Common Position (EC) No 51/2000

adopted by the Council on 7 November 2000

with a view to adopting Directive 2000/.../EC of the European Parliament and of the Council of ... on national emission ceilings for certain atmospheric pollutants

(2000/C 375/01)

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty establishing the European Community, and in particular Article 175(1) thereof,

Having regard to the proposal from the Commission(1),

Having regard to the opinion of the Economic and Social Committee(2),

Having regard to the opinion of the Committee of the Regions(3),

Acting in accordance with the procedure laid down in Article 251 of the Treaty(4),

Whereas:

(1) The general approach and strategy of the fifth environmental action programme was approved by the resolution of 1 February 1993 of the Council and the representatives of the Governments of the Member States meeting within the Council on a Community programme of policy and action in relation to the environment and sustainable development(5) and it sets as one objective that critical loads and levels for acidification in the Community are not to be exceeded. The programme requires that all people should be effectively protected against health risks from air pollution and that permitted levels of pollution should take account of the protection of the environment. The programme also requires that guideline values from the World Health Organisation (WHO) should become mandatory at Community level.

(2) The Member States have signed the Gothenburg Protocol of 1 December 1999 to the United Nations Economic Commission for Europe (UNECE) Convention on Long-range Transboundary Air Pollution to abate acidification, eutrophication and ground-level ozone.

(3) Decision No 2179/98/EC of the European Parliament and of the Council of 24 September 1998 on the review of the European Community programme of policy and action in relation to the environment and sustainable development "Towards sustainability"(6) specified that particular attention should be given to developing and implementing a strategy with the goal of ensuring that critical loads, in relation to exposure to acidifying, eutrophying and photochemical air pollutants, are not exceeded.

(4) Council Directive 92/72/EEC of 21 September 1992 on air pollution by ozone(7) requires the Commission to submit to the Council a report on the evaluation of photochemical pollution in the Community, accompanied by any proposals the Commission deems appropriate on the control of air pollution by ground-level ozone and, if necessary, on reducing emissions of ozone precursors.

(5) Significant areas of the Community are exposed to depositions of acidifying and eutrophying substances at levels which have adverse effects on the environment. The WHO guideline values for the protection of human health and vegetation from photochemical pollution are substantially exceeded in all Member States.

(6) The exceedance of critical loads should therefore be gradually eliminated and guideline levels respected.

(7) At present it is not technically feasible to meet the long-term objectives of eliminating the adverse effects of acidification and reducing exposure to ground-level ozone of man and the environment to the guideline values established by the WHO. It is therefore necessary to provide for interim environmental objectives for acidification and ground-level ozone pollution, on which the necessary measures to reduce such pollution are to be based.

(8) Interim environmental objectives and the measures to meet them should take account of technical feasibility and the associated costs and benefits. Such measures should ensure that any action taken is cost-effective for the Community as a whole and should take account of the need to avoid excessive costs for any individual Member State.

(9) Transboundary pollution contributes to acidification, soil eutrophication and ground-level ozone formation, the abatement of which requires coordinated Community action.

(10) Reducing emissions of the pollutants causing acidification and exposure to ground-level ozone will also reduce soil eutrophication.

(11) A set of national ceilings for each Member State for emissions of sulphur dioxide, nitrogen oxides, volatile organic compounds and ammonia is a cost-effective way of broadly meeting the interim environmental objectives. Such emission ceilings will allow the Community and the Member States flexibility in determining how to comply with them.

(12) Member States should be responsible for implementing measures to comply with national emission ceilings. It will be necessary to evaluate progress towards compliance with the emission ceilings. National programmes for the reduction of emissions should therefore be drawn up and reported on to the Commission and should include information on the measures adopted or envisaged to comply with the emission ceilings.

