sou · GRB360d1 · 2004-01-01 00:00:00 — Arbetsuppgiften att utfärda utsläppsrätter till verksamhets- utövare bör antingen ges till eller till den organisation som senare kommer att ges i uppgift att föra register över aktörernas innehav av utsläppsrätter och av för- ändringar av detsamma. och bör ges i uppdrag att gemensamt ta fram lämplig information och att sedan sprida denna till verksamhetsutövare, allmänhet m.fl. bör ges i uppdrag att utveckla lämpliga för- faranden för kontroll, övervakning, annullering av rätter m.m. som skall ske 2007. I uppdraget bör även ingå att överväga eventuella organisatoriska frågor som kan aktualiseras. Arbetet bör ske i samråd med och . Med en grov uppskattning bedöms arbetsuppgifterna inför den första perioden 2007, vilka främst kommer att utföras , komma att kosta ca . Den löpande verksamheten 2007 torde bli klart mindre kostnadskrävande, uppskattningsvis kan årskostnaden komma att uppgå till högst ca . Åtminstone delar av finansierings- behovet bör kunna täckas med avgifter. Arbetet 2007 bör utvärderas före nästa period, varvid bl.a. organisationsfrågan på nytt bör övervägas. I betänkandets andra del Bakgrund redovisas en detaljerad bak- grund till de förslag som redovisats i betänkandets första del Överväganden och förslag. Stabilising the concentrations of greenhouse gases (GHG) in the atmosphere is an essential challenge facing the international community in the 21st century. This stabilisation must be achieved while a higher living standard is simultaneously striven for. With present-day technology, this will be extremely difficult. To reduce the risk of future climate changes in the long term, global emissions must decrease. By the year 2050, according to the Riksdag, total annual emissions must be lower than 4.5 of carbon dioxide (CO2) equivalents per capita. A further decrease must then ensue. Limited impact on the climate is attainable only through an climate policy that is integrated throughout society. Achieving this objective requires extensive international collaboration and efforts in every country. Trading in emission allowances (emissions trading) is a key, cost-effective policy instrument for helping to bring about the objective of stabilising and reducing GHG concentrations in the atmosphere. An emission allowance entitles the holder to emit one tonne of CO2 equivalents. The basis for emissions trading is the setting of a cap on total emissions (the maximum quantity of allowances) for installations in a particular region included in the scheme over, for example, one year. Nevertheless, this does not involve imposing a cap on emissions from individual installations. Rather, a certain number of transferable emission allowances are allocated to each installation covered by the scheme. In aggregate, these allowances correspond to the cap on total emissions in the region concerned. A requirement is then imposed whereby the plants included in the trading scheme at a certain specific date should be able to show possession of trading allowances corresponding to each installations actual emissions. Operators with high costs of reducing emissions will purchase emission allowances, which are offered on a market by operators whose costs of reducing emissions are low. In its 2002 resolution on climate policy (Govt. 2001/02:55, Report 2001/02MJU10, Govt. 2001/02:163), the Riksdag laid down that Swedish emissions of the six GHG, averaged over the period 2008 12, should be at least 4 per cent lower than the countrys emissions in 1990. The emission figures must be corrected for a normal year, to ensure comparability between years with respect to variation in temperature and precipitation. Purpose of the interim report In October 2001, Commission published a draft directive of Parliament and of the Council establishing a scheme for trading in GHG emission allowances within the agreed, in , on a Common Position2 regarding the content of this directive, on which Parliament is expected to decide in summer 2003. The presentation in this report is based on the Councils Common Position. Under the draft directive, an EU-wide scheme for trading in GHG emission allowances (the Community scheme) is to be introduced from 1 January 2005. Under this proposal, the Community scheme relates to emissions of carbon dioxide only. This report deals primarily with the initial period of the scheme, from 2005 to 2007, during which emission allowances should according to the draft directive be allocated free of charge. Other key features of the directive include the stipulation that each should devise a national allocation plan to form the basis for allocating transferable emission allowances, and the requirement that this national allocation plan should meet the criteria contained in of the directive. Under the draft directive, the Community scheme should initially comprise installations used for energy activities, including combustion installations with a rated thermal output exceeding 1Proposal for a Directive of Parliament and of the Council establishing a scheme for greenhouse gas emission allowance trading within the Community and amending Council Directive 96/61/EC COM(2001) 581 final. 