# C_2014415EN.01001401.xml

| 20.11.2014 | EN | Official Journal of the European Union | C 415/14 |
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20.11.2014

EN

Official Journal of the European Union

C 415/14

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Opinion of the Committee of the Regions — A policy framework for climate and energy in the period from 2020 to 2030

2014/C 415/04

| Rapporteur | Annabelle Jaeger (FR/PES)
  Member of Provence-Alpes-Côte d’Azur Regional Council |
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| Reference document | Referral letter by the European Commission of 12 February 2014 |

Rapporteur

Rapporteur

Annabelle Jaeger (FR/PES)

Member of Provence-Alpes-Côte d’Azur Regional Council

Reference document

Reference document

Referral letter by the European Commission of 12 February 2014

I.   POLICY RECOMMENDATIONS

POLICY RECOMMENDATIONS

THE COMMITTEE OF THE REGIONS

at a time when the latest IPCC scientific data is warning us that global warming and its effects are worsening, and following on from the previous Committee of the Regions report (CDR 5810/2013),

| 1. | calls on the EU to opt for a winning trio of binding climate and energy goals for 2030:






  — | a 50 % reduction in greenhouse gas emissions compared with 1990; |
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1.

calls on the EU to opt for a winning trio of binding climate and energy goals for 2030:

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a 50 % reduction in greenhouse gas emissions compared with 1990;

| — | a 40 % share of renewable energies, expressed as national targets; |
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a 40 % share of renewable energies, expressed as national targets;

| — | a 40 % reduction in primary energy consumption compared with 2005 achieved through efficiency gains, also expressed as national targets. |
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a 40 % reduction in primary energy consumption compared with 2005 achieved through efficiency gains, also expressed as national targets.

These three goals are needed to give us a chance of preventing a catastrophic temperature rise of more than 2 oC and of reaching the EU’s long term objective (an 80-95 % reduction in greenhouse gas emissions);

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| 2. | refers to the European Council Conclusions of 20/21 March 2014, in which the heads of state and government agreed to reach a decision on a new policy framework by October 2014. The CoR expects this decision to set out ambitious goals; is concerned in this context at the lack of ambition in the proposals so far made by the European Commission: which are too weak in relation to the percentages proposed, in terms of the obligation to meet them at EU level only, and with regard to the proposed governance structure; |
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2.

refers to the European Council Conclusions of 20/21 March 2014, in which the heads of state and government agreed to reach a decision on a new policy framework by October 2014. The CoR expects this decision to set out ambitious goals; is concerned in this context at the lack of ambition in the proposals so far made by the European Commission: which are too weak in relation to the percentages proposed, in terms of the obligation to meet them at EU level only, and with regard to the proposed governance structure;

| 3. | believes that these three goals are technically realistic and would be beneficial for the European economy; they are a pre-condition for a long-term structural approach that would give Europe a sustainable, safe and secure energy future; |
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3.

believes that these three goals are technically realistic and would be beneficial for the European economy; they are a pre-condition for a long-term structural approach that would give Europe a sustainable, safe and secure energy future;

| 4. | adds that the EU should set itself an almost zero net emissions target by the middle of the century, but in such a way as not to further exacerbate energy poverty. At the same time as continuously reducing greenhouse gas emissions, further efforts are needed on research and development enabling the removal of carbon dioxide from the atmosphere, with a greater role for natural carbon sequestration; |
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4.

adds that the EU should set itself an almost zero net emissions target by the middle of the century, but in such a way as not to further exacerbate energy poverty. At the same time as continuously reducing greenhouse gas emissions, further efforts are needed on research and development enabling the removal of carbon dioxide from the atmosphere, with a greater role for natural carbon sequestration;

| 5. | notes that, bolstered by these stated objectives, the EU would then be ready to negotiate a global climate agreement for the 21st Conference of the Parties (COP21) to the United Nations Framework Convention on Climate Change (UNFCCC) to be held in Paris in November-December 2015, particularly by announcing its intentions of making ‘national contributions’ under the UNFCCC as soon as possible and by the end of March 2015 at the latest; |
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5.

