Opinion of the Committee of the Regions on 'Preparing for Implementation of the Kyoto Protocol'
Date: 1999-11-18
Institutions: European Committee of the Regions
Subjects: air quality, environmental protection, greenhouse gas, pollution control measures

29.2.2000

EN

Official Journal of the European Communities

C 57/81

5.8.
The Committee of the Regions believes that, as the key
point of contact for ordinary consumers, it is more important
to upgrade and network existing consumer protection organi-
sations at national, regional and local level than to set up
further Euroguichets.

5.9.
The Committee of the Regions welcomes the plan
to systematically catalogue, summarise and publish current

European, regional and national consumer law. It also proposes
including companies’ self-regulatory commitments in a data-
bank of this kind.

5.10.
The Committee would ask the European Commission
to keep it informed, at appropriate intervals, on the implemen-
tation of the action plan and on progress made.

Brussels, 18 November 1999.

The President

of the Committee of the Regions

Manfred DAMMEYER

Opinion of the Committee of the Regions on ‘Preparing for Implementation of the Kyoto
Protocol’

(2000/C 57/13)

THE COMMITTEE OF THE REGIONS,

having regard to the Communication from the Commission to the Council and the European Parliament
on ‘Preparing for Implementation of the Kyoto Protocol’, COM(1999) 230 final, 19 May 1999;

having regard to the decision taken by the Commission on 28 May 1999, under the first paragraph of
Article 265 of the Treaty establishing the European Community, to consult the Committee of the Regions
on the matter;

having regard to the decision by the Bureau on 2 June 1999 which directs Commission 4 — Spatial
Planning, Urban Issues, Energy and Environment — to draw up the relevant opinion;

having regard to the Kyoto Protocol on reducing greenhouse gas emissions adopted in December 1997
at the 3rd Conference of the Parties of the UN Framework Convention on Climate Change (COP3 —
1/10 December 1997);

having regard to the Communication from the Commission to the Council and the European Parliament
on Strengthening environmental integration within Community energy policy, COM(1998) 571 final;

having regard to the opinion of the Committee of the Regions on Climate change and energy,
18 September 1997, CdR 104/97 fin (1);

having regard to the opinion of the Committee of the Regions on the Commission White Paper: ‘Energy
for the future: renewable sources of energy’, 16 July 1998, CdR 57/98 (2);

having regard to the opinion of the Committee of the Regions on the Communication from the
Commission on Environment and Employment: building a sustainable Europe, 19 November 1998, CdR
75/98 fin (3);

(1) OJ C 379, 15.12.1997, p. 11.
(2) OJ C 315, 13.10.1998, p. 5.
(3) OJ C 51, 22.2.1999, p. 41.

C 57/82

EN

Official Journal of the European Communities

29.2.2000

having regard to the opinion of the Committee of the Regions on the Communication from the
Commission on accession strategies for environment, COM(1998) 294 final, 19 November 1998, CdR
267/98 fin (1);

having regard to the opinion of the Committee of the Regions on Transport and CO2 — Developing a
Community approach, 11 March 1999, CdR 230/98 (2);

having regard to the draft opinion (CdR 295/99 rev. 1) adopted unanimously by Commission 4 on
7 October 1999, for which the rapporteur was Mr Penttilä (FIN, PES),

unanimously adopted the following opinion at its 31st plenary session on 17 and 18 November 1999
(meeting of 18 November).

1.

Introduction

1.1.
On 19 May 1999 the European Commission issued a
Communication to the Council and the European Parliament
on ‘Preparing for Implementation of the Kyoto Protocol’.

1.2.
The Commission Communication expresses concern
over implementation of the Kyoto Protocol, saying that as
many of the signatory countries as possible should ratify the
Protocol and steps to implement it should be initiated within
the EU.

The flexibility mechanisms in the Kyoto Protocol must
1.8.
be elaborated and a broad consultation of all stakeholders
should be organised on emissions trading. The basis for this
would be provided by a Green Paper.

1.9.
The Commission proposes that funding possibilities
for emission reduction investments and technology transfer be
provided through EIB and EBRD initiatives and possible special
linking official
credits.
development assistance to emission reduction projects requires
further examination as well as the active participation of
developing countries.

the Commission,

In the view of

The Commission states that in order to reduce emis-
1.3.
sions, common and coordinated initiatives, policies and measu-
res at both the national and Community level should be
reinforced.

1.10.
The Commission communication states that as the
EU prepares to enlarge, better conditions can be created for
achieving the desired emission reductions in the applicant
countries.

1.4.
The Commission considers that the primary responsi-
bility for implementing emission reductions lies with the
Community’s Member States, whose decision-making proce-
dures for these measures should be speeded up.