2Common Position adopted by the Council with a view to the adoption of a Directive of Parliament and of the Council establishing a scheme for greenhouse gas emission allowance trading within the Community and amending Council Directive 96/61/EC (13 2003) and the Corrigendum (17 2003). 20 MW in power and heat production; production and processing of ferrous metals; industry; and other activities, including production of pulp, paper and board. In , the trading sector will therefore comprise some 300 installations. In this report, the Commission on a system and regulatory framework for the flexible mechanisms of the Kyoto Protocol3 (FlexMex2 Commission) presents its views on two aspects in particular. One is the principles on which the allocation of emission allowances is intended to be based. The other is how the national allocation plan should be drawn up, for part, in the run-up to the scheme of emissions trading that is to be introduced throughout the EU from 1 January 2005. The FlexMex2 Commission wishes to point out that it still remains for Parliament to decide on the proposed Council directive, and that Commissions forth- coming clarification of the directive may come to alter the basis of the following proposals submitted by the FlexMex2 Commission. The FlexMex2 Commissions proposals –– allocation principles With respect to the principles for allocating emission allowances in conjunction with the introduction of a European Community emissions-trading scheme for the period 2005 07, the FlexMex2 Commissions proposals may be summarised in the following points. It is the quantity of emission allowances allocated to the Swedish trading sector that should be compared with the national targets to be attained in 2008 12. The Riksdag will, as a supplement to its 2004 checkpoint, consider a target that includes the flexible mechanisms. The FlexMex2 Commission wishes to emphasise that, although the figures on which the FlexMex2 Commissions standpoint is based have undergone quality according to a special procedure, they are nonetheless subject to marked uncertainty. This assessment also applies to the forecasts that have been used. 3 The Kyoto Protocol to the United Nations Framework Convention on Climate Change, an international agreement by 159 nations to reduce worldwide GHG emissions, was adopted at the Third Conference of Parties (COP) in Kyoto, , on . The EU ratified the Kyoto Protocol on 31 2002. The FlexMex2 Commissions assessment is that the Swedish trading sectors aggregate emission-allowance requirement may amount to some 24 million (Mton) of CO2 annually in 2005 07. This assessment rests on the following calculations: Historical emissions related to New entrants, including Forecast increase in emissions related to non-replaceable raw materials The final figure, representing the Swedish trading sectors aggregate emission allowances, will be set by the Government after the FlexMex2 Commissions interim report has been circulated for official comment prior to the Government in question in . In this context, the Government should balance the trading sectors scope against other sectors needs. The Riksdags decision in response to the Government of will form the basis of the allocation plan that the Government is to submit to the Commission not later than 31 2004. Allocation to sectors and installations should be based on historical activities. CO2 emissions in each sector are divided into two categories: first, emissions from raw materials that cannot be replaced if the product is to be manufactured, and, secondly, emissions from fossil fuels that are replaceable and are used for the primary purpose of producing power, heat or transport energy. Average emissions during the four-year period 1998 2001 will serve as the basis for allocation of the total number of emission In cases where exceptional circumstances (e.g. breakdowns or large-scale conversions) prevailed for an 4 Owing to the uncertainty associated with the historical statistical data, the trading sectors emission-allowance requirement should be raised by an additional 2 Mton CO2 a year, to take into account the risk of available data underestimating actual emission rates in the historical data on which the FlexMex2 Commissions assessment is based. The addition represents half of the statistically calculated potential