notes that, bolstered by these stated objectives, the EU would then be ready to negotiate a global climate agreement for the 21st Conference of the Parties (COP21) to the United Nations Framework Convention on Climate Change (UNFCCC) to be held in Paris in November-December 2015, particularly by announcing its intentions of making ‘national contributions’ under the UNFCCC as soon as possible and by the end of March 2015 at the latest;

A.   
  Governance

Governance

| 6. | recommends that this proposed new energy governance framework builds on the lessons from the 2020 package, notably by setting binding targets at EU and national levels for which Member States would be liable; therefore believes that the proposed cooperative approach with targets set only at EU level will not provide the necessary incentives to reach such targets and achieve more ambitious results; |
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6.

recommends that this proposed new energy governance framework builds on the lessons from the 2020 package, notably by setting binding targets at EU and national levels for which Member States would be liable; therefore believes that the proposed cooperative approach with targets set only at EU level will not provide the necessary incentives to reach such targets and achieve more ambitious results;

| 7. | considers it absolutely necessary that the national targets aimed at increasing the share of renewables and reducing energy consumption should be made compulsory for each Member State and that countries should accordingly base their approach on regional and local strategies which would not only be more effective, but also in line with the principle of subsidiarity. This architecture should be reflected in the new energy governance framework; |
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7.

considers it absolutely necessary that the national targets aimed at increasing the share of renewables and reducing energy consumption should be made compulsory for each Member State and that countries should accordingly base their approach on regional and local strategies which would not only be more effective, but also in line with the principle of subsidiarity. This architecture should be reflected in the new energy governance framework;

| 8. | stresses that the new CAP can play a key role in reducing greenhouse gases and in promoting carbon sequestration in the agriculture, forestry and livestock sectors; |
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8.

stresses that the new CAP can play a key role in reducing greenhouse gases and in promoting carbon sequestration in the agriculture, forestry and livestock sectors;

| 9. | underlines the fundamental role of the local and regional levels in drafting and implementing policies on climate change, developing renewables and energy efficiency, but also stresses that their initiatives cannot be optimised without recognition in the form of a mandate and long-term funding; |
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9.

underlines the fundamental role of the local and regional levels in drafting and implementing policies on climate change, developing renewables and energy efficiency, but also stresses that their initiatives cannot be optimised without recognition in the form of a mandate and long-term funding;

| 10. | therefore calls on the Commission to recognise and make use of local and regional authorities for meeting the climate and energy challenges, to include them in the 2030 framework policy and involve them in a new energy governance in line with the principles of multi-level governance, which recognise the role of each level of government in producing effective public policies; |
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10.

therefore calls on the Commission to recognise and make use of local and regional authorities for meeting the climate and energy challenges, to include them in the 2030 framework policy and involve them in a new energy governance in line with the principles of multi-level governance, which recognise the role of each level of government in producing effective public policies;

| 11. | finally calls on local and regional authorities to rise even further to the climate challenge by setting their own ambitious targets for 2030 and taking forward initiatives together to prepare for the COP21 in December 2015 in Paris; this would closely reflect the COP19 decisions taken in Warsaw in November 2013 as regards recognition for local and regional authorities until a global agreement is reached; |
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11.

finally calls on local and regional authorities to rise even further to the climate challenge by setting their own ambitious targets for 2030 and taking forward initiatives together to prepare for the COP21 in December 2015 in Paris; this would closely reflect the COP19 decisions taken in Warsaw in November 2013 as regards recognition for local and regional authorities until a global agreement is reached;

B.   
  Three inseparable targets

Three inseparable targets

| 12. | stresses the fact that, whilst a GHG reduction target is essential to give a clear signal that would make it possible to internalise all the costs of pollution and thus bring down its level, it is equally necessary for this objective to be accompanied by targets on renewable energy and energy efficiency to ensure that the energy transition actually results in a low carbon economy that is secure, competitive and sustainable and has a synergistic effect on climate change; |
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12.

stresses the fact that, whilst a GHG reduction target is essential to give a clear signal that would make it possible to internalise all the costs of pollution and thus bring down its level, it is equally necessary for this objective to be accompanied by targets on renewable energy and energy efficiency to ensure that the energy transition actually results in a low carbon economy that is secure, competitive and sustainable and has a synergistic effect on climate change;

| 13. | emphasises the need for binding objectives that help channel investments into developing clean technologies. In this connection, there is also a pressing need to offer regulatory certainty to investors in low-carbon technologies. The Member States will have to guarantee a clear and stable legal framework to prevent new legislative measures from having retroactive effect; |
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13.

emphasises the need for binding objectives that help channel investments into developing clean technologies. In this connection, there is also a pressing need to offer regulatory certainty to investors in low-carbon technologies. The Member States will have to guarantee a clear and stable legal framework to prevent new legislative measures from having retroactive effect;

| 14. | points out that it is necessary to achieve a fair division of costs between countries, regions and cities and to take account of the regional development requirements and the locally available sources of renewable energy without preventing some regions and cities/town from committing themselves further if they so desire; |
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14.

points out that it is necessary to achieve a fair division of costs between countries, regions and cities and to take account of the regional development requirements and the locally available sources of renewable energy without preventing some regions and cities/town from committing themselves further if they so desire;

| 15. | emphasises that, when drafting policies at EU and Member State level, it is necessary to bear in mind the need for keeping the energy bill at a reasonable level and that energy efficiency is a crucial means of achieving this, because it would allow consumers and EU Member States to save more than EUR 200 billion every year up to 2030 (1); also considers that it would be useful to recommend that Member States as well as local and regional authorities adopt specific measures for families and vulnerable consumers as regards fighting energy poverty. One of the main ways of improving efficiency has to be the renovation of buildings, which will provide an important source of job creation in a sector as socially sensitive as construction. In addition, it will allow innovation in new energy-efficient and bio-sourced materials, which will entail making investments in RDI. To this end, special funds should be created at European level to promote energy efficiency improvements in buildings; |
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15.

emphasises that, when drafting policies at EU and Member State level, it is necessary to bear in mind the need for keeping the energy bill at a reasonable level and that energy efficiency is a crucial means of achieving this, because it would allow consumers and EU Member States to save more than EUR 200 billion every year up to 2030 (1); also considers that it would be useful to recommend that Member States as well as local and regional authorities adopt specific measures for families and vulnerable consumers as regards fighting energy poverty. One of the main ways of improving efficiency has to be the renovation of buildings, which will provide an important source of job creation in a sector as socially sensitive as construction. In addition, it will allow innovation in new energy-efficient and bio-sourced materials, which will entail making investments in RDI. To this end, special funds should be created at European level to promote energy efficiency improvements in buildings;

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C.   
  Europe’s energy independence

Europe’s energy independence

| 16. | points out that Europe is the world’s largest energy importer and considers that more ambitious European targets aimed at making energy savings by 2030 and at the same time increasing the share of renewables would considerably reduce Europe’s energy imports and increase its energy independence; |
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16.

points out that Europe is the world’s largest energy importer and considers that more ambitious European targets aimed at making energy savings by 2030 and at the same time increasing the share of renewables would considerably reduce Europe’s energy imports and increase its energy independence;

| 17. | one of the main ways of improving efficiency has to be the renovation of buildings, while at the same time constructing new energy-efficient housing. However, a one-size-fits-all approach is not appropriate here; relevant decisions on specific issues are best taken at the level of local and regional authorities. All of this will provide an important source of job creation in a sector as socially sensitive as construction. In addition, it will allow innovation in new energy-efficient and bio-sourced materials, which will entail making investments in RDI; |
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17.