(13) In accordance with the principle of subsidiarity as set out in Article 5 of the Treaty and taking account, in particular, of the precautionary principle, the objective of this Directive, namely limitation of emissions of acidifying and eutrophying pollutants and ozone precursors, cannot be sufficiently achieved by the Member States because of the transboundary nature of the pollution and can therefore be better achieved by the Community; in accordance with the principle of proportionality this Directive does not go beyond what is necessary to achieve that purpose.

(14) There should be a timely review of the progress made by Member States towards the emission ceilings, as well as a review of the extent to which implementing the ceilings is likely to meet interim environmental objectives, for the Community as a whole. Such review should consider also scientific and technical progress, developments in Community legislation and emission reductions outside the Community with special regard to progress made, inter alia, by the accession candidate countries. In that review, the Commission should undertake a further examination of the costs and benefits of the emission ceilings, including their cost-effectiveness, marginal costs and benefits and socio-economic impact and any impact on competitiveness. The review should also consider the limitations on the scope of this Directive.

(15) The Commission should for this purpose prepare a report to the European Parliament and the Council and, if it considers it necessary, propose appropriate amendments to this Directive taking account of the effects of any relevant Community legislation, inter alia , setting emission limits and product standards for relevant sources of emissions.

(16) Owing to the transboundary nature of acidification and ozone pollution, the Commission should continue to examine further the need to develop harmonised Community measures, without prejudice to Article 18 of Directive 96/61/EC of 24 September 1996 concerning integrated pollution prevention and control(8), with the aim of avoiding distortion of competition, and taking into account the balance between benefits and cost of action.

(17) The provisions of this Directive should apply without prejudice to the Community legislation regulating emissions of those pollutants from specific sources and to the provisions of Council Directive 96/61/EC in relation to emission limit values and use of best available techniques.

(18) Emission inventories are necessary to monitor progress towards compliance with the emission ceilings and must be calculated in accordance with internationally agreed methodology and reported on regularly to the Commission and the European Environment Agency (EEA).

(19) Member States should lay down rules on penalties applicable to infringements of the provisions of this Directive and ensure that they are implemented. The penalties should be effective, proportionate and dissuasive.

(20) The measures necessary for the implementation of this Directive should be adopted in accordance with Council Decision 1999/468/EC of 28 June 1999 laying down the procedures for the exercise of implementing powers conferred on the Commission(9).

(21) The Commission and Members States should cooperate internationally with a view to achieving the objectives of this Directive,

HAVE ADOPTED THIS DIRECTIVE:

Article 1

Objective

The aim of this Directive is to limit emissions of acidifying and eutrophying pollutants and ozone precursors in order to improve the protection in the Community of the environment and human health against risks of adverse effects from acidification, soil eutrophication and ground-level ozone and to move towards the long-term objectives of not exceeding critical levels and loads and of effective protection of all people against recognised health risks from air pollution.

Article 2

Scope

This Directive covers emissions in the territory of the Member States and their exclusive economic zones from all sources of the pollutants referred to in Article 4 which arise as a result of human activities.

It does not cover:

(a) emissions from international maritime traffic,

(b) aircraft emissions beyond the landing and take-off cycle,

(c) for Spain, emissions in the Canary Islands,

(d) for France, emissions in the overseas departments,

(e) for Portugal, emissions in Madeira and the Azores.

Article 3

Definitions

For the purposes of this Directive:

(a) "AOT 40" means the sum of the difference between hourly concentrations of ground-level ozone greater than 80 µg/m3 (=40 ppb) and 80 µg/m3 during daylight hours accumulated from May to July each year;

(b) "AOT 60" means the sum of the difference between hourly concentrations of ground-level ozone greater than 120 µg/m3 (=60 ppb) and 120 µg/m3 accumulated throughout the year;

(c) "critical load" means a quantitative estimate of an exposure to one or more pollutants below which significant adverse effects on specified sensitive elements of the environment do not occur, according to present knowledge;

(d) "critical level" means the concentration of pollutants in the atmosphere above which direct adverse effects on receptors, such as human beings, plants, ecosystems or materials, may occur, according to present knowledge;