1.11.
In addition to the initiatives agreed at Kyoto, the main
emphasis of the Buenos Aires follow up meeting, the 4th
Conference of the Parties (COP4) in 1998, was to examine and
elaborate the planned flexibility mechanisms.

initiatives.

The Commission states that Community level measures
1.5.
can complement national
It should already be
possible by the time of the Helsinki Summit in 1999 to agree
on the integration of environmental questions (especially with
regard to greenhouse gases) into all the other main policy
areas. The Commission is trying to speed up decisions on
energy taxation and proposals in the field of energy and
transport.

1.6.
The Commission is confident that environmental ag-
reements with industry can reduce greenhouse gas emissions
and expects expressions of interest from industry associations
during 1999.

1.7.
The Commission considers that both national and
international monitoring and verification systems are impor-
tant
for ascertaining the evolution of emissions and the
effectiveness of measures.

(1) OJ C 51, 22.2.1999, p. 33.
(2) OJ C 198, 14.7.1999, p. 3.

1.12.
In addition to the signatory countries’ own initiatives,
other possible measures for reducing the emissions of develo-
ping countries and for preserving carbon sinks include flexibili-
ty mechanisms such as Emissions Trading (ET), Joint Imple-
mentation (JI) and the Clean Development Mechanism (CDM),
the implementation rules for which were drawn up and
discussed at the meetings for Parties of the UNFCC at the
COP5 in Bonn in 1999 and will be decided upon at the COP6
in the Hague in 2000.

2. General considerations

The Committee of

2.1.
the
Communication on implementation of the Kyoto Protocol is
important and that the measures it proposes are urgent.

the Regions believes that

2.2.
The Committee of the Regions considers that the
impact of the greenhouse effect on all forms of life and the
ability of mankind to survive, particularly in the long term, are
generally acknowledged. The continual warming of the global

29.2.2000

EN

Official Journal of the European Communities

C 57/83

atmosphere and the melting of the icecaps is raising the sea
level. Unpredictable changes may even occur in EU regions.
The risks associated with climate change, such as sudden local
weather phenomena, and the more widespread catastrophes
which may follow, can lead to human distress and serious
economic damage.

2.3.
According to the Commission and the EEA report
the EU will have difficulties in achieving the 8 % emission
reductions agreed at the 1997 UN Kyoto meeting by 2008-
2012. Indeed, in 1994 emissions increased rather than decrea-
sed. Assuming business as usual,
it is now estimated that
greenhouse gas emissions will rise by 6 % by 2010. According
to certain estimates the emission reduction initiatives of
industrialised countries should achieve a fall of 30-35 %, if a
1,5 degree (Celsius) increase in the planet’s average temperatu-
re is to be avoided before 2100.

Complying with the Kyoto Protocol is a matter of
2.4.
credibility for an otherwise progressive, innovative and ambi-
tious EU climate policy. The EU’s difficulties in implementing
its own emission reduction initiatives are a serious problem
with regard to both signatory countries and countries not
included in Annex 1.

2.5.
Greenhouse gas emissions are generated by almost all
areas of economic activity, such as energy, transport, industry,
households and agriculture. Energy production from fossil
fuels and in particular transport are the main sources of
increasing levels of greenhouse gas emissions.

The large growth in personal and freight transport
2.6.
poses a particular threat
to the EU’s emission reduction
objectives, even though car emission reductions may be
achieved through special programmes with car manufacturers.
Between 1985 and 1996 energy consumption in the transport
sector grew by 40 % and it is expected to increase by another
30 % by 2010.

2.7.
However the 1999 EEA report on the state of the
environment states that industrial CO2 emissions are expected
to fall by 15 % between 1990 and 2010. Emissions from
households and the service sector are expected to remain
virtually the same over the next few years. In electricity and
heat production it should be possible to retain the 1990
emission level until at least 2010.

2.8.
In countries which have applied for EU membership
and the other transition economies neighbouring the EU,
energy intensive industries have achieved emission reductions,
while transport emissions have increased. A majority of the
applicant countries have signed the Kyoto Protocol.

Applicant countries, the nearby transition economies and the
countries not included in Annex 1 of the Kyoto agreement

each constitute an entity of their own with regard to emission
reductions and require Community support to reduce emis-
sions.

The Committee of

the Regions believes that

2.9.
the
challenge of reducing greenhouse gas emissions is a tough
one. Implementation therefore requires new groups of players
to be identified. Slowing down climate change and complying
with the Kyoto Protocol requires long-term EU-wide, national
and local decisions and initiatives which support ecologically,
economically and socially sustainable development. Decision-
making, and the ability to exercise influence, must be brought
closer to citizens.