underestimate. installation for a year during this period, the operator should be eligible to apply for the allocation of emission allowances on the basis of its average emissions over a three-year period instead. The option for a to apply, under Article 27, for temporary exemption for certain installations (opt-out, as it is called) should not be exercised. The option for the to engage in trading in emission allowances for installations below the capacity limits defined in of the directive should not be exercised. Further measures are required to increase requirements concerning the transport sectors contribution to a limited climate impact. An overall strategy should be drawn up to make the transport system more efficient, bring about the introduction of more fuel-efficient vehicles and clarify how renewable forms of energy are to be introduced in various sectors. The FlexMex2 Commission points to the need, at this stage, for analysing the scope for and consequences of including transport in the trading sector during 2008 12, the first Commitment Period of the Kyoto Protocol, for the purpose of restricting GHG emissions. In addition, the FlexMex2 Commission recommends that activities not covered by the trading directive should be permitted, during the 2008 12 Commitment Period, to join the trading scheme. This would enable them to meet the stipulations that, under point 51.1 of the Communitys environmental guidelines5, are necessary to obtain a reduction in, or exemption from, taxes introduced for environmental reasons. New entrants will be taken into consideration when the total number of emission allowances available for trading is set. These new entrants include both activities that have received their first permits for GHG emissions and those that have renewed their permits for GHG emissions after the national allocation plan has been reported to Commission. The FlexMex2 Commission proposes that the increase forecast, between 2001 and 2005, in emissions related to non-replaceable raw materials should be entered in the national allocation plan under the heading New entrants that 5 Community guidelines on State aid for environmental protection (2001/C 37/03). have renewed their permits and allocated annually during the period 2005 07. The FlexMex2 Commission will reconsider the regulatory system for new entrants when further clarification has been obtained from the Commission. action (i.e. measures taken previously) is taken into account partly through the use of average emission figures in the years 1998 2001 in the allocation. Exemption from participation in the trading scheme during 2005 07 should not be granted with reference to long-term agreements. The FlexMex2 Commission finds that, under point 51.1 of the Communitys environmental guidelines, whether operators participate in the trading scheme or have long-term agreements with the state makes no difference in terms of grounds for obtaining exemption from, or a reduction in, taxes introduced for environmental reasons. Decisions on the emission allowances granted for the separate years in the period 2005 2007 are to be taken not later than 1 October 2004. The statistical quality that has already begun should be developed further and extended to comprise other sectors that are contributing to climate change. Collaboration in forecasting between , in particular, should also be developed and reinforced. A strategic plan for this collaboration should be promptly drawn up. An overall impact analysis and coordination of the management of existing and proposed policy instruments in the environ- mental sector are lacking at present. The FlexMex2 Com- mission therefore proposes that the Government investigate the scope and forms for bringing about this kind of necessary coordination. The FlexMex2 Commissions proposals emissions trading, carbon tax and financing In its report, the FlexMex2 Commission has considered three options with respect to the matter of whether carbon tax should be retained (possibly including certain limitation rules) or abolished in the sectors that will be covered by emissions trading. The FlexMex2 Commissions assessment of this matter is as follows: SNEDs6 proposal for a new system of energy taxation has not yet been circulated for official comments. Some investigative work remains to be done to clarify the practical scope for implementing an alternative in which carbon tax, including certain limitation rules, is retained. The FlexMex2 Commission therefore does not wish, in this situation, to recommend one of the options surveyed in its report. Instead, it proposes that the question of the role of carbon tax in the future scheme of emissions trading be raised for further elucidation in the FlexMex2 Commissions continued investigative