one of the main ways of improving efficiency has to be the renovation of buildings, while at the same time constructing new energy-efficient housing. However, a one-size-fits-all approach is not appropriate here; relevant decisions on specific issues are best taken at the level of local and regional authorities. All of this will provide an important source of job creation in a sector as socially sensitive as construction. In addition, it will allow innovation in new energy-efficient and bio-sourced materials, which will entail making investments in RDI;

| 18. | emphasises that renewables could account for almost half of Europe’s energy consumption by 2030 (Sources: Fraunhofer Institute (2) and the German Aerospace Centre (3)); |
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18.

emphasises that renewables could account for almost half of Europe’s energy consumption by 2030 (Sources: Fraunhofer Institute (2) and the German Aerospace Centre (3));

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| 19. | underscores the scale of the potential for energy savings which is the greatest for those EU countries that rely most on imports of oil and gas. Investing in the EU’s energy efficiency up to 2030 would enable the EU to substantially cut European energy imports, thereby improving the EU’s energy security as well as the development of new, more efficient, safer and more economical technologies which create jobs; |
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19.

underscores the scale of the potential for energy savings which is the greatest for those EU countries that rely most on imports of oil and gas. Investing in the EU’s energy efficiency up to 2030 would enable the EU to substantially cut European energy imports, thereby improving the EU’s energy security as well as the development of new, more efficient, safer and more economical technologies which create jobs;

| 20. | feels, moreover, that the EU’s energy independence and security of supply could be strengthened by exploiting all renewable local energy resources, further developing the single energy market, for example, via small-scale production by consumers themselves, new interconnections, energy storage and smart networks and requiring all Member States to have favourable legislation to this end. It stresses that diversity of renewable energy sources acts as a buffer against price fluctuations, makes the energy system less vulnerable and makes it possible to prevent supply disruptions; |
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20.

feels, moreover, that the EU’s energy independence and security of supply could be strengthened by exploiting all renewable local energy resources, further developing the single energy market, for example, via small-scale production by consumers themselves, new interconnections, energy storage and smart networks and requiring all Member States to have favourable legislation to this end. It stresses that diversity of renewable energy sources acts as a buffer against price fluctuations, makes the energy system less vulnerable and makes it possible to prevent supply disruptions;

| 21. | considers that the European Union and Member States should facilitate the transformation of energy infrastructures with a view to improving cross-border interconnections. Particularly urgent are those between Member States that are furthest from meeting an objective that has already been agreed on, namely guaranteeing a level of electricity interconnections equivalent to or above 10 % of their installed production capacity; |
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21.

considers that the European Union and Member States should facilitate the transformation of energy infrastructures with a view to improving cross-border interconnections. Particularly urgent are those between Member States that are furthest from meeting an objective that has already been agreed on, namely guaranteeing a level of electricity interconnections equivalent to or above 10 % of their installed production capacity;

D.   
  Structural reform of the EU Emissions Trading Scheme

Structural reform of the EU Emissions Trading Scheme

| 22. | welcomes the adoption of ‘backloading’ to improve the functioning of the ETS, but believes that it is necessary to carry out a structural reform of the emissions trading system; in this context supports the European Commission’s proposal to also create a ‘market stability reserve’, which should, however, enter into force well before 2020; deems it essential that the stability reserve is accompanied by other measures, such as permanently removing surplus emission permits and creating a floor price; |
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22.

welcomes the adoption of ‘backloading’ to improve the functioning of the ETS, but believes that it is necessary to carry out a structural reform of the emissions trading system; in this context supports the European Commission’s proposal to also create a ‘market stability reserve’, which should, however, enter into force well before 2020; deems it essential that the stability reserve is accompanied by other measures, such as permanently removing surplus emission permits and creating a floor price;

| 23. | calls on the European Commission to restrict the use of purchases of international carbon compensation credits. These credits are not conducive to triggering the structural changes that need to be undertaken within the EU, neither do they encourage investments in the regions. In addition, it calls for the implementation of measures to encourage carbon storage in sustainably managed forests; |
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23.