(e) "emission" means the release of a substance from a point or diffuse source into the atmosphere;

(f) "grid cell" means a square 150 km × 150 km, which is the resolution used when mapping critical loads on a European scale, and also when monitoring emissions and depositions of air pollutants under the cooperative programme for monitoring and evaluation of the long-range transmission of air pollutants in Europe (EMEP);

g) "landing and take-off cycle" means a cycle represented by the following time in each operating mode: approach 4,0 minutes; taxi/ground idle 26,0 minutes, take-off 0,7 minutes; climb 2,2 minutes;

h) "national emission ceiling" means the maximum amount of a substance expressed in kilotonnes, which may be emitted from a Member State in a calendar year;

i) "nitrogen oxides" and "NOx" mean nitric oxide and nitrogen dioxide, expressed as nitrogen dioxide;

j) "ground-level ozone" means ozone in the lowermost part of the troposphere;

k) "volatile organic compounds" and "VOC" mean all organic compounds arising from human activities, other than methane, which are capable of producing photochemical oxidants by reactions with nitrogen oxides in the presence of sunlight.

Article 4

National emission ceilings

1. By the year 2010 at the latest, Member States shall limit their annual national emissions of the pollutants sulphur dioxide (SO2), nitrogen oxides (NOx), volatile organic compounds (VOC) and ammonia (NH3) to amounts not greater than the emission ceilings laid down in Annex I, taking into account any modifications made by Community measures adopted following the reports referred to in Article 9.

2. Member States shall ensure that the emission ceilings laid down in Annex I are not exceeded in any year after 2010.

Article 5

Interim environmental objectives

The national emission ceilings in Annex I shall have as their purpose to meet broadly the following interim environmental objectives, for the Community as a whole, by 2010.

(a) Acidification

The areas where critical loads are exceeded shall be reduced by at least 50 per cent (in each grid cell) compared with the 1990 situation.

(b) Health-related ground-level ozone exposure

The ground-level ozone load above the critical level for human health (AOT60 = 0) shall be reduced by two thirds in all grid cells compared with the 1990 situation. In addition, the ground-level ozone load shall not exceed an absolute limit of 2,9 ppm.h in any grid cell.

(c) Vegetation-related ground-level ozone exposure

The ground-level ozone load above the critical level for crops and semi-natural vegetation (AOT40 = 3 ppm.h) shall be reduced by one third in all grid cells compared with the 1990 situation. In addition, the ground-level ozone load shall not exceed an absolute limit of 10 ppm.h, expressed as an exceedance of the critical level of 3 ppm.h in any grid cell.

Article 6

National programmes

1. Member States shall, by 1 October ...(10) at the latest, draw up programmes for the progressive reduction of national emissions of the pollutants referred to in Article 4 with the aim of complying at least with the national emission ceilings laid down in Annex I by 2010 at the latest.

2. The national programmes shall include information on adopted and envisaged policies and measures and quantified estimates of the effect of these policies and measures on emissions of the pollutants in 2010. Anticipated significant changes in the geographical distribution of national emissions shall be indicated.

3. Member States shall update and revise the national programmes as necessary by 1 October ...(11).

4. Member States shall make available to the public, and to appropriate organisations such as environmental organisations, the programmes drawn up in accordance with paragraphs 1, 2 and 3. Information made available to the public and to organisations under this paragraph shall be clear, comprehensible and easily accessible.

Article 7

Emission inventories and projections

1. Member States shall prepare and annually update national emission inventories and emission projections for 2010 for the pollutants referred to in Article 4.

2. Member States shall establish their emission inventories and projections using the methodologies specified in Annex II.

3. The Commission, assisted by the European Environment Agency, shall, in cooperation with the Member States and on the basis of the information provided by them, establish inventories and projections of the pollutants referred to in Article 4. The inventories and projections shall be made publicly available.