work. Accordingly, greater clarity should be obtained in the matter of the requirements for introduction of SNEDs proposals for a new energy-tax system. The FlexMex2 Commission considers that proposals should be financed primarily within the system of energy and environmental taxes. The FlexMex2 Commissions proposals organisational issues The proposals put forward by the FlexMex2 Commission may be summarised in the following points: The scheme of emissions trading, with its market-based design, differs from the regulatory system of the Swedish Environmental Code. There may therefore be reasons to allow both systems to function separately to bring about an efficient procedure and, in view of this dual-system functioning, set up a new public agency to administer emissions trading. However, the preparatory period between now and the initiation of the trading scheme on 1 January 2005 is brief. For practical reasons, most of the tasks to be performed before and during the period 2005 07 will have to be promptly assigned to existing agencies at central level, especially the and the . 6 Svåra skatter! (), a report from , SOU 2003:38. Nonetheless, to create a more independent decision-making process for emissions trading, an autonomous, small agency with overall responsibility for these issues should be set up. The Swedish Government should assign the FlexMex2 Commission, in cooperation with the , the (), to compile additional documentation for the continued drafting of the allocation plan. The requisite legislative proposals should be drawn up by the FlexMex2 Commission. The assignment of issuing, as the authorised public agency concerned, permits for operators to conduct activities after 1 January 2005 that will yield CO2 emissions covered by the trading directive should be given either to (the utility that owns and operates national electricity grid) or to the county administrative boards. The Environ- mental should be promptly assigned to develop regulations, criteria and systems for the permit-issuing procedure. A decision on allocation of emission allowances should be taken by the small, autonomous agency whose is proposed by the FlexMex2 Commission. should be charged with receiving and preparing applications for allocation of emission allowances and, in consultation with the and (), submit draft decisions. Permit and allocation decisions should be subject to appeal. Appeal against other decisions should normally also be permitted. The task of issuing emission allowances to operators should be entrusted either to the or to the organisation that will later be charged with a register of the emission allowances held by these operators, and of changes in the same. and the should be commissioned to jointly draft and publish suitable information material, which should then be disseminated to operators, the public, etc. should be assigned to develop appropriate procedures for inspection, monitoring, cancellation of allowances, etc to take place during 2005 07. This assignment should also include considering any organisational issues that may arise. The work should take place in consultation with the FlexMex2 Commission and the . A rough estimate is that the tasks involved in the run-up to the initial period, 2005 07, which will mainly be performed during the year 2004, will cost some 20 million. Activities in the years 2005 07 should be considerably less costly: the annual expense may amount to an estimated million at most. In part, at least, it should be possible to meet the financing requirement by means of charges. Work in 2005 07 should be evaluated in good time before the next period, and this evaluation should include reconsideration of the organisational issue. Part two of the report, entitled Background, provides a detailed account of the background to the proposals reported in part one, Considerations and proposals. 1Förslag till principer för att fördela utsläppsrätter i samband med införandet av ett europeiskt handelssystem perioden 2007 Med detta betänkande redovisar framför allt sin syn på de principer som skall ligga till grund för fördel- ningen av utsläppsrätter och hur den nationella fördelningsplanen bör utformas för svensk del inför det EU-omfattande system för handel med utsläppsrätter som skall införas från . Delegationen gör det mot bakgrund av att fattat beslut om att halten av de sex växthusgaserna tillsammans skall stabiliseras i atmosfären.1 För att nå detta mål erfordras ett omfattande inter- nationellt samarbete och insatser i alla länder. För att på lång sikt begränsa risken för framtida klimatföränd- ringar måste de globala utsläppen minska. bör enligt utsläppen för sammantaget vara lägre än koldioxidekvivalenter och invånare för att därefter minska ytterligare. En begränsad klimatpåverkan skall uppnås genom en aktiv klimatpolitik som integreras i hela samhället. Handel med utsläppsrätter är ett viktigt styrmedel för att verka i riktning mot målen. publicerade kommissionen ett förslag till Europa- parlamentets och rådets direktiv om ett system för handel med utsläppsrätter för växthusgaser inom gemenskapen.2 1Halten, räknat som koldioxidekvivalenter, av de sex växthusgaserna skall tillsammans sta- biliseras på en nivå som är lägre än 550 ppm i atmosfären. 