calls on the European Commission to restrict the use of purchases of international carbon compensation credits. These credits are not conducive to triggering the structural changes that need to be undertaken within the EU, neither do they encourage investments in the regions. In addition, it calls for the implementation of measures to encourage carbon storage in sustainably managed forests;

| 24. | considers that a portion of revenues from emissions trading should be earmarked for measures at local and regional level; |
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24.

considers that a portion of revenues from emissions trading should be earmarked for measures at local and regional level;

| 25. | believes that it is important also to develop other joint instruments for mitigating the impact of climate change, e.g. ecodesign and public procurement. Carbon taxes are an effective instrument with which there is positive experience to build on; |
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25.

believes that it is important also to develop other joint instruments for mitigating the impact of climate change, e.g. ecodesign and public procurement. Carbon taxes are an effective instrument with which there is positive experience to build on;

E.   
  The importance of local production

The importance of local production

| 26. | considers that the small-scale production of energy from renewable sources by consumers themselves should be part of the solutions encouraged by a future energy Europe which would strengthen the European economy’s ability to withstand price fluctuations. All Member States should be required to have favourable legislation to this end; |
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26.

considers that the small-scale production of energy from renewable sources by consumers themselves should be part of the solutions encouraged by a future energy Europe which would strengthen the European economy’s ability to withstand price fluctuations. All Member States should be required to have favourable legislation to this end;

| 27. | believes that local and regional citizen cooperatives for promoting renewable energy need special attention, firstly because they create additional energy providers and secondly because they play a significant educational role in consolidating awareness of rational energy use; |
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27.

believes that local and regional citizen cooperatives for promoting renewable energy need special attention, firstly because they create additional energy providers and secondly because they play a significant educational role in consolidating awareness of rational energy use;

| 28. | points out that, if the price is the same, it is in people’s interest to seek guidance on their energy problems from their nearest authorities who are best placed to help and for local energy production solutions to be developed in response to rising prices on world markets. As owners of energy production facilities, local and regional authorities should also play a greater role in the expansion of renewables; |
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28.

points out that, if the price is the same, it is in people’s interest to seek guidance on their energy problems from their nearest authorities who are best placed to help and for local energy production solutions to be developed in response to rising prices on world markets. As owners of energy production facilities, local and regional authorities should also play a greater role in the expansion of renewables;

| 29. | draws attention to the need to ensure consistency between competition law at EU level, for which the EU has exclusive competence, and the fundamental principles of EU energy policy which provide for shared competence between the EU and its Member States, and which necessarily entail taking account of the subsidiarity principle and the important role of local and regional authorities, especially local and regional energy agencies; |
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29.

draws attention to the need to ensure consistency between competition law at EU level, for which the EU has exclusive competence, and the fundamental principles of EU energy policy which provide for shared competence between the EU and its Member States, and which necessarily entail taking account of the subsidiarity principle and the important role of local and regional authorities, especially local and regional energy agencies;

F.   
  Local and regional levels are the leaders in meeting climate and energy challenges

Local and regional levels are the leaders in meeting climate and energy challenges

| 30. | stresses that, as demonstrated by numerous extreme climate phenomena recently, it is local authorities that bear the brunt of the consequences of inaction and that will have to pay the price of future repercussions if we fail to speed up the energy transition; |
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30.

stresses that, as demonstrated by numerous extreme climate phenomena recently, it is local authorities that bear the brunt of the consequences of inaction and that will have to pay the price of future repercussions if we fail to speed up the energy transition;

| 31. | notes that the UNDP (4) believes that more than 70 % of climate change reduction measures and up to 90 % of climate change adaptation measures are undertaken by local authorities; |
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31.

notes that the UNDP (4) believes that more than 70 % of climate change reduction measures and up to 90 % of climate change adaptation measures are undertaken by local authorities;

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| 32. | points out that the European Union has adopted an adaptation strategy and that regions and local authorities will face the greatest challenges to adapt to climate change in the coming decades. With a view to reviewing this strategy for the post-2020 period, significant steps will therefore have to be taken in regions, towns and cities in order to undertake climate change adaptation programmes, with funding from the EU; |
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32.

points out that the European Union has adopted an adaptation strategy and that regions and local authorities will face the greatest challenges to adapt to climate change in the coming decades. With a view to reviewing this strategy for the post-2020 period, significant steps will therefore have to be taken in regions, towns and cities in order to undertake climate change adaptation programmes, with funding from the EU;

| 33. | underlines the fact that, because of their proximity to people, local and regional authorities can provide information and raise awareness on the economic and social benefits of the energy transition measures at the local level; |
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33.

underlines the fact that, because of their proximity to people, local and regional authorities can provide information and raise awareness on the economic and social benefits of the energy transition measures at the local level;

| 34. | emphasises the need for the 2030 policy framework to be based on, and to strengthen, the impact of EU local initiatives such as the EU Covenant of Mayors (which we would like to see extended until 2030), Mayors Adapt and other EU funded projects; calls in this context on the European Commission to ensure policy coherence and synergies between the different initiatives and to involve the CoR in the design and implementation as appropriate. It is vital that small towns and rural areas have access to these possibilities offered by the EU; |
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34.

emphasises the need for the 2030 policy framework to be based on, and to strengthen, the impact of EU local initiatives such as the EU Covenant of Mayors (which we would like to see extended until 2030), Mayors Adapt and other EU funded projects; calls in this context on the European Commission to ensure policy coherence and synergies between the different initiatives and to involve the CoR in the design and implementation as appropriate. It is vital that small towns and rural areas have access to these possibilities offered by the EU;

| 35. | stresses that, in order to make even greater progress, it will be useful for local and regional authorities to set specific quantified targets on emissions reduction, renewable energy and energy savings for 2030, supported by suitable local and regional strategies to speed up the dynamic generated by the regions. These objectives could be set by reinforcing and extending the Covenant of Mayors, which should be prolonged beyond 2020; |
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35.

stresses that, in order to make even greater progress, it will be useful for local and regional authorities to set specific quantified targets on emissions reduction, renewable energy and energy savings for 2030, supported by suitable local and regional strategies to speed up the dynamic generated by the regions. These objectives could be set by reinforcing and extending the Covenant of Mayors, which should be prolonged beyond 2020;

| 36. | calls on the European Commission to make proposals for funding energy transition measures, particularly through the EIB, that could support existing or future local funding structures in addition to the European funding scheduled for the periods 2014-2020 (Life+Clima, structural funds, Horizon 2020, Connecting Europe Facility, etc.); |
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36.

calls on the European Commission to make proposals for funding energy transition measures, particularly through the EIB, that could support existing or future local funding structures in addition to the European funding scheduled for the periods 2014-2020 (Life+Clima, structural funds, Horizon 2020, Connecting Europe Facility, etc.);

| 37. | and, on the basis of this opinion, calls on local and regional authorities to join forces in a combined effort to make their voices heard before and during the COP21, an important staging point being the climate summit organised by the United Nations secretary general on 23 September in New York. |
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37.

and, on the basis of this opinion, calls on local and regional authorities to join forces in a combined effort to make their voices heard before and during the COP21, an important staging point being the climate summit organised by the United Nations secretary general on 23 September in New York.

Brussels, 8 October 2014

The President of the Committee of the Regions

Michel LEBRUN

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(1)  Ecofys, February 2013: Saving energy: bringing down Europe’s energy prices for 2020 and beyond.

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Saving energy: bringing down Europe’s energy prices for 2020 and beyond.

(2)  Fraunhofer Institute, May 2011: Long Term Potentials and Costs of RES.

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Long Term Potentials and Costs of RES.

(3)  Greenpeace, 24 October 2012: EU-27 Energy [R]evolution; WWF, 6 November 2013: Renewable energy: a 2030 scenario for the EU.

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EU-27 Energy [R]evolution

Renewable energy: a 2030 scenario for the EU.

(4)  UNPD report Charting a new low-carbon route to development: A primer on integrated climate change planning for regional governments (2009).

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Charting a new low-carbon route to development: A primer on integrated climate change planning for regional governments

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