4. Any updating of the methodologies to be used in accordance with Annex II, shall be made in accordance with the procedure set out in Article 11(2).

Article 8

Reports by the Member States

1. Member States shall each year, by 31 December at the latest, report their national emission inventories and their emission projections for 2010, established in accordance with Article 7, to the Commission and the European Environment Agency. They shall report their final emission inventories for the previous year but one and their provisional emission inventories for the previous year. Emission projections shall include information to enable a quantitative understanding of the key socio-economic assumptions used in their preparation.

2. Member States shall, by 31 December ...(12) at the latest, inform the Commission of the programmes drawn up in accordance with Article 6(1) and (2).

Member States shall, by 31 December ...(13) at the latest, inform the Commission of the updated programmes drawn up in accordance with Article 6(3).

3. The Commission shall forward the national programmes received to the other Member States within one month of their reception.

4. The Commission shall, in accordance with the procedure set out in Article 11(2), establish provisions to ensure consistent and transparent reporting of national programmes.

Article 9

Reports by the Commission

1. In 2004 and 2008 the Commission shall report to the European Parliament and to the Council on progress on the implementation of the national emission ceilings laid down in Annex I and on the extent to which the interim environmental objectives set out in Article 5 are likely to be met by 2010. The reports shall include an economic assessment, including cost-effectiveness, benefits, an assessment of marginal costs and benefits and the socio-economic impact of the implementation of the national emission ceilings on particular Member States and sectors. They shall also include a review of the limitations of the scope of this Directive as defined in Article 2 and an evaluation of the extent to which further emission reductions might be necessary in order to meet the interim environmental objectives set out in Article 5. They shall take into account the reports made by Member States pursuant to Article 8(1) and (2), as well as, inter alia:

(a) any new Community legislation which may have been adopted setting emission limits and product standards for relevant sources of emissions;

(b) developments of best available techniques in the framework of the exchange of information under Article 16 of Directive 96/61/EC;

(c) emission reduction objectives for 2008 for emissions of sulphur dioxide and nitrogen oxides from existing large combustion plants, reported by Member States pursuant to Directive 2000/.../EC of the European Parliament and of the Council of ... on the limitation of emissions of certain pollutants into the air from large combustion plants(14);

(d) emission reductions and reduction commitments by third countries, with particular focus on measures to be taken in the accession candidate countries, and the possibility for further emission reductions in regions in the vicinity of the Community;

(e) any new Community legislation and any international regulations concerning ship and aircraft emissions;

(f) the development of transport and any further action to control transport emissions;

(g) developments in the field of agriculture, new livestock projections and improvements in emission reduction methods in the agricultural sector;

(h) any major changes in the energy supply market within a Member State and new forecasts reflecting the actions taken by Member States to comply with their international obligations in relation to climate change;

(i) assessment of the current and projected exceedances of critical loads and the WHO's guideline values for ground-level ozone;

(j) the possibility of identification of a proposed interim objective for reducing soil eutrophication;

(k) new technical and scientific data including an assessment of the uncertainties in:

(i) national emission inventories;

(ii) input reference data;

(iii) knowledge of the transboundary transport and deposition of pollutants;

(iv) critical loads and levels;

(v) the model used;

and an assessment of the resulting uncertainty in the national emission ceilings required to meet the interim environmental objectives mentioned in Article 5;

(l) whether there is a need to avoid excessive costs for any individual Member State;

(m) a comparison of model calculations with observations of acidification, eutrophication and ground-level ozone with a view to improving models.

2. In 2012 the Commission shall report to the European Parliament and the Council on compliance with the ceilings in Annex I and on progress in relation to the interim environmental objectives in Article 5. Its report shall take account of the reports made by Member States pursuant to Article 8(1) and (2) as well as the matters listed in points (a) to (m) of paragraph 1 of this Article.