2Förslag till och Rådets direktiv om ett system för handel med utsläppsrätter för växthusgas inom gemenskapen och om ändring av rådets direktiv /61/EG (KOM(2001) 581 slutlig). Förslag till principer för att fördela utsläppsrätter enades om en gemensam ståndpunkt3 angående direktivets innehåll, som förväntas ta ställning . Framställningen i detta betänkande baseras på rådets gemensamma ståndpunkt, som bl.a. innebär att: medlemsstaten skall utveckla en nationell fördelningsplan som skall utgöra basen för tilldelningen av överlåtbara utsläpps- rätter. den nationella fördelningsplanen skall uppfylla de kriterier som framgår av bilaga III i direktivet. tilldelningen av utsläppsrätter skall vara gratis för perioden 2007. Delegationen vill poängtera att direktivet ännu inte är slutligt fast- ställt och att kommissionens kommande förtydliganden av direk- tivet kan komma att ändra förutsättningarna för de förslag som delegationen lämnar i det följande. Sammanfattning av delegationens förslag Delegationens förslag kan sammanfattas i följande punkter: Det är den tilldelade mängden utsläppsrätter till den handlande sektorn som skall avräknas mot det nationella mål, som skall uppnås för perioden 2012. skall vid kontroll- stationen , som komplement, överväga ett mål som innefattar de flexibla mekanismerna.4 Delegationen vill understryka att trots att den statistik som ligger till grund för delegationens ställningstagande kvalitets- säkrats i särskild ordning, så är den ändå behäftad med stor osäkerhet. Detta omdöme gäller även de prognoser som an- vänts. 3Gemensam ståndpunkt antagen av rådet inför antagandet av och rådets direktiv om ett system för handel med utsläppsrätter för växthusgaser inom gemenskapen och om ändring av rådets direktiv /61/EG () samt Corrigendum (). I den fortsatta framställningen benämns direktivförslaget ofta handelsdirektivet. 4Att en sådan kontrollstation skall hållas framgår av den svenska klimatstrategi som riks- dagen antog (prop. 2001/02:55, bet. 2001/02MJU10, rskr. 2001/02:163). Det nationella målet om att minska utsläppen av växthusgaser med skall enligt beslut uppnås utan kompensation för upptag i kolsänkor eller med flexibla meka- nismer. Förslag till principer för att fördela utsläppsrätter Delegationen gör bedömningen att den handlande sektorns behov av utsläppsrätter kan uppgå till cirka 24 Mton5 CO2 2007. Bedömningen baseras på följande Nya deltagare, varav Prognos ökning av icke-utbytbara Den slutliga siffra som skall utgöra den handlande sektorns totala antal utsläppsrätter kommer att fastställas av regeringen efter remissbehandling av delegationens delbetänkande inför propositionen i fråga . I det sammanhanget bör regeringen göra en avvägning mellan den handlande sek- torns utrymme och andra sektorers behov. beslut mot bakgrund av regeringens proposition skall utgöra grunden för den fördelningsplan som regeringen skall inlämna till kommissionen . Fördelning till sektorer respektive anläggningar skall baseras på historiska aktiviteter.7 Koldioxidutsläppen i varje sektor delas upp i utsläpp från råvaror, som fram inte är utbytbara om man vill tillverka produkten och utsläpp från fossila bränslen, som är 5Delegationen föreslår i avsnitt 1.5.3 att torv skall behandlas på ett med biobränsle likvärdigt sätt. Emissionsfaktorn för biomassa skall enligt handelsdirektivets bilaga IV vara noll. Om kommissionen gör en annan bedömning av torvens hantering än den som delegationen föreslagit kan den handlande sektorns behov av utsläppsrätter bli cirka 25 Mton CO2 . Det innebär att de historiska bränslerelaterade utsläppen i energisektorn ökar med 0,9 Mton CO2 . 6På grund av den osäkerhet som är förknippad med det historiska statistiska underlaget innehåller den handlande sektorns totala behov av utsläppsrätter ett tillägg på 2 Mton CO2 för att ta hänsyn till risken att tillgängliga data underskattar den faktiska utsläppsnivån i de historiska data som ligger till grund för delegationens bedömning. Tillägget repre- senterar hälften av den statistiskt uppskattade möjliga underskattningen. 7Som framgår av kapitel 12 kan historiska emissionsvolymer, benchmarking och bästa till- gängliga teknik användas som historisk tilldelningsbas (s.k. grandfathering). Förslag till principer för att fördela utsläppsrätter