The reduction of greenhouse gas emissions is a
2.10.
far-reaching, global social
issue. It is not restricted to an
environmental policy or energy and transport policy based on
the principle of sustainable development.
Indeed, on the
basis of the Amsterdam Treaty, Member States’ agricultural,
employment, social and structural fund policies should be
integrated into the Community’s energy and environmental
policies as well as research and funding programmes.

3. Specific comments

3.1.
The Kyoto Protocol specified energy production, indu-
stry, transport and agriculture as key priorities. The Commis-
sion has decided to add households and the service sector to
this list. The service sector also includes many public services
(for example child daycare, schooling, social welfare and health
care, etc.), which are provided mainly at the local and regional
level. The service sector is, however, a very broad concept. It is
comprised of activities on different scales and a large number
of players. Extreme cases can include hairdressing salons
employing 1-2 people, multinational consultancy firms, indivi-
dual taxi drivers and hotels.

The local level and local authorities differ considerably
3.2.
with regard to emission levels, sources of emissions, the
economic and technical possibilities for reductions, as well as
how long it takes for their initiatives to take effect. The range
of instruments at the local level is, however, quite wide.

3.3.
The municipalities and regions are often responsible
for energy production and distribution, spatial and urban
planning, transport planning and construction, public trans-
port, waste water purification, and the handling of municipal
solid waste.

In addition, in several Member States regional and local
3.4.
administrations are the authorities responsible for implemen-
ting national environmental legislation through local environ-
mental protection measures. For example,
local authorities
issue the emission permits required by law to different users,
they monitor emissions and take part as far as possible in
advisory work.

C 57/84

EN

Official Journal of the European Communities

29.2.2000

3.5.
Environmental problems must be tackled where they
occur. Local authorities have the most expertise and are the
bodies closest to citizens with the ability to tackle many of the
greenhouse gas issues associated with community activities. In
addition, the benefits to be gained from measures are often
also visible either directly or indirectly at the local level and
this helps them to gain public approval.

3.6.
The various methods of preventing climate change
bring a range of various and recurring benefits for the citizens.
improving local air quality in industrial or
For example,
residential urban areas with heavy traffic has a positive effect
on the health, quality of life and well-being of residents.

3.7.
Reducing the greenhouse gases which destroy the
ozone in the upper atmosphere improves agricultural and
forestry productivity and reduces the damaging effects of
ultraviolet rays on human health.

3.8.
Emission reduction measures help to improve people’s
livelihoods. These include improving the efficiency of traditio-
nal energy production and distribution, doubling the propor-
tion of combined heat and electricity generation, energy
efficiency, energy savings and doubling the use of renewable
energy sources, as well as giving preference to ecological
procurement. Commercial energy production is central as
regards the use of renewable energy sources. Many producers
already supply energy produced with renewables because of
company image among other reasons. As energy markets are
liberalised consumers may also demand energy produced in
accordance with the principles of sustainable development.

In this connection, urgency attaches to limitation of
3.9.
the continually rising CO2 emissions by road traffic, and in
particular implementation of
the environment agreement
with the association of European car manufacturers. New
fuel-saving engine technologies have now been developed.
However, these require petrol of a higher quality than that
specified in the fuel directive 98/79/EC. Sulphur-free fuels will
enable car manufacturers to put new and more energy-efficient
engines on the market, for instance otto engines with direction
petrol injection.

3.10.
The development and production of the new environ-
mental and energy technology needed to prevent climate
change and the promotion and research of renewable energy
sources also create new jobs and improve business competiti-
veness. The Danish wind power industry is a good example of
this.

infrastructure such as street lighting or water and waste
management consume a considerable amount of energy. For
example, significant reductions have been achieved in the
energy consumed by local authority buildings through adjust-
ments and timing changes based on energy surveys. New types
of lamps and lighting solutions for road and street lighting
save electricity. Reductions have been made in the electricity
consumed in pumping clean and waste water by the use of
frequency transformers.

The Committee of

3.12.
the Regions is conscious of
the fact that some across-the-board decisions on emission
reduction can also have negative structural consequences for
the local and regional level and for their vitality. To minimise
any damaging economic effects and to ensure the acceptability
of measures, both national and EU-wide support arrangements
are necessary.

3.13.
The international negotiations on supplementary
measures established by the flexibility mechanisms of the
Kyoto Protocol have in some ways slowed down both national
and EU policies and practical initiatives. The EU countries —
like the other Annex 1 countries, with a few exceptions —
have no experience so far of, for example, emissions trading.
Emissions trading requires reliable statistics, monitoring and
national experiments.

It

3.14.
The Committee of the Regions considers that use of
the Kyoto instruments — emissions trading, joint implementa-
tion and clean development mechanism — in the international
framework would contribute to cost-efficient climate protec-
tion.
is therefore necessary to ensure earliest possible
clarification of the rules on international emissions trading.
Participation of companies is to be foreseen here. Furthermore,
proposals should be formulated for an early crediting system
under which climate schemes could be implemented under the
clean development mechanism before the 2008-2012 Kyoto
budget period.

3.15.
The Member States, the European Union and its
funding organisations have considerable experience of helping
the applicant countries and the other central and east European
countries to achieve emission reductions through joint action.

3.11.
In providing services for residents, the local level itself
is also a significant energy consumer, as its procurement
decisions have an impact on energy use and emissions.
Heating buildings, refrigeration, lighting and local technical

3.16.
In addition, EU local and regional authorities have
direct links with local authorities in the applicant countries
and other nearby regions. Know-how on measuring and
monitoring emissions, as well as experience of actual reduction
methods, can be transferred to these countries to help them
reduce greenhouse gas emissions.

29.2.2000

EN

Official Journal of the European Communities

C 57/85

3.17.
In many Member States, the local level already has at
its disposal the necessary information and instruments for
monitoring greenhouse gas emissions, such as statistics and
emission calculation programmes which conform with IPCC
recommendations. Examples and experiences of good monito-
ring practices and actual emission reduction methods could be
collated and passed on, among other things through best
practice competitions both within the EU and in nearby
regions.

CDM projects of particular relevance to developing
3.18.
countries are also suitable for carbon sink consolidation
measures, for example through afforestation programmes.

There are many ways of achieving reductions in
3.19.
greenhouse gas emissions. Useful and necessary methods
include regulation (specific emission levels, specific energy use
or emissions quotas and permits), price mechanisms (taxes,
charges, emission trading), voluntary agreement procedures
and related economic support mechanisms, for example for
promoting renewable energy sources and combined energy
generation.

3.20.
The widespread use of energy and environmental
taxation in EU countries is one of the main ways of implemen-
ting the generally recognized polluter pays principle.

3.21.
Implementing emission reduction initiatives in a
cost-effective way is generally understood as a principle, but
the starting point is problematic. Uncertainty often remains as
to whether cost effective refers to the economic viability
of individual players themselves or rather to society-wide
economic benefits, and over what time period. It is important
to include the external costs and savings made when assessing
the viability of investment to reduce emissions.

3.22.
Evaluating and attributing the costs and societal
benefits (savings) resulting from the reduction in all greenhouse
gas emissions continues to be difficult. Some of the consequen-
ces are not even known, let alone evaluated.

The EU’s fifth research framework programme also
3.23.
focuses considerable attention on climate issues. When the
programme is implemented, local and regional considerations
need to be taken into account.

different to those for developers facing a relatively larger
financial risk.

3.25.
Voluntary agreement procedures concluded between
groups of players in conjunction with financial support
packages are a useful way of pursuing emission reductions. A
promising example is the CO2 emission reduction programme
agreed upon with the European car industry. This procedure
may be most useful when there are relatively few and powerful
players. Agreement procedures can be either national or
EU-wide in scope.

3.26. With regard to energy saving, there is the possibility
in some EU countries of agreement procedures between local
authorities and central government. There are many examples
of the effectiveness of national voluntary agreement arrange-
ments in the field of waste. Perhaps the most widely known
are deposit schemes for recyclable and returnable bottles and
aluminium cans set up in conjunction with the brewing and
soft drinks industry, the collection of car tyres in conjunction
with tyre importers and manufacturers, as well as paper,
packaging waste and waste glass collection.

3.27.
However, influencing the consumption patterns of
individuals requires a continuous process of supplying infor-
mation and reshaping attitudes, for example through publicity,
education and advice. More training is needed on various
levels. Energy plants, organisations, educational establishments
as well as different authorities can provide good advice on
energy to target groups. Education in early childhood will also
bring benefits in the long-term. This is important for slowing
down the global greenhouse phenomenon.

3.28.
It is essential to raise general awareness of climate
change and to integrate energy and environmental aspects into
decision-making at local, national and EU level. The local and
regional energy offices supported by the Altener and SAVE II
programmes for the promotion of renewable energy sources
have proved to be useful information dissemination channels.

3.29. Measuring greenhouse gas emissions and monitoring
their development in accordance with the IPCC recommenda-
tions is an essential requirement for keeping track of each
the common burden. Emission
Member State’s share of
monitoring can also be carried out on a regional and local
basis, as well as on a sectoral basis. Data on the situation
concerning emissions and changes to it will enable measures
to be tailored according to needs and objectives.

3.24.
The requirements for returns on emission reduction
investments vary from case to case. For example, a long-term
return over 10-20 years is acceptable for a basic infrastructure
investment such as an energy generation plant. In contrast,
investments in energy consumption savings by SMEs or
industrial companies only require a short-term return in
perhaps 2-4 years. But the same issue is at stake, namely the
development — or not — of equal energy capacity and output.
The bases of economic assessment for long-term, capital
intensive and relatively risk-free project developers are entirely

3.30.
Climate protection campaigns which have been vo-
luntarily initiated by towns and regions such as the ICLEI Cities
for Climate Protection campaign and different kinds of local
sustainable development programmes (LA21) in many Euro-
pean countries provide a good opportunity for concrete
climate protection measures and the comprehensive integra-
tion of sustainable development in decision-making at the
level close to the citizen. Competitions
local and regional
could, for example, be used in order to identify and present
good local level practices.

C 57/86

EN

Official Journal of the European Communities

29.2.2000

4. Conclusions

The Committee of the Regions considers that imple-
4.1.
mentation of the Kyoto Protocol and achieving the 8 %
emission reduction stipulated by it requires national and
EU-wide measures.

The Committee of the Regions calls on the Helsinki
4.2.
European Council to make positive progress towards concrete
reductions in greenhouse gas emissions with regard to integra-
ting the various policies associated with the environment and
climate.

4.3.
The Committee of the Regions is of the view that
because of the enormous challenge posed by emission reduc-
tion, the broad-based involvement of many different kinds of
local players in national climate strategies is essential.

4.4.
The Committee of the Regions considers that the
options for local and regional authorities to influence green-
house gas issues are significant over both the short- and
long-term and are converging in many EU countries. The local
and regional level should, therefore, be taken into account in
national climate strategies and be treated as a relevant set of
players in themselves at the EU level.

4.5.
The European Union’s objectives include doubling the
use of renewable energy sources (12 % by the year 2010),
doubling the combined generation of heat and electricity,
improving energy efficiency and significantly increasing the
use of natural gas. In the view of the Committee of the Regions,
implementation of these objectives should be accelerated. The
COR also believes that the EU should aim to increase the share
of vehicles powered by alternative fuels such as hydrogen, bio
gas, ethanol fuel and methylester of rapeseed oil.

4.6.
The Committee of the Regions supports the Commis-
sion proposal for national emission trading experiments to
begin well before the deadline in 2008. The Committee
nevertheless emphasises the need for each country to put in
place its own climate protection measures as a first priority in
accordance with the Kyoto Protocol.

4.7.
The Committee of the Regions believes that with
regard to the flexibility mechanisms in the Kyoto Protocol, a

Brussels, 18 November 1999.

possible integrated policy on development assistance and
greenhouse gas emission reduction is important. After all, the
humanitarian role of official development assistance should
not be disregarded.

4.8.
The Committee of the Regions believes that, out of the
Kyoto Protocol’s flexibility mechanisms which are to be
joint implementation and the
implemented internationally,
clean development mechanism (CDM) supplement the signato-
ry countries’ own initiatives and can be naturally integrated
into the cooperation on emission reduction and the setting-up
of local government to be undertaken with the applicant
countries, the transition economies and other countries not
included in Annex 1 of the Kyoto Protocol.

4.9.
The Committee of the Regions feels that Member States
should reach a rapid consensus on a minimum level of energy
taxation.

4.10.
The Committee of the Regions considers that the
structural problems associated with the reduction of greenhou-
se gas emissions at local and regional level are being compensa-
ted for by EU wide and national funding.

4.11.
In connection with the reduction of greenhouse gas
emissions, an integrated cost-benefit analysis and evaluation
of the social impact requires greater research funding and
training. Local and regional considerations must be taken into
account by the fifth RTD framework programme.

The agreement procedure for reducing greenhouse
4.12.
gas emissions in cooperation with the local and regional level
should,
in the view of the Committee of the Regions, be
promoted. The COR calls on the EU and the Member States to
pursue such a dialogue and to support the regions in their
efforts to protect the global climate.

Focused support must continue at the national and
4.13.
EU level
for voluntary schemes, campaigns, programmes
and competitions which effectively promote the emission
reduction objectives.

In order to reduce the greenhouse gas emissions
4.14.
financial support must also be
resulting from transport,
provided for developing forms of transport serving local needs,
such as rail and public transport, cycling and walking.

The President

of the Committee of the Regions

Manfred DAMMEYER