sou · GWB324 · 2008-03-05 00:00:00 — Det finns en potential för ytterligare åtgärder i industrier som inte ingår i EU:s utsläpps- handelssystem. MinskadU nedsättning av koldioxidskatten Nedsättningen av koldioxidskatten för industri utanför EU:s utsläppshandelssystem minskas så att skattenivån höjs /kg koldioxid. MiljöskattU för fluorerade växthusgaser En miljöskatt för fluorerade växthusgaser införs. Styrmedlen för energieffektivisering för industri utanför EU:s system för handel med utsläppsrätter behöver vidareutvecklas. Förslag från Energieffektiviseringsutred- ningen bör vara en utgångspunkt för detta. Styrmedel som främjar att det byggs energisnåla hus vid nybyggnation och att åtgärder för energieffektivisering genomförs vid renovering av hus är särskilt betydelsefulla. Styrmedlen för energieffektivisering inom sektorn behöver skärpas. Förslag från bör vara en utgångspunkt för detta. Beredningen vill särskilt framhålla vikten av att det nu i byggregler införs krav på energihushållning även vid ombyggnad, som reglerna för hushållning med energi vid nybyggnation behöver skärpas stegvis. Styrmedlen på avfallsområdet behöver utformas så att de i ännu högre grad stimulerar till minskade utsläpp av växthusgaser genom minskade avfallsmängder och ökad åter- . SärskildaU stöd till biogas från organiskt avfall Det finns på många orter en potential för ökad rötning av organiskt avfall. Bered- ningen föreslår därför att särskilda stöd bör avsättas till anläggningar för produk- tion, uppgradering och distribution av biogas från organiskt avfall (avsnitt 12.5 och 14.6). Jordbruket kommer sannolikt att spela en allt viktigare roll som bioenergiproducent. Vissa åtgärder kan vidtas inom jordbrukssektorn redan nu för att reducera utsläpp av växthusgaser, såväl inom växtodling som inom animalieproduktion. Mer kunskap om utsläppen i jordbrukssektorn och möjliga åtgärder behövs också. Förslaget från utredningen från jordbruket en växande resurs (SOU 2007:36) om ett begränsat investeringsbidrag för att utveckla biogasproduktion från stallgödsel och samrötning andra substrat, bör genomföras. MinskadU nedsättning av koldioxidskatten på eldningsolja och diesel för jord- och skogsbrukets arbetsmaskinerU Nedsättningen av koldioxidskatten på eldningsolja och diesel inom jordbruket och inom övriga areella näringar bör, på samma sätt som för industri utanför EU:s utsläppshandelsystem, minskas så att skattenivån höjs /kg kol- dioxid. Den höjning av skatten på diesel som beredningen föreslår bör, med hänsyn till jord- och skogsbrukets konkurrenssituation och risken för läckageeffekter, omfatta jord- och skogsbrukets arbetsmaskiner först . Utredning om jordbrukets klimatpåverkan och handlingsplan bör få i uppdrag att, i samarbete med andra berörda myndigheter, utreda kunskapsläget om jordbrukets klimatpåverkan och ta fram en handlingsplan för åtgärder mot minskade växthusgasutsläpp. E Insatser internationellt (kapitel 16) De industrialiserade länderna måste bidra kraftfullt till att utsläppen i utvecklings- länderna begränsas genom att överföra teknologi och finansiella resurser. Kyotoprotokollets projektbaserade mekanismer; Clean Development Mechanism, CDM och Joint Implementation, JI bidrar till tekniköverföring och kapacitetsuppbyggnad i de länder där projekten genomförs. Mekanismerna gör det möjligt att öka kostnads- effektiviteten i den svenska klimatpolitiken och därmed öka acceptansen för en totalt sett större reduktion av koldioxidutsläpp än annars. Mekanismerna behöver utvecklas för att möjliggöra fler projekt och för att säkerställa att minskningarna verkligen kommer till stånd. FortsattU satsning på de projektbaserade mekanismerna CDM och JI Det behövs en fortsatt statlig satsning på Clean Development Mechanism, CDM och Joint Implementation, JI, eftersom dessa mekanismer fortfarande befinner sig i en uppbyggnadsfas och eftersom det underlättar en strategisk styrning av projekten mot nyckeltekniker och geografiska områden. Klimatförändringarna kommer att ha negativa effekter för utvecklingen i de fattiga länderna och behovet av klimatrelaterat bistånd till fattiga länder kommer att öka. BiståndU för klimatanpassad utveckling Svenskt bistånd bör aktivt inriktas mot att hjälpa mottagarländerna att klimat- anpassa sin utveckling F Kolsänkorna (kapitel 17) Vid sidan av åtgärder för att minska utsläppen av växthusgaser kommer åtgärder för att minska avskogning i tropikerna, men även för att skydda och främja kolsänkor i vårt land, att vara betydelsefulla i den globala kampen för att hejda klimatförändringarna. Möjliga åtgärder och incitament för att skydda kollager och främja kolsänkor bör utredas. G Inkomster i de offentliga finanserna genom klimatpolitiken (kapitel 18) Den svenska klimatpolitiken kommer som följer att generera betydande finansiella värden. De består av överskottet av Kyotoenheter, inkomster av auktionering av utsläppsenheter inom EU ETS samt inkomster från av Beredningen föreslagna skatteändringar. Klimatpolitiken ska följa principen att hushåll, företag osv., som genom sitt age- rande släpper ut växthusgaser, ska betala för sina utsläpp (Polluter Pays Principle, PPP). De styrmedel som föreslås har som motiv att minska klimatpåverkan, inte att förstärka statskassan. kommer av allt att döma att få ett överskott av Kyotoenheter, eftersom våra utsläpp minskar mer än vad de internationella avtalen kräver. Detta överskott bör delvis säljas och delvis makuleras. I det fall överskottet säljs bör intäkterna använ- das till klimatrelaterade åtgärder i eller andra länder. Utsläppsminsk- ningarna från dessa åtgärder ska vara större än vad de sålda utsläppsrätterna motsvarar. 5Svenskt agerande i de internationella klimatförhandlingarna (kapitel 20) Beredningen bedömer att Klimatkonventionen och Kyotoproto- kollet är centrala utgångspunkter för framtida internationella klimatavtal. Nivåer för globala utsläppsminskningar bör läggs fast på såväl längre som kortare sikt. Utsläppen per capita bör konvergera. Bindande kvantitativa åtaganden bör omfatta så många länder som möjligt. De industrialiserade länderna bör minska sina utsläpp med jämfört med . Finansiella resurser och investeringar bör styras och mobiliseras för att stödja åtgärder för att minska utsläppen, för anpassnings- åtgärder och teknologisamarbete. Nya innovativa mekanismer och finansieringsformer behöver utvecklas som attraherar stora flöden av privat kapital till investeringar i ny teknologi. En ny klimatregim måste skydda tropiska skogar. Att utveckla och sprida kunskap internationellt om administrativa system som syftar till att sätta pris på koldioxidutsläpp, som koldioxidskatt och handel med utsläppsrätter, är också mycket viktigt. Nya finansieringsformer behöver utvecklas för att stödja anpassning. Svenskt internationella agerande bör särskilt inriktas på att ta initiativ till finansiering av stimulansåtgärder för teknisk utveckling och uppbyggnaden av globala instrument för teknik- överföring. ta ledningen och erbjuda snabbt växande ekonomier ett riktat samarbete inom områden som bostadsbyggande, transporter och elproduktion. Verka för att EU fortsatt intar en ledande roll i internationella förhandlingar. har en nyckelroll, fram till och med vårt ordförandeskap i EU , i de internationella förhandlingarna om en ny klimatregim efter 2012. Beredningen anser att det är nödvändigt att förstärka förhandlingsresurser inom klimatområdet och kompetens för att stödja proaktiva åtgärder i snabbt växande utvecklingsländer. 1 Remit, delimitations and supporting data was commissioned to undertake a broad review of Swedish climate policy as a basis for the 2008 Climate Strategy CheckPoint. In accordance with its terms of reference, the Committee has focused on drawing up proposals primarily in the following three areas: Climate policy targets for the short, medium and long term An action plan for achieving the 2020 emission target Swedish action in international climate negotiations has not specifically addressed issues arising in connection with adaptation and vulnerability as this fell within the remit of the Climate and Vulnerability Inquiry. Although the Committee regards energy efficiency enhancement as a vital action area, its energy efficiency enhancement proposals are based on the action plan by the Energy Efficiency Inquiry. A long-term energy policy is crucial to of achieving its climate policy goals. , which has accordingly addressed climate-related energy issues to a limited extent, considers that the Government should initiate a parliamentary discussion on long- term energy policy. As the Committees remit was broad and the time frame limited, its findings were based on background data and material that had either been compiled earlier and were not yet complete, or already existed. A key source for the Committees climate policy proposals was the report A Scientific Basis for Climate Policy, presented by in . The Councils conclusions were in turn based largely on scientific data compiled by the UN Intergovernmental Panel on Climate Change (IPCC). In the final stages of its inquiry, the Committee also had access to Commissions climate action and renewable energy package, presented in January 2008. Most of the proposals included in the action plan for achieving the 2020 emission target were based on the background report Developments in Swedish Climate Strategy. This was drawn up in 2007 by the () and the , ahead of the 2008 Climate Strategy CheckPoint. The report is accompanied by a number of reservations and special opinions. 2The challenge facing the world, the EU and The scientific data produced by is endorsed by the Committee. The earths surface has become warmer, and it is very likely that this has been caused by human activity. Global mean temperature has risen by just over 0.7˚C in the last 150 years, and is currently increasing by almost 0.2˚C every decade. Unless vigorous measures are taken now the global mean temperature will continue to rise, with serious consequences for ecosystems and human society. Climate change must be viewed in the broader context of the danger of approaching crisis in many ecosystems around the world. Climate change measures must be part of a larger transition to a society capable of safeguarding ecosystems and biological diversity and of achieving and sustaining a reduction in greenhouse gas (GHG) emissions. The challenge facing the world is twofold: we must limit GHG emissions and implement measures to deal with climate changes already taking place. takes the view that stringent, far-reaching restrictions on GHG emissions will be needed if the risk of harmful climate impact is to be reduced. It therefore recommends that the EU and take early action on the basis of the long- term aim, namely halving GHG emissions by 2050 and reducing them to zero by 2100. The countries of the world differ widely in their ability to deal with climate change. Climate work must continue to be guided by a fundamental principle enshrined in the UN Climate Convention, namely common but differentiated responsibility. the worlds industrialised countries must take the lead in efforts to reduce GHG emissions, particularly as they have historically accounted for the great bulk of these emissions. These countries must also contribute positively by transferring technology and financial resources to the developing world. It is important that climate-related measures introduced in developing countries are integrated into national strategies for combating poverty and promoting economic and social development. The EU must continue to maintain a proactive role in international climate cooperation. The Committee considers that should vigorously support the joint proactive role in global climate negotiations played by the EU member countries. should also seek to ensure that the EU, as a part of the rich world, assume its share of the responsibility. While the Committee welcomes the EU negotiating plan aimed at securing mutual undertakings by the EU and other industrialised countries, it regrets that the EUs conditional target of a 30 per cent reduction in GHG emissions has not been a governing consideration in Commissions climate action and renewable energy package of January 2008. In the Committees opinion should press for an EU target aimed at a 30 per cent reduction by 2020. , along with other countries, has a responsibility to meet this common global challenge. We can do so through participation in international cooperation, by taking proactive positions in the EU and by adopting and implementing a long- term, sustainable national climate policy. must take the lead in climate work by setting ambitious targets, adopting vigorous measures and implementing effective policy instruments. We must also take steps to strengthen research and development in key strategic areas. Conditions in are favourable. We live in a sparsely populated country with abundant natural resources. Combating climate change is compatible with economic growth that can tap into new markets and create job opportunities. has already demonstrated this. Our of pushing through and exporting effective climate solutions are very good. has numerous leading enterprises in key industry sectors, from power transmission to construction and transport. Many of these companies have considerable expertise in developing low-input, energy-efficient system solutions. potential for continued development of renewable energy sources, such as bio-energy production, bio-based combined heat and power production, and wind power. 3 Proposed climate policy targets (The proposal, presented in full in Chapter 10, is based on the proposals set out in Chapters 7, 8 and 9). Climate change poses one of the greatest challenges of our time. The problem is global; the worlds climate is impacted regardless of where on the planet emissions take place. The international community must act to reduce global GHG emissions by more than 50 per cent by 2050 if levels are to be close to zero by the end of the century. We can then gradually stabilise atmospheric GHG concentrations so that the global mean temperature does not rise more than 2˚C above pre-industrial levels. This will enable us to substantially reduce the risk of harmful climate impact and fulfil our responsibility to future generations, which is to ensure that they do not suffer the consequences of our own lifestyles and actions. must assume its share of this global responsibility by setting ambitious climate policy goals. In the Committees view, the environmental quality objective should be based, as previously, on the need to limit climate changes and their impacts as defined in the UN Climate Convention. further considers that the objective should include a global temperature target, a global GHG concentration target and short-, medium- and long-term emission targets for . The temperature target, which must be the overriding objective, is based on an assessment by temperature target (see Chapter 8). The Committee considers that the overriding objective must be to limit the rise in global mean temperature to a maximum of 2˚C above pre- industrial levels, and that must bear its share of the global responsibility for ensuring that the increase does not exceed that figure. The concentration target is derived from the temperature target on the basis of current knowledge about the highest level at which the concentration of atmospheric greenhouse gases should be stabilised over the long term, to meet thwe 2-degree target (see Chapter 8). If we are to establish concrete climate policy aims and specify real emission reduction needs, it is essential in the Committees opinion that we adopt a concentration target that the 2-degree target. Based on current knowledge, the concentration target should, in the Committees view, be set at 400 ppmv CO2B Be. With regard to the present Swedish short-term emission target for 2008–2012, the Committee has determined that the target will be met and that no change is therefore needed. (see Chapter 7). As regards the 2020 target, must continue to push for large-scale reductions in global GHG emissions and for an EU target of 30 per cent reduction on 1990 emission levels by 2020. This target has been set by heads of state and government on the condition that other industrialised countries make comparable reductions and that the more economically advanced developing countries contribute in reasonable proportion. must set a national target that corresponds to our contribution to a global, comprehensive climate agreement. The target must reflect commitment within the framework of a 30 per cent emission reduction within the EU. According to the Committees calculations, this corresponds to an emission reduction of around 35 per cent and implementation of the Committees entire actionplan would reduce emissions by approximately a further 3 percentage points. However, the assumptions underlying this calculation are still uncertain and should be reviewed in the course of preparatory work ahead of the Governments climate bill later in the year. When the EUs internal decisions have been made and the global climate negotiations are completed, the national target should be set definitively at a climate strategy checkpoint. Regular checkpoints should be established thereafter. The Committee considers that the 2020 target can be met on the basis of the measures and policy instruments it proposes in the action plan, which is described in Section 4 below (see also Chapters 11–19). long-term reduction targets for 2050 and beyond are based on the overarching, long-term global challenge, share of the global responsibility for reducing GHG emissions, and an assessment that the ensuing costs are acceptable (see Chapter 8). By 2050, GHG emission levels for should be 75–90 per cent lower than levels for 1990. By the end of the century, GHG emissions in should be close to zero. In the Committees view, it is essential that the environmental quality objective make clear that climate change is a global phenomenon and that is responsible, along with other countries, for ensuring that the global target is met. International cooperation and measures and initiatives adopted and implemented in all countries are crucial to achieving the national environmental quality objective in its entirety. further considers that the 2020 target will need to be reviewed in the light of ongoing changes in the surrounding world affecting target formulation, estimates and future outcomes. The Committees proposals regarding the national environmental quality objective Reduced Climate Impact According to the UN Framework Convention on Climate Change (UNFCC), atmospheric GHG concentrations must be stabilised at a level where human impacts on the climate system are no longer dangerous. This objective must be achieved in such a way and at such a rate that biological diversity is preserved, food production is assured and other objectives of sustainable development are not jeopardised. , along with other countries, has a responsibility to ensure that the global target is met. Temperature target (new) should assume its share of the global responsibility for ensuring that the global mean temperature does not increase by more than 2˚C on pre-industrial levels. Concentration target derived from the temperature target (changed) Swedish climate policy should contribute to the long-term stabilisation of GHG concentrations at a maximum level of 400 parts per million carbon dioxide equivalents (ppmv CO2B e)B . Emission target for 2008–2012 (unchanged) Mean Swedish GHG emission levels for the period 2008–2012 must be 4 per cent lower than levels in 1990. Emissions are measured in carbon dioxide equivalents (COB2e)B and include six greenhouse gases, in accordance with Kyoto Protocol and IPCC definitions. The interim target is to be met without compensation for carbon sink sequestration or flexible mechanisms. Emission target for 2020 (new) must continue to push for large-scale reductions in global GHG emissions and for a 2020 EU reduction target of 30 per cent on 1990 emission levels. This target has been set by heads of state and government on the condition that other industrialised countries make comparable reductions and that the more economically advanced developing countries contribute in reasonable proportion. must set a national target that corresponds to our contribution to a global, comprehensive climate agreement. The target must reflect commitment within the framework of a 30 per cent emission reduction in the EU. According to the Committees calculations, this corresponds to an emission reduction of around 35 per cent and implementation of the Com- mittees entire actionplan would reduce emissions by approxi- a further 3 percentage points. However, the assumptions underlying this calculation are still uncertain and should be reviewed in the course of preparatory work ahead of the Governments climate bill later in the year. When the EUs internal decisions have been made and the global climate negotiations are completed, the national target should be set definitively at a climate strategy checkpoint. The target should include the use of mechanisms similar to the current project-based mechanisms provided for under the Kyoto Protocol. should actively seek to expand the scope for using flexible mechanisms of this kind in achieving the 30 per cent reduction, via measures within the EU and measures financed by EU countries outside the EU. For its part, should make use of the tools provided for within the EU and in international agreements. Compensation for Swedish carbon sinks is not included. Compensation for the purchase of Assigned Amount Units (AAUs) provided for under the Kyoto Protocol is not included at the present time. Assessment of target achievement is to be based on the amount of emission allowances assigned and auctioned, for activities covered by Scheme (EU ETS) rather than on the actual volume of emissions in . The share of Swedish emission reductions achieved within the EU ETS is entirely governed by negotiations and decisions at EU level. Reports on achievement of national target must therefore distinguish between those activities which are covered by the EU ETS and those which are not. The Government should be required to report on Swedish GHG emissions in an annual written communication to the Riksdag (the Swedish Parliament). This should include a statement of total and sector-by-sector emissions, an assessment of the of achieving the target by 2020 and, where necessary, proposed measures. An in-depth review should be undertaken every fourth year. Emission target for 2050 (changed) By 2050, Swedish GHG emission levels should be at least 75–90 percent lower than those in 1990. Emission target for the end of the 21st century (changed) By the end of this century, emissions of GHG in should be close to zero. The 2020 target will need to be reviewed in the light of ongoing changes in the surrounding world affecting target formulation, estimates and future outcomes. 4Proposals for an action plan to meet the 2020 target has drawn up a number of proposals for inclusion in the action plan. These are presented below in summary form. The Committees deliberations and assessments underlying the proposals are discussed in Chapters 11–19. , along with other countries, is responsible for ensuring that the global target is achieved, i.e. that atmospheric GHG concentrations are stabilised at a level which will prevent dangerous anthropogenic interference with the climate system. Achievement of this objective is crucially dependent on international cooperation and action taken by other countries. At the same time, must make significant efforts inside the country if it is to bear its share of responsibility. By the end of this century, Swedish GHG emissions should be close to zero.