Commission staff working document - Accompanying document to the communication from the Commission - Progress towards achieving the Kyoto objectives (required under Article 5 of Decision 280/2004/EC of the European Parliament and of the Council concerning a mechanism for monitoring Community greenhouse gas emissions and for implementing the Kyoto Protocol) {COM(2008) 651}
Date: 2008-10-16
Institutions: European Commission
Subjects: EU Member State, cooperation policy, greenhouse effect, prevention of pollution, reduction of gas emissions

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 16.10.2008 
SEC(2008) 2636 

COMMISSION STAFF WORKING DOCUMENT 

Accompanying document to the 

COMMUNICATION FROM THE COMMISSION 

PROGRESS TOWARDS ACHIEVING THE KYOTO OBJECTIVES  

(required under Article 5 of Decision 280/2004/EC of the European Parliament and of 
the Council concerning a mechanism for monitoring Community greenhouse gas 
emissions and for implementing the Kyoto Protocol) 

{COM(2008) 651} 

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1. 

1.1. 

DETAILED ANALYSIS OF EMISSION TRENDS IN THE MAIN SECTORS  

Energy supply and use, excluding transport 

•  Member  States  expect  the  EU  Emission  Trading  Scheme  (EU  ETS)  to  contribute  an 
emission  reduction  of  at  least  133  Mt  CO2  in  the  EU-27  in  2010.  Most  reductions  will 
result from actions in the energy and industrial sectors. 

•  For the energy supply and use sector (excluding transport), the key EU-wide Common and 
Coordinated Policies and Measures (CCPMs) that are projected to deliver greatest savings 
in  the  EU-27  are  in  the  areas  of  renewable  energy,  combined  heat  and  power  (CHP), 
energy taxation and building standards. 

•  Emission  reduction  potentials  for  energy  policies  have  stayed  relatively  constant  since 
2006 for the EU-15, with a broadly similar split between ‘existing’ and ‘planned’ policies. 

•  Policies and measures targeted at reducing emissions from energy generation are projected 

to provide greatest emission reductions in the energy supply and use sector by 2010. 

Table 1: GHG emissions from energy supply and use, excluding transport 
(1990-2006) 

Total GHG 
emission from 
energy supply 

EU-15 

EU-27 

Share in 1990 
total GHG 

Share in 2006 
total GHG 

Change 
1990-2006 

Change 
2000-2006 

60.3%

62.8%

59.0%

60.4%

4.3%

-11.2%

2.2% 

1.8% 

•  In  the  EU-15,  the  United  Kingdom  and  Germany  are  the  only  Member  States  projecting 
that  GHG  emissions  from  energy  supply  and  use  (including  transport)  in  2010  will  be 
lower than their 1990 emissions. 

•  All central and eastern European Member States project decreases in GHG emissions from 
energy supply and use (including transport) by up to 63% in the case of Estonia, except for 
Cyprus and Slovenia that project increased emissions in 2010 compared to 1990. 

1.2. 

Transport 

•  According to recent data on the effectiveness of the strategy to reduce CO2 emissions from 
cars (European Commission, 2008), all three associations reduced the average specific CO2 
emissions of their cars registered for the first time on the EU market in 2005 compared to 
2006 (ACEA (0.2 %), JAMA (3.1 %) and KAMA (1.3 %). Overall, average specific CO2 
emissions  from  new  cars  in  the  EU-15  -were  equal  to  160.4 g  CO2/vehicle-km  in  2006. 
This  was  0.7 %  below  the  2005  level  and  14 %  below  1990  levels.  In  order  to  meet  the 
EU’s final target of 120 g CO2/km, additional efforts are necessary.  

Table 2: GHG emissions from transport (1990-2006) 

Total GHG 
emissions 

Share  in  1990 
total GHG 

Share  in  2006 
total GHG 

Change 
1990-2006 

Change 
2000-2006 

EU-15 

EU-27 

16.4%

14.0%

21.1%

19.3%

25.8%

27.4%

5.0% 

7.4% 

•  CO2  emissions  from  road  transport  is  the  second  largest  key  category  in  EU-15  and 
contributes  19%  to  total  GHG  emissions  in  2006  (in  1990  the  share  was  at  15%).  CO2 
emissions from road transport increased by 25%, between 1990-2006.  

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•  Final energy demand for transport, passenger kilometres in cars and CO2 emissions show a 
very  similar  increasing  trend  of  about  25-30%,  while  the  increase  of  freight  transport  is 
much stronger, about 60 % in the EU-15. 

•  In 2006, the number of kilometres driven and emissions increased in all reporting countries 
compared to 1990, except Germany and the United Kingdom where emissions decreased. 
However,  all  reporting  Member  States  project  a  further  increase  of  kilometres  driven  by 
2010. 

•  In  the  EU-15,  GHG  emissions  from  transport  are  projected  to  decrease  slightly  between 
2006  and  2010,  approximately  26%  above  1990  levels  in  2010  with  existing  measures. 
These emissions  could  be  reduced at  19% above  1990 levels with the implementation of 
additional measures. 

•  Emissions from transport are projected to increase from 1990 levels in all EU-15 Member 
States  except  Germany.  The  lowest  increase  (lower  than  15%)  is  projected  in  Finland, 
Sweden  and  the  United  Kingdom.  Ireland  and  Portugal  project  an  increase  of  more  than 
200 %.  

•  From the central and eastern European Member States, the Czech Republic and Romania 
project  increase  of  more  than  200  %  of  their  transport  emissions.  Lithuania  is  the  only 
Member State projecting emissions in 2010 to be lower than 1990. 

1.3. 

Agriculture  

•  The  drop  in  GHG  emissions  from  fertiliser  use  between  1990  and  2006  was  achieved 
partly through the 1992 reform of the Common Agricultural Policy (CAP), resulting in a 
shift  from  production-based  support  mechanisms  to  direct  area  payments  to  agricultural 
production.  The  2003  CAP  reform,  which  included  further  decoupling  of  support  from 
production, subject to the respect by farmers of a set of environmental legislation and other 
agricultural  and  environmental  conditions  (cross  compliance),  and  measures  within  the 
Rural  Development  Policy,  such  as  agro-environment  programmes  supporting 
extensification  measures,  are  expected  to  lead  to  a  further  decline  in  GHG  emissions.  In 
addition, reduction in fertiliser use has also been achieved due to the implementation of EU 
legislation, particularly the Nitrates Directive. 

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Table 3: GHG emissions from agriculture (1990-2006) 

GHG emission 
from 4 

Share in 1990 
total GHG 

Share in 2006 
total GHG 

Change 
1990-2006 

Change 
2000-2006 

EU-15 

EU-27 

10.2%

10.6%

9.3%

9.2%

-11.4%

-20.1%

-6.9% 

-5.7% 

•  In  the  EU-27,  decreases  in  mineral  and  organic  (manure)  nitrogen  fertiliser  use  and  the 
efficiency  improvements  of  farming  practices,  are  likely  to  reduce  N2O  emissions,  while 
decreases in the number of ruminants (cattle and sheep) and increases in cattle productivity 
are likely to contribute to a decline in emissions of methane. 

•  With the existing measures, emissions from agriculture are projected to be reduced by 2% 
compared  to  current  levels  and  by  13  %  compared  to  1990  levels.  Portugal  and  Spain 
project that their GHG emissions from agriculture in 2010 will be higher than in 1990. The 
highest relative reductions with all measures considered (more than 20 %) are projected by 
the Netherlands, Finland, Denmark, Germany and the United Kingdom. 

•  All central and eastern European Member States, except Cyprus, project decreases in GHG 

emissions from agriculture compared to 1990 emissions.  

1.4. 

Industrial processes 

•  Policies  and  measures  are  mainly  aimed  at  abatement  measures  in  adipic  and  nitric  acid 
production  (to  reduce  N2O  emissions)  and  on  alternatives  (substitutes)  for  HFCs  in 
refrigeration  and  air  conditioning.  Policies  and  measures  in  most  Member  States  to 
implement the F-gas regulation and directive are at an early stage of development. 

Table 4: GHG emissions from industrial processes (1990-2006) 

Total GHG 
emissions 

Share  in  1990 
total GHG 

Share  in  2006 
total GHG 

Change 
1990-2006 

Change 
2000-2006 

EU-15 

EU-27 

8.8%

8.6%

7.9%

8.1%

-12.1%

-12.8%

-0.3% 

3.1% 

•  Emissions  from  industrial  processes  are  projected  to  remain  at  the  current  level  of  12% 
below  1990  levels.  In  the  EU-15,  Belgium,  Germany,  the  Netherlands  and  the  United 
Kingdom project that greenhouse gas emissions from industrial processes in 2010 will be 
lower  than  1990  emissions  with  existing  measures.  The  highest  relative  reductions  are 
projected by the United Kingdom. 

•  Seven  central  and  eastern  European  Member  States  (Bulgaria,  Cyprus,  Czech  Republic, 
Estonia,  Hungary,  Poland  and  Romania)  project  decreases  in  GHG  emissions  from 
industrial processes compared to 1990 emissions.  

1.5.  Waste management  

•  Decreases in emissions of methane in particular but also carbon dioxide and nitrous oxide 
are expected to result from a range of (solid and water) waste management schemes, taxes 
and other measures such as the EU Landfill Tax (expected to reduce emissions by 5.8 Mt 
CO2-eq. in 2010). 

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Table 5: GHG emissions from waste management (1990-2006) 

GHG emission 
from 6 

Share  in  1990 
total GHG 

Share  in  2006 
total GHG 

Change 
1990-2006 

Change 
2000-2006 

EU-15 

EU-27 

4.1%

3.9%

2.6%

2.9%

-38.7%

-31.5%

-22.7% 

-17.6% 

•  Emissions from the waste sector are projected to decrease more than in any other sector by 
2010 (-44%). The highest reductions (more than 50%) are projected by Belgium, Germany, 
the  Netherlands,  Sweden  and  the  United  Kingdom.  Only  Ireland,  Portugal  and  Spain 
project that their greenhouse gas emissions from waste in 2010 will be higher than in 1990. 

•  Only  three  of  the  EU-12  Member  States  (Bulgaria,  Cyprus  and  Lithuania)  project 

decreases in GHG emissions from waste compared to 1990 emissions. 

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Table 6: GHG emissions in CO2 equivalents (excl. LULUCF) and Kyoto Protocol targets 
for 2008–12 

Member State 

1990  
(million 
tonnes) 

Base year(1) 
(million 
tonnes) 

2006 (3) 
(million 
tonnes) 

Change 
2005–2006 
(%)  

 Change  
base year–
2006  
(%) 

Targets 2008–12 
under Kyoto Protocol 
and "EU burden 
sharing"  
(%) 

Targets 2008–12 
under Kyoto Protocol 
and "EU burden 
sharing"  
(million tonnes) 

Austria 

Belgium  

Bulgaria 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Luxembourg 

Malta 

Netherlands 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

EU-15 

EU-27(2) 

79.2

144.5

116.7

6.0

194,2

69

41.6

70.9

79.0 

145.7 

132.6 

6.0 

194.2 

69.3 

42.6 

71.0 

91.1

137.0

71.3

10.0

148.2

70.5

18.9

80.3

563.3

563.9 

541.3

1,227.7

1,232.4 

1,004.8

104.6

98.2

55.5

516.9

26.5

49.4

13.2

2.2

211.7

453.6

59.1

247.7

73.7

18.6

287.7

72.0

768.5

107.0 

115.4 

55.6 

516.9 

25.9 

49.4 

13.2 

2.2 

213.0 

563.4 

60.1 

278.2 

72.1 

20.4 

289.8 

72.2 

776.3 

133.1

78.6

69.8

567.9

11.6

23.2

13.3

3.2

207.5

400.5

83.2

156.7

48.9

20.6

433.3

65.7

652.3

4243.8

5572

4,265.5 

5,768.0 

4151.1

5142.8

-2.3%

-3.8%

1.2%

1.6%

1.7%

10.9%

-2.3%

16.3%

-2.5%

-0.2%

-0.5%

-2.0%

-0.8%

-1.7%

4.4%

2.4%

0.2%

-0.3%

-2.0%

3.7%

-4.8%

3.1%

-0.9%

0.6%

-1.7%

-1.7%

-0.5%

-0.8%

-0.3%

15.2%

-6.0%

-46.2%

66.0%

-23.7%

1.7%

-55.7%

13.1%

-4.0%

-18.5%

24.4%

-31.9%

25.5%

9.9%

-55.1%

-53.0%

1.2%

45.0%

-2.6%

-28.9%

38.3%

-43.7%

-32.1%

1.2%

49.5%

-8.9%

-16.0%

-2.7%

-13.0% 

-7.5% 

-8.0% 

na 

-8.0% 

-21.0% 

-8.0% 

0.0% 

0.0% 

-21.0% 

25.0% 

-6.0% 

13.0% 

-6.5% 

-8.0% 

-8.0% 

-28.0% 

na 

-6.0% 

-6.0% 

27.0% 

-8.0% 

-8.0% 

-8.0% 

15.0% 

4.0% 

-12.5% 

-8.0% 

68.8

134.8

122.0

na

178.7

54.8

39.2

71.0

563.9

973.6

133.7

108.5

62.8

483.3

23.8

45.5

9.5

na

200.3

529.6

76.4

256.0

66.3

18.7

333.2

75.0

679.3

3924.3

-10.8% No common target  No common target

(1)  For  EU-15  the  base  year  for  carbon  dioxide,  methane  and  nitrous  oxide  is  1990;  for  the  fluorinated  gases  12  Member 
States have selected 1995 as the base year, whereas Austria, France and Italy have chosen 1990. As the EU-15 inventory is 
the  sum  of  Member  States’  inventories,  the  EU-15  base  year  estimates  for  fluorinated  gas  emissions  are  the  sum  of  1995 
emissions  for  12  Member  States  and  1990  emissions  for  Austria,  France  and  Italy.  The  EU-15  base  year  emissions  also 
include emissions from deforestation for the Netherlands, Portugal and the UK. The base year for carbon dioxide, methane 
and  nitrous  oxide  for  Bulgaria  is  1988,  for  Hungary is  the average  of  1985-1987,  for  Slovenia  1986,  for  Poland 1988,  for 
Romania 1989; for the fluorinated gases Slovakia has chosen 1990 as the base year and Romania 1989 all other central and 
eastern European members states have selected 1995. 

(2) EU-27 does not have a common Kyoto Protocol target. 

(3) This data has not yet been reviewed by the UNFCCC. 

Note: Malta and Cyprus do not have Kyoto targets.

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Table 7: EU Kyoto targets for 2008–12, compared with emission projections 

With existing policies and 
measures

Use of Kyoto Mechanisms 
(Govt.)

Use of Carbon Sinks

 Additional policies and 
measures

With all measures, KM and carbon sinks

 Kyoto BY 
emissions 

Kyoto targets

Projections for 2010

Effect  in 2010

Effect in 2010

Effect in 2010

Projections for 2010

Gap between 
projections and target 

MtCO2

MtCO2

 % of BY MtCO2

 % of BY

  Mt CO2

 % of BY

 MtCO2

 % of BY

  MtCO2

 % of BY

  MtCO2

 % of BY

  MtCO2

 % of BY

Austria
Belgium
Bulgaria
Cyprus
Czech Republic
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Luxembourg
Malta
Netherlands
Poland
Portugal
Romania
Slovakia
Slovenia
Spain
Sweden
United Kingdom

EU-15

EU 27

79.0
145.7
132.6
6.0
194.2
69.3
42.6
71.0
563.9
1232.4
107.0
115.4
55.6
516.9
25.9
49.4
13.167
2.2
213.0
563.4
60.1
278.2
72.1
20.4
289.8
72.2
776.3

4265.5

5768.0

68.8
134.8
122.0
na
178.7
54.8
39.2
71.0
563.9
973.6
133.7
108.5
62.8
483.3
23.8
45.5
9.5
na
200.3
529.6
76.4
256.0
66.3
18.7
333.2
75.0
679.3

3924.3

na

-13.0%
-7.5%
-8.0%
na
-8.0%
-21.0%
-8.0%
0.0%
0.0%
-21.0%
25.0%
-6.0%
13.0%
-6.5%
-8.0%
-8.0%
-28.0%
na
-6.0%
-6.0%
27.0%
-8.0%
-8.0%
-8.0%
15.0%
4.0%
-12.5%

-8.0%

na

92.8
140.3
93.1
8.7
145.4
67.8
15.9
85.0
568.3
955.1
132.6
86.7
68.3
555.4
14.0
34.4
13.571
3.5
208.3
403.2
86.7
190.9
58.8
21.7
440.5
70.2
625.4

4110.2

5186.4

17.4%
-3.7%
-29.8%
44.3%
-25.1%
-2.2%
-62.8%
19.7%
0.8%
-22.5%
23.9%
-24.9%
22.8%
7.5%
-46.1%
-30.4%
3.1%
61.8%
-2.2%
-28.4%
44.2%
-31.4%
-18.4%
6.7%
52.0%
-2.7%
-19.4%

-3.6%

-10.1%

-9.0
-7.0

-4.2

-1.4

-11.4%
-4.8%

-6.1%

-2.0%

-3.6
-20.7

-6.5%
-4.0%

-3.942

-29.9%

-13.0

-6.1%

-5.8

-9.6%

-0.6
-57.8

-2.9%
-19.9%

-126.5

-127.1

-3.0%

-2.2%

7 

EN 

-0.7

-0.9%

-1.2
-2.3

-0.6
-4.1
-4.5
-1.2

-2.1
-25.3

-0.1
-3.0
-4.7

-1.7
-5.8
-2.1
-4.0

-57.5

-63.4

-0.6%
-3.3%

-0.8%
-0.7%
-0.4%
-1.1%

-3.7%
-4.9%

-0.1%
-0.5%
-7.7%

-8.3%
-2.0%
-3.0%
-0.5%

-1.3%

-1.1%

-14.6
0.0
-6.8
-0.2
-6.0
0.0
-1.3
-12.4
-24.0
-40.9
-2.1
-0.6
-0.1
-16.5
0.0
0.0
-0.15
0.0
0.0
0.0
-2.4
-10.8
-2.3
-1.8
-27.8
0.0
0.0

-140.9

-170.7

-18.4%
0.0%
-5.2%
-2.9%
-3.1%
0.0%
-3.0%
-17.4%
-4.3%
-3.3%
-2.0%
-0.5%
-0.2%
-3.2%
0.0%
0.0%
-1.1%
0.0%
0.0%
0.0%
-4.0%
-3.9%
-3.2%
-8.7%
-9.6%
0.0%
0.0%

-3.3%

-3.0%

68.6
133.3
86.3
8.5
138.3
61.3
14.6
70.6
540.2
909.7
129.3
86.0
62.5
492.9
14.0
34.4
9.481
3.5
195.2
400.2
73.8
180.0
56.5
17.7
349.1
68.0
621.3

3785.3

4825.3

-13.3%
-8.5%
-34.9%
41.4%
-28.8%
-11.6%
-65.7%
-0.6%
-4.2%
-26.2%
20.8%
-25.4%
12.4%
-4.6%
-46.1%
-30.4%
-28.0%
61.8%
-8.4%
-29.0%
22.7%
-35.3%
-21.6%
-13.2%
20.5%
-5.7%
-20.0%

-11.3%

-16.3%

-0.2
-1.5
-35.7
na
-40.4
6.5
-24.6
-0.4
-23.7
-63.9
-4.5
-22.4
-0.3
9.6
-9.9
-11.1
0.0
na
-5.1
-129.5
-2.6
-75.9
-9.8
-1.1
15.8
-7.0
-58.0

-139.0

-0.3%
-1.0%
-26.9%
na
-20.8%
9.4%
-57.7%
-0.6%
-4.2%
-5.2%
-4.2%
-19.4%
-0.6%
1.9%
-38.1%
-22.4%
0.0%
na
-2.4%
-23.0%
-4.3%
-27.3%
-13.6%
-5.2%
5.5%
-9.7%
-7.5%

-3.3%

na

na

EN 

 
  
Table 8: Aggregate of MS' projections for the various scenarios 

Base Year  

Without Kyoto 
mechanisms and 
carbon sinks 

With Kyoto 
mechanisms 

With Kyoto 
mechanisms and 
carbon sinks 

% 
Change
base 
year-
2010 

2010 
Mt CO2 
eq. 

Mt CO2 eq. 

2010 
Mt CO2 
eq. 

% Change
base year-
2010 

2010 
Mt CO2 
eq. 

% 
Change
base 
year-
2010 

With additional 
measures, Kyoto 
mechanisms and carbon 
sinks 

2010 
Mt CO2 
eq. 

% Change
base year-
2010 

Aggregate of EU-15 MS 
with measures projections 

Aggregate of EU-27 MS 
with measures projections 

4,266

4,110

-3.6% 3,984  

-6.6% 3,926  

-8.0% 3,785  

-11.3%

5,768

5,186

-10.1% 5,059  

-12.3% 4,996  

-13.4% 4,825  

-16.3%

EN 

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Table 9: Summary of implemented and planned policies and measures 

Cross-cutting measures 

Policies and measures 

‘Cross-cutting’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation /timetable 
/comments 

EU emissions trading scheme 

Revision of the monitoring mechanism 

146 

N/a 

In force 

In force  

Link  Kyoto  flexible  mechanisms  to  emissions 
trading 

187.5 

In force 

Energy Supply 

Policies and measures 

‘Energy supply’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation /timetable 
/comments 

Directive on renewable electricity  

100-125 (14) 

In force  

Directive on the promotion of transport bio-fuels  

Directive on promotion of cogeneration 

Further  measures  on  renewable  heat  (including 
biomass action plan) 

Intelligent  Energy  for  Europe:  programme  for 
renewable energy 

35-40(14) 

22-42(15) 

36-48 

In force  

In force 

Biomass  Action  Plan,  Dec  2005(16),  over  20  further  actions 
planned 

N/a 

Programme for policy support in renewable energy  

TOTAL in implementation  

193-255 

Energy demand 

Policies and measures 

‘Energy demand’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation / timetable 
/comments 

Directive on the energy performance of buildings 

20 (17) 

Directive  requiring  energy  labelling  of  domestic 
appliances 

Existing labels 

New (el. ovens &AC) 

Envisaged  revisions  (refrigerators  /  freezers  / 
dishwashers) 

Planned new (hot water heaters) 

Extension of scope of Directive 

20(14) 

1 

10 

23 

N/k 

In force  

Monitoring and review 

In force 

Monitoring and review 

In preparation 

In preparation 

In preparation 

Directive 
Framework 
requirements of energy-using products  

on 

eco-efficiency 

dependent on implementation 
of daughter directives 

force;  preparatory  studies 

In 
underway 

for  daughter  directives 

EN 

9 

   EN 

 
 
 
 
 
 
 
 
 
 
Directive on Energy services 

40-55(14) 

In force 

Action Plan on Energy efficiency as a follow-up to 
the Green Paper  

N/a 

Launched  Oct  2006(18).  Identifies  10  priority  actions  to 
achieve up to 20% energy savings by 2020.  

Action  under  the  directive  on  integrated  pollution 
prevention and control (IPPC) on energy efficiency 

Not known 

In preparation  

Intelligent  Energy  for  Europe  programme  for 
energy efficiency 

Public awareness campaign on energy efficiency 

Programme for voluntary action on motors (Motor 
Challenge)  

Public procurement 

TOTAL in implementation 

N/a 

N/a 

30(18) 

25-40(14) 

169-199 

Programme for policy support in energy efficiency 

Supporting program as part of Intelligent Energy for Europe: 
In implementation 

Supporting  programme  for  voluntary  action  on  efficient 
motor systems 

EU  Handbook  developed  for  guidance  for  increased  energy 
efficient public procurement 

EN 

10 

   EN 

 
 
 
Transport 

Policies and measures 

‘Transport’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation / timetable / 
comments 

Community  strategy  on  CO2  from  passenger  cars 
(including  voluntary  commitment  (VC)  of  car 
manufacturers’ associations) 

Total 107-115 

VC: monitoring; review ongoing 

Labelling: in force  

Of which VC: 75-80(14) 

Communication on fiscal measures: in implementation 

Directive on taxation of passenger cars: in preparation  

Framework  Directive 
charging 

Infrastructure  use  and 

Not known 

In  implementation,  in  relation  to  heavy  duty  road  transport 
only; amending "Eurovignette" Directive is now proposed(19) 

Shifting the balance of transport modes 

Not known 

Package of measures in implementation  

Fuel taxation 

Not known 

In force  

Focus  on  EU  harmonisation  of  taxation,  not  on  CO2 
reduction; ongoing review  

Directive  on  mobile  air  conditioning  systems: 
HFCs 

See regulation on fluorinated 
gases 

In force 

TOTAL in implementation 

107 - 115 

Industry & non CO2 gases 

Policies and measures 

‘Industry’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation / timetable / 
comments 

Regulation on fluorinated gases 

IPPC & non-CO2 gases  

Waste 

23(20) 

Not known 

In force 

In force 

Review periodically 

Policies and measures 

‘Waste’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation / timetable / 
comments 

Landfill Directive 

41(14) 

In force 

Thematic strategy on waste 

Not known 

Launched December 2005(21) 

EN 

11 

   EN 

 
 
 
 
 
 
Integration Research & Development 

Policies and measures 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation /timetable 
/comments 

R&D framework Program 

n/a 

In  force  6  and  7  Framework  Programme  for  research  and 
development. 

Includes  support  for  R&D  in  the  fields  of  energy,  transport 
and climate. 

Integration Cohesion Policy 

Policies and measures 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation /timetable 
/comments 

Integration  climate  change  in  structural  funds 
&cohesion fund 

n/a 

the  new  budgetary  period  2007-2013  sustainable 
renewable  energy  and  energy 

For 
transport,  adaptation, 
efficiency have been identified as eligible areas for support  

EN 

12 

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Agriculture 

Policies and measures 

‘Agriculture’ 

Emission reduction 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation /timetable 
/comments 

Integration climate change in rural development  

Support scheme for energy crops 

CAP Reform 

Improve  N  fertiliser  efficiency  and  reduce  N2O 
from agricultural soils 

N/a 

N/a 

19  

10 

In force 

In force 

CAP reform of 2003:  

1) Decoupling: change support to farmers towards direct aids 
decoupled  from  production  quantities  with  the  effect  of 
reducing incentives to intensify production;  

2)  ‘‘Cross-compliance’:  links  direct  payments  to  farmers  to 
their  compliance  with  EU  environmental  and  other 
legislation  and  a  set  of  good  agricultural  and  environmental 
conditions  (GAEC)  aimed  at  protecting  soil  resources  and 
enhancing farmland sink capacity.  

1) Improved implementation of the Nitrates Directive, setting 
rules,  for  instance,  on  fertiliser  use,  manure  storage  and 
application methods. 

2)  Possibility  for  support  to  emissions  reduction  measures 
through Rural development programmes, such as:  

• 

• 

• 

support  for 
application of fertilisers,  

investments  on  equipment  for  better 

agri-environment measures (e.g., reduction of N inputs), 
support for afforestation of farmland  

Reduction  of  CH4  and  N2O  from  animal  manure 
(Anaerobic digestion) 

1.7 

Possibility 
programmes: 

for  support 

through  Rural  development 

•  support  for  investments  in  manure  storage 
facilities and equipment for better application 
of manure, 

•  support for Anaerobic digestion facilities 

•  agri-environment 

measures 

(e.g., 

extensification of livestock 

EN 

13 

   EN 

 
 
 
Forests 

Policies and measures 

‘Forests’ 

Sequestration 
potential by 2010 in 
EU-15 (Mt CO2-eq.) 

Stage of implementation /timetable 
/comments 

Afforestation and reforestation:  

- Afforestation programmes 

- Natural forest expansion 

Forest  management  (various  measures  to  enhance 
carbon sink pool, such as continuous forest cover, 
special regeneration systems) 

forests  damaged  by  natural 
Restoration  of 
disasters,  fires,  pests  damage,  and  forest  fire 
prevention actions  

14(14) 

19(14) 

Possibility for support through measures for forestry scheme 
of  afforestation  of  agricultural  land  and  reforestation  under 
the rural development programmes 

Possibility for support through forestry-environment scheme 
measures  of  rural  development  programmes;  uptake  of 
measures, dependent on national implementation. 

for 

rural  development 
Possibility 
programmes, specific measure for restoring forestry potential 
and introducing prevention actions 

through 

support 

EN 

14 

   EN 

 
 
Table 10: Key figures of the emissions trading scheme for 2005 to 2007 

EU-27 

Type of installations 

Average 2005/2007 

Number 
of 
installa-
tions 

Allocated 
allowances 

Verified 
emissions 

Difference between 
allocation and 
verified emissions 

[1000 EUA(1) ] 

[kt CO2] 

[1000 EUA]

[%] 

1 

Combustion installations  

7008

1 503 072

1 501 109 

-29 075

2  Mineral oil refineries 

155

164 757

154 325 

3 

Coke ovens 

4  Metal ore roasting or sintering  

5 

6 

Production of pig iron or steel  

Production of cement clinker or lime  

7  Manufacture of glass incl. glass fibre 

20

27

232

518

404

22 789

20 856 

20 504

18 389 

10 432

10%

173 323

141 805 

1 933

18%

191 995

182 839 

2 115

5%

22 598

19 995 

31 518

12%

0%

6%

8%

6 241

1 963

8  Manufacture of ceramic products 

1119

18 418

14 987 

9 156

19%

9 

Production of pulp, paper and board 

99  Other activity opted-in  

794

398

37 608

29 894 

2 603

21%

425

293 

3 431

31%

All installations 

10 675

2 155 489

2 084 492 

70 996

3 %

Notes: 

(1) EUA=European Union Allowance 
(2) Exact numbers show small variations through time, due to new entrants, closures, corrections and other reasons. Bulgaria 
and Romania only entered the EU ETS in 2007, data for Romania are for 2007 only. 
Source:  Community independent transaction log (CITL) (29 May 2008). 

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Table 11: Overview of 2nd NAPs and estimated emission reductions 
(Cap allowed - 
additional 
emissions - 
avg.2005/2007 
emissions)/base 
year emissions  
-2.8% 

ETS share 
in total 
GHG 
emissions 
2006 
35% 

Cap 
allowed 
2008-2012 
(relative to 
proposed) 

Proposed 
cap 
2008-
2012 
32.8 

Additional 
emissions 
in 2008-
2012(1)  
0.4 

2005/2007 
verified 
emissions 

30.7 

Member State 
Austria 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Luxembourg 

Malta 

Netherlands 

Poland 

Portugal 

Romania 

Slovak Republic 

Slovenia 

Spain 

Sweden 

United Kingdom 

EU-15 

EU-27 

40% 

51% 

53% 

56% 

49% 

64% 

56% 

23% 

48% 

54% 

33% 

31% 

40% 

25% 

28% 

20% 

62% 

37% 

50% 

40% 

44% 

52% 

43% 

41% 

30% 

39% 

40% 

39% 

32.5 
54.3(1) 
40.6(2,3) 

5.2 

84.5 

30.4 

13.3 

40.1 

125.8 

474.0 

71.3 

26.1 

21.7 

221.7 

2.8 

6.3 

2.6 

2.0 

78.9 

207.4 

33.5 
69.6(2) 

25.2 

8.8 

183.0 

19.4 
244.5(6) 
1633.2 (6) 
2125.1(6) 

63.3 

67.6 

7.1 

101.9 

24.5 

24.4 

39.6 

132.8 

482.0 

75.5 

30.7 

22.6 

209.0 

7.7 

16.6 

4.0 

3.0 

90.4 

284.6 

35.9 

95.7 

41.3 

8.3 

152.7 

25.2 

246.2 

1636.5 

2325.3 

58.5 

42.3 

5.5 

86.8 

24.5 

12.7 

37.6 

132.8 

453.1 

69.1 

26.9 

22.3 

5.0 

n.a. 

n.a. 

n.a. 

0.0 

0.3 

0.4 

5.1 

11.0 

n.a. 

1.4 

n.a. 

195.8 

n.k.(4) 

3.4 

8.8 

2.5 

2.1 
85.8 (7) 

208.5 

34.8 

75.9 

32.6 

8.3 

152.3 

22.8 

246.2 
1568.8 

2082.6 

n.a. 

0.1 

n.a. 

n.a. 
4.0(7) 

6.3 

0.8 

n.a. 

1.7 

n.a. 
6.7(5) 

2.0 

39.5 
74.9 

84.7 

-0.5% 

1.3% 

3.4% 

1.2% 

-8.5% 

-2.1% 

-4.1% 

0.3% 

-2.6% 

-1.6% 

-0.5% 

1.1% 

-5.0% 

2.3% 

4.9% 

-0.8% 

4.6% 

1.4% 

-0.9% 

0.8% 

2.3% 

7.9% 

-2.5% 

-12.9% 

1.9% 

-4.9% 

-3.3% 

-2.2% 

JI/CDM 
limit 
2008-
2012 

10.0 % 

8.4 % 

12.6 % 

10.0 % 

10.0 % 

17.0 % 

0.0 % 

10.0 % 

13.5 % 

20.0(c) % 

9.0 % 

10.0 % 

10.0 % 

15.0 % 

10.0 % 

20.0 % 

10.0 % 

10.0 % 

10.0 % 

10.0 % 

10.0 % 

10.0 % 

7.0 % 

15.8 % 

20.0 % 

10.0 % 

8.0 % 
- 

- 

Notes: 
This is due to new entrant reserves, closures and other cases where EU allowances (EUA) are not allocated to specific installations. 

(0) The figures indicated in this column comprise emissions from installations that come under the coverage of the scheme in 2008 to 2012 
due to an extended scope applied by the Member State and do not include new installations entering the scheme in sectors already covered in 
the first trading period. 

(1) Including installations which Belgium opted to exclude temporarily from the scheme in 2005. 

(2) Due to the recent accession of Bulgaria and Romania to the EU, their 2005 emissions were not independently verified.  

(3) The value represents the verified emissions of 2005. It was taken from the Commission summary information table. 

(4) Italy has to include further installations. The amount of additional emissions is not known at this stage. 

(5) Additional installations and emissions of over 6 million tonnes are already included as of 2006. Emissions from these installations were 
not included in the column ‘verified emissions 2005–2007’ 

(6) Verified emissions for 2005 do not include installations which the UK opted to exclude temporarily from the scheme in 2005 but which 
will be covered in 2008 to 2012 and are estimated to amount to some 30 Mt. 

(7)In the final Dutch NAP II (16 May 2007), these values are increased by 0.935 MT due to 36 additional installations that are included in 
NAP II 
Source: CITL (29 May 2008); European Commission 2007. 

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Table 12: Planned government use of the Kyoto mechanisms 

Member State   Planned use 

of Kyoto 
mechanisms  

Type of Kyoto 
mechanisms 
(ET, CDM, JI)  

Achievement 
of Kyoto 
target 
planned 
through 
domestic 
action only 

Projected emission 
reduction 2008-12 
through the use of 
Kyoto mechanisms 
[Mt CO2 equivalent 
per year] 

Budget
[Mio €] 

Austria 
Belgium 
Bulgaria 
Cyprus 
Czech 
R
bli
Denmark 
Estonia 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 
United 
Ki d
EU15 
EU27 

Yes 

Yes 

No 

No 

No 

Yes 

No 

Yes 

No 

No 

No 

No 

Yes 

Yes 

No 

No 

Yes 

No 

Yes 

No 

Yes 

No 

No 

Yes 

Yes 

No  

No 

Yes 

JI, CDM, ET 

JI, CDM, ET 

No

No 

- 

- 

- 

JI, CDM, ET 

- 

JI, CDM, ET 

- 

- 

- 

- 

JI, CDM, ET 

JI, CDM, ET 

- 

- 

JI, CDM, ET 

- 

CDM, JI, ET

- 

JI, CDM, ET 

- 

- 

JI, CDM, ET 

JI, CDM, ET 

(JI, CDM) 

- 

JI, CDM, ET 

Yes
Not applicable(a)

Yes

No 

Yes

No 

Yes

Yes

Yes

Yes

No 

No 

Yes

Yes

No 
Not applicable(a)

No 

Yes

No 

Yes

Yes

No 

No 

Yes 

Yes

No 

9.0

7.0

-

-

-

4.2

-

1.4

-

-

-

-
3.6(b)

20.7

-

-
3.6 to 4.3(c) 

-

13.0

-

5.8

-

-
< 0.6(b)

57.8
-1.3(d)

-

126.5

127.1

531.0

104.0

152.0

121.0

23.0

290.0

78.8

400.0

505.0

354.0

383.6

8.7

2951

2951

Notes:  
(a ) Cyprus and Malta are non-Annex I Parties to the Kyoto Protocol and do not have an emissions target for the period 2008-12. 
(b) The value for projected emissions reductions through the use of Kyoto mechanisms depends on the actual development of emissions, 
especially in the transport sector. 
(c) Luxembourg: The range of projected emissions reductions through the use of Kyoto mechanisms results from different projection 
scenarios (“pessimistic” or “optimistic”) with respect to the transport sector, which represented about 55% of Luxembourg’s total greenhouse 
gas emissions in 2006 (excl. LULUCF) 
(d) Sweden intends to achieve its Kyoto target without the use of flexible mechanisms but has made the necessary preparations to use them if 
necessary. Sweden intends to acquire 1.3 Mt CO2-eq/yr through the Swedish CDM and JI programme. This figure has not been considered in 
the target assessment for Sweden and the EU-15. 
The exchange rate US$ per Euro was assumed to be at 1.5. 
Source: Questionnaires submitted under the EC greenhouse gas Monitoring Mechanism; European Commission Decisions on the second 
national allocation plans under the EU ETS; Second national allocation plans by countries. 

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Table 13: Projected net carbon stock changes under Articles 3.3 and 3.4 for the first 
commitment period 

Article 3.4 

Total 

Election of 
activities(1) 

Net carbon stock 
change during 2008–12

[million tonnes CO2 
per year] 

Maximum 
allowance for forest 
management 
[million tonnes CO2 
per year] 

[million tonnes CO2 
per year] 

Article 3.3 

Net carbon stock 
change during 2008–
12 
[million tonnes CO2 
per year] 

- 0.7 

No estimates 

Not reported 

Not reported 

Austria 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Probably small sink 

None

None

None

n.a.

FM 

n.a.

n.a.

n.a.

n.a.

Likely larger than max. 
allowance

- 0.262 

FM, CM, GM (1)

FM: - 0.18 CM: - 1.82

No estimates 

None

n.a.

+ 1.9 to + 2.4 

- 0.84 

No estimates 

- 0.90 

Not reported 

- 2.07 

- 15.1 

Not reported 

No estimates 

Not reported 

Not reported 

- 0.11 

Net sink 

FM

FM

FM

FM

FM

None

FM

FM

FM

None

n.a.

None 

FM 

- 2.5 to - 3.0

- 67.63

- 7.3

- 2 to - 4

Not reported

n.a.

- 10.2

Not reported

No estimates available

n.a.

n.a.

n.a. 

Likely larger than max. 
allowance 

- 3.36 

FM, CM, GM

FM: - 0.8 CM & GM: -

Not reported 

FM, Revegetation

Not reported

Net sink 

- 0.36 

None

FM

n.a.

- 1.32

Not estimated 

FM, CM

Not estimated 

Denmark 

Estonia 

Finland(4) 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Luxembourg 

Malta 

Netherlands 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain (2) 

Sweden 

n.a. 

n.a. 

n.a. 

n.a. 

- 1.17 

- 0.18 

n.a. 

- 0.59 

- 3.23 

- 4.55 

- 0.33 

- 1.06 

n.a. 

- 10.19 

- 1.25 

- 1.03 

n.a. 

n.a. 

n.a. 

- 3.01 

- 0.81 

- 4.03 

n.a. 

- 1.32 

- 2.46 

- 2.13 

- 1.36 

-0.7

n.e.

n.e.

n.e.

-1.2 

-2.3

n.e.

-0.6

-4.1

-4.5

-1.2

n.e.

-2.1

-25.3

n.e.

n.e.

n.e.

n.e.

-0.1 

-3.0 

-4.7

n.e.

n.e.

-1.7

-5.8

-2.1 

-4.0

-57.5

-63.4

Probably small net 
debit 

United Kingdom 

EU15 

EU27 

- 2.68 

-23.87 

-24.23 

FM 

FM

Likely larger than max. 
allowance 

-1.69

-25.68

-31.17

Notes:  
Consistent with the reporting of emission inventories a negative sign ‘-’ is used for removals and a positive sign ‘+’ for emissions; n.a.: not 
applicable. 
(1) FM: forest management; CM: cropland management; GM: grazing-land management. 
(2) Spain only estimated the aggregated reductions of Articles 3.3 and 3.4 together. 
(3) The totals for Art. 3.3 and 3.4 do not include Spain. 
(4) In addition to accounting for forest management up to the maximum allowance Parties may account for removals from forest management 
to compensate net emissions under Art. 3.3. In Finland removals from forest management are projected to exceed the sum of emissions under 
Art. 3.3. and the maximum allowance for forest management. 
Source: Questionnaires submitted by Member States, The European Community's initial report under the Kyoto Protocol (EEA Technical 
report No 10/2006); Second national allocation plan under the EU ETS of Italy; Decisions 16/CMP.1 and 8/CMP.2 of the Conference of the 
Parties serving as the Meeting of the Parties to the Kyoto Protocol. 

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Figure 1: Greenhouse gas emissions per capita of EU-27 Member States for 1990 and 2006 

EN 

19 

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Technical notes 

In  connection  with  Council  decision  2002/358/EC,  the  Council  of  Environment  Ministers  and  the 
Commission  have,  in  a  joint  statement,  noted  “that  the  respective  emission  levels  referred  to  in  the 
decision shall be expressed in terms of tonnes of carbon dioxide equivalent, …, taking into account the 
assumptions relating to base year emissions as also reflected in the relevant statements to the Council 
minutes  to  the  Council  Conclusions  of  16-17  June  1998.  …”.  In  2006,  it  was  decided  to  postpone  a 
decision on this until after all community and MS initial reports have been reviewed under the Kyoto 
Protocol. 

Under the EU monitoring mechanism decision (Decision 280/2004), all MS submitted all or almost all 
Common Reporting Format (CRF) tables, (i.e., more than 90 %) for 1990–2006. 

Based on Member State (MS) submissions until May 31st. 

This corresponds to fuel consumption of 4.5 litres per 100 km for diesel cars and 5 l/100 km for petrol 
cars. 

COM(2007) 18 

COM(2008) 16 final 

COM (2008)17 final 

COM(2008) 19 final 

COM(2008) 13 final 

COM (2008) 18 final 

COM(2007) 723 final 

Please note that no data for Bulgaria is included yet, data for Romania are for 2007 only. 

The  ‘combustion  installations’  sector  contains  units  installations  for  the  public  supply  of  heat  and 
electricity  as  well  as  installations  in  various  industrial  sectors.  Depending  on  Member  States  and 
individual circumstances combustion installations belonging to the industrial sector (e.g., a heat plant in 
a paper mill) are either included in the sector ‘combustion installations’ or in the respective industrial 
sector (e.g., ‘production of pulp and paper’). 

Second ECCP progress report April 2003 
http://europa.eu.int/comm/environment/climat/pdf/second_eccp_report.pdf 

COM(2004)366 – final “The share of renewable energy in the EU, May 2004 

COM(2005) 628 final “Biomass Action Plan, December 2005” 

COM(2004)366 – final “The share of renewable energy in the EU, May 2004 

COM(2006)545 – final “Action Plan for Energy Efficiency: Realising the Potential” 

COM (2008) 436 final 

COM(2003) 492 final 

COM(2005) 666 and 667 final "Thematic Strategy on Waste Prevention" 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

(10) 

(11) 

(12) 

(13) 

(14) 

(15) 

(16) 

(17) 

(18) 

(19) 

(20) 

(21) 

EN 

20 

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