3. The reports referred to in paragraphs 1 and 2 shall take into account the factors listed in paragraph 1. In the light of these factors, of progress towards attaining the emission ceilings by the year 2010, of a review of scientific and technical progress, and of the situation regarding the exceeding of critical loads and levels and WHO air quality guidelines, the Commission shall carry out further investigation of the estimated costs and benefits of emission ceilings. Without prejudice to Article 18 of Directive 96/61/EC, with the aim of avoiding distortion of competition, and taking into account the balance between benefits and costs of action, the Commission shall examine further the need to develop harmonised Community measures for the most relevant economic sectors and products contributing to acidification, eutrophication and ground-level ozone. The reports will, if appropriate, be accompanied by proposals for modifications of the ceilings in Annex I, for modifications to the interim environmental objectives in Article 5, for measures to ensure compliance with the ceilings, and for possible further emission reductions.

Article 10

Cooperation with third countries

To promote the achievement of the objective set out in Article 1, the Commission and Member States, as appropriate, shall, without prejudice to Article 300 of the Treaty, pursue bilateral and multilateral cooperation with third countries and relevant international organisations such as the United Nations Economic Commission for Europe (UNECE), the International Maritime Organisation (IMO) and the International Civil Aviation Organisation (ICAO), including through the exchange of information, concerning technical and scientific research and development and with the aim of improving the basis for the facilitation of emission reductions.

Article 11

Committee

1. The Commission shall be assisted by the committee set up by Article 12 of Directive 96/62/EC, hereinafter referred to as "the Committee".

2. Where reference is made to this paragraph, Articles 4 and 7 of Decision 1999/468/EC shall apply, having regard to the provisions of Article 8 thereof.

The period referred to in Article 4(3) of Decision 1999/468/EC shall be set at three months.

3. The Committee shall adopt its rules of procedure.

Article 12

Penalties

Member States shall determine the penalties applicable to breaches of the national provisions adopted pursuant to this Directive. The penalties shall be effective, proportionate and dissuasive.

Article 13

Transposition

1. Member States shall bring into force the laws, regulations and administrative provisions necessary to comply with this Directive before ...(15). They shall forthwith inform the Commission thereof.

When Member States adopt those provisions, they shall contain a reference to this Directive or be accompanied by such reference on the occasion of their official publication. Member States shall determine how such reference is to be made.

2. Member States shall communicate to the Commission the text of the main provisions of national law, which they adopt in the field covered by this Directive.

Article 14

Entry into force

This Directive shall enter into force on the day of its publication in the Official Journal of the European Communities.

Article 15

Addressees

This Directive is addressed to the Member States.

Done at ...

For the European Parliament

The President

For the Council

The President

(1) OJ C 56E, 29.2.2000, p. 34.

(2) OJ C 51, 23.2.2000, p. 11.

(3) OJ C 317, 6.11.2000, p. 35.

(4) Opinion of the European Parliament of 15 March 2000 (not yet published in the Official Journal), Council Common Position of 7 November 2000 (not yet published in the Official Journal) and Decision of the European Parliament (not yet published in the Official Journal).

(5) OJ C 138, 17.5.1993, p. 1.

(6) OJ L 275, 10.10.1998, p. 1.

(7) OJ L 297, 13.10.1992, p. 1.

(8) OJ L 257, 10.10.1996, p. 26.

(9) OJ L 184, 17.7.1999, p. 23.

(10) One year after the date of entry into force of this Directive.

(11) Five years after the date of entry into force of this Directive.

(12) One year after the entry into force of this Directive.

(13) Five years after the entry into force of this Directive.

(14) See p. 12 of this Official Journal.

(15) 12 months from the date of entry into force of this Directive.

ANNEX I

NATIONAL EMISSION CEILINGS FOR SO2, NOx, VOC AND NH3, TO BE ATTAINED BY 2010(1)

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(1) These national emission ceilings are designed with the aim of broadly meeting the interim environmental objectives set out in Article 5. Meeting those objectives is expected to result in a reduction of soil eutrophication to such an extent that the Community area with depositions of nutrient nitrogen in excess of the critical loads will be reduced by about 30 % compared with the situation in 1990.

