Outlook opinion of the Committee of the Regions on How regions contribute to achieving European climate change and energy goals, with a special focus on the covenant of mayors
Date: 2008-11-26
Institutions: European Committee of the Regions
Subjects: EU environmental policy, action programme, agreement (EU), climate change, energy consumption, energy policy, reduction of gas emissions, regional development, representative of local or regional authority, sustainable development

31.3.2009

EN

Official Journal of the European Union

C 76/19

Outlook opinion of the Committee of the Regions on ‘How regions contribute to achieving
European climate change and energy goals, with a special focus on the covenant of mayors’

(2009/C 76/04)

THE COMMITTEE OF THE REGIONS

— reminds the EU institutions that local action is key to meeting the 20 % energy efficiency targets. The
crucial role of regions and cities in delivering these objectives is already clearly recognised by the
European Commission and the European Parliament;

— points out that transport, housing and public buildings, and public lighting infrastructure, which are
planned for and provided by local and regional authorities, are both areas where significant CO2
reductions and energy savings can be achieved;

— considers the need for the action plans of towns and cities to sit within the context of regional and
national plans. Regional plans could provide the link between the local and national initiatives which
would ensure that local plans are developed in a coherent manner. The action plans must introduce
practical instruments so as to achieve the targets, and adequate financing must be made available;

— believes that the Covenant should be relaunched to make explicit the opportunity for all sub-national

authorities, including regions, to be members;

— calls for EU funding and financing to be adapted in order to prioritise actions to promote sustainable
energy use such as an increase in the percentage of regional funding to be spent on improving the
energy efficiency of domestic homes from 3 % to 5 %. EIB loans should be readily accessible for local
authorities and regions willing to invest in energy efficiency programmes, promote the use of renew-
able energy sources and reduce CO2 emissions.

C 76/20

EN

Official Journal of the European Union

31.3.2009

Rapporteur: Ms Kay TWITCHEN (UK/EPP), Member of Essex County Council

POLICY RECOMMENDATIONS

THE COMMITTEE OF THE REGIONS

Key Messages

1. Welcomes the invitation by the European Commission to
comment on the role of regions within the Covenant of Mayors.

8. Welcomes the positive start to the Covenