme began as Bill 528/2020, approved by the Chamber of Deputies in September 2024, and was created by the Fuel of the Future Law (Law 14.993 of 8 October 2024). Decree 13.094 of 12 August 2026 (published 13 August) set out how it works.

How it works: a new "blending agent" (jet fuel producers, biofuel producers and aviation fuel distributors, authorised by ANP) mixes SAF into fossil jet fuel. For each unit sold, a registry issues a CS-SAF certificate. This is a digital record of producer, volume, feedstock, blend and emissions, valid 18 months, and can be traded separately from the fuel ("book and claim"). Airlines retire CS-SAF by 31 January of the following year. Up to 5% of the target may be met with other instruments: CBIOs (RenovaBio carbon credits), low-carbon aviation fuel, recognised foreign SAF certificates or Brazilian emissions trading credits. The cap is 15% for 2027–28 and 10% for 2029. To avoid double counting, CBIOs cannot be issued for SAF. Domestic producers may certify under ANP's national scheme or ICAO's CORSIA; imported SAF must be CORSIA-certified.

Roles: ANP runs the certification scheme, accredits inspection firms and the registry, and is building the CS-SAF platform with Serpro (the federal data service). ANAC sets the emissions method and enforces airline compliance. CNPE (National Energy Policy Council) monitors the targets.

2026 milestones: ANAC opened Public Consultation 12/2026 on monitoring and reporting on 3 Sept, held a forum on 11 Sept and closed it on 1 Oct. The draft covers operators emitting at least 10,000 t CO₂ a year and includes a fine reported at R$750 per tonne not reduced. ANAC estimates that about 12 operators will be obligated in 2027, including cargo and air-taxi firms as well as the three main airlines. ANP's board approved its own consultation on 29 Oct 2026. The consultation opened on 4 Nov 2026 and covers SAF certification, carbon-intensity calculation, traceability and CS-SAF trading. Comments close on 13 Nov, the public hearing is on 18 Nov, and ANP must issue its final rules by 18 Dec 2026. On 30 Oct 2026 the Ministry of Finance left aviation out of the national carbon market timetable, leaving ANAC to handle measurement, reporting and verification for airlines.

Risks to the start date: airlines have raised the possibility of postponing the 1 January 2027 start (eixos, 30 Oct 2026). The CS-SAF platform may not be ready by January 2027 (eixos, 4 Nov 2026), and ANAC has said fuel purchase invoices could be used as proof of SAF use if tracking is not ready. No change to the start date had been announced by 9 Nov 2026.

Supply is the weak point. Brazil has no large-scale SAF plant; about 15 projects are in development. Petrobras co-processes at its Reduc refinery, and imported used-cooking-oil SAF is used at Salvador airport. In September 2026 Petrobras delayed its three dedicated SAF plants by a year to 2030–31. ANAC says SAF costs two to three times as much as jet kerosene.

Milestone path

1. Sep 2024

   Chamber of Deputies approves bill

   Achieved

   The Chamber of Deputies approved Bill 528/2020, the "Fuel of the Future" bill that includes the aviation fuel programme.

   Why it matters: It moved Brazil's SAF policy from proposal to near-law.

2. 8 Oct 2024

   Fuel of the Future Law signed

   Achieved

   Law 14.993/2024 created ProBioQAV. Airlines must cut domestic-flight emissions by 1% from 2027, rising to 10% by 2037.

   Why it matters: It is Latin America's first legal SAF target, set per airline rather than per fuel supplier.

3. Dec 2025

   Salvador supplies SAF for regular flights

   Achieved

   Salvador Bahia Airport (VINCI Airports) became the first Brazilian airport to supply SAF, a 10% blend of imported fuel, for regular flights.

   Why it matters: It shows the supply chain working at small scale before the target starts.

4. 12 Aug 2026 (published 13 Aug)

   Decree sets out how it works

   Latest

   Decree 13.094/2026 created blending agents, CS-SAF tradable certificates ("book and claim"), limits on other instruments, and an 18 Dec 2026 deadline for agency rules.

   Why it matters: Fuel producers and airlines now know the mechanism, though not the detailed rules.

Milestone path

1. 3 Sep 2026 (closed 1 Oct)

   ANAC opens monitoring consultation

   Achieved

   ANAC opened Public Consultation 12/2026 on monitoring and reporting for operators emitting at least 10,000 t CO₂ a year. The draft includes a fine reported at R$750 per tonne not reduced.

   Why it matters: ANAC estimates about 12 operators will be obligated in 2027.

2. 24 Sep 2026

   Petrobras delays dedicated SAF plants

   Achieved

   Petrobras pushed its three dedicated SAF plants back a year, to 2030–31. Until then it supplies co-processed SAF from Reduc.

   Why it matters: Home supply stays thin in the first years of the target, so imports and certificates matter.

3. 4 Nov 2026 (board approval 29 Oct; comments to 13 Nov)

   ANP opens certification consultation

   Latest

   ANP opened public consultation on SAF certification, carbon-intensity calculation, traceability and CS-SAF trading, with comments open until 13 Nov 2026.

   Why it matters: These rules decide which fuels and feedstocks earn certificates.

4. 18 Nov 2026

   ANP public hearing

   Planned

   ANP holds a public hearing on its ProBioQAV rules.

   What to watch: industry push to align with ICAO CORSIA, and whether the CS-SAF platform will be ready.

Milestone path

1. 18 Dec 2026 (decree deadline)

   Final ANP and ANAC rules due

   Planned

   ANP and ANAC must issue their final implementing rules.

   What to watch: ANAC's final resolution, planned for October but not found by 9 Nov 2026.

2. 1 Jan 2027

   First 1% reduction target applies

   Planned

   Domestic airlines must start cutting emissions by 1% using SAF or allowed alternatives.

   What to watch: airlines have raised a possible postponement; no change announced as of 9 Nov 2026.

3. 31 Jan 2028 (certificates); 31 Mar 2028 (reports)

   First compliance year closes

   Planned

   Airlines retire CS-SAF certificates for 2027 by 31 January 2028 and file emissions reports by 31 March 2028.

   What to watch: The first compliance check shows whether airlines met the target or face fines.

4. 1 Jan 2037

   Target reaches 10%

   Planned

   The emissions-reduction target rises step by step to 10%.

   What to watch: whether Brazilian plants (Petrobras, Acelen and others) are built in time to meet demand.