ANNEX II

METHODOLOGIES FOR EMISSION INVENTORIES AND PROJECTIONS

Member States shall establish emission inventories and projections using the methodologies agreed upon by the Convention on Long-range Transboundary Air Pollution and are requested to use the joint EMEP/Corinair(1) guidebook in preparing these inventories and projections.

(1) Air emissions inventory of the European Environment Agency.

STATEMENT OF THE COUNCIL'S REASONS

I. INTRODUCTION

1. On 14 July 1999 the Commission presented to the Council its proposal for a Directive of the European Parliament and of the Council on national emission ceilings for certain atmospheric pollutants(1). The proposal was based on Article 175(1) of the Treaty.

2. The European Parliament gave its opinion on 15 March 2000(2).

The Economic and Social Committee gave its opinion on 8 December 1999(3).

The Committee of the Regions gave its opinion on 14 June 2000(4).

3. On 7 November 2000, the Council adopted its Common Position in accordance with Article 251(2) of the Treaty.

II. OBJECTIVE

The aim of the Directive is to limit emissions of acidifying and eutrophying pollutants and ozone precursors in order to improve the protection in the Community of the environment and human health. The proposal sets upper limits, for each Member State, for the total annual emissions of the four pollutants responsible for acidification, eutrophication and ground-level ozone pollution. These limits, or ceilings, must be complied with by the year 2010 at the latest. The relevant pollutants are sulphur dioxide (SO2), nitrogen oxides (NOx), volatile organic compounds (VOCs) and ammonia (NH3).

The proposal requires Member States to draw up national programmes which will assist them to achieve the emission reductions required, but leaves the detail of the specific policies and measures to be used up to the individual Member State. It also requires Member States to prepare and annually update national emission inventories and emission projections for 2010 for the four pollutants. The Commission shall report, in both 2004 and 2008, to the European Parliament and the Council on progress in the implementation of the national emission ceilings and on the extent to which the interim environmental objectives set out in the proposal are likely to be met by 2010.

III. ANALYSIS OF THE COMMON POSITION

1. General

The Council's Common Position, whilst maintaining the approach proposed by the Commission moves, in line with one of the European Parliament's amendments (No 9), the proposed interim environmental objectives from an Annex into Article 5 of the proposal. The changes to Annex I of the proposal, which lists the proposed emission ceilings to be met by 2010, reflect the views of Member States that they are, at present, unable to commit to the level of ceilings proposed by the Commission. Some of these figures do, however, go somewhat further than figures agreed by Member States when signing the 1999 Gothenburg Protocol to the UNECE Convention on Long-range Transboundary Air Pollution to abate acidification, eutrophication and ground-level ozone. The additions to and rewording of Article 9 also highlight Member States' intentions that a thorough review of these figures will be undertaken in 2004 in the light of new information available then.

2. Accepted European Parliament amendments

The Council has adopted the eight European Parliament amendments accepted, fully or in part, by the Commission.

3. Most important innovations introduced by the Council

Article 5 takes in the interim environmental objectives which were in Annex II to the proposal.

Article 9 has been reordered and reworded, to take account of Parliamentary amendments and to make clear that any need to revise the ceilings will be considered in the light of progress towards the interim environmental objectives. Excessive costs for any individual Member State will also be considered.

Article 10 now includes reference to action taken by Member States, as well as the Community, in relation to international cooperation with third countries and relevant organisations.

Article 11 has been altered to reflect the new comitology procedures.

Annex I now contains a reference to the expected result of meeting the emission ceilings in relation to soil eutrophication.

(1) OJ C 56 E, 29.2.2000, p. 34.

(2) OJ C ...

(3) OJ C 51, 23.2.2000, p. 11.

(4) OJ C 317, 6.11.2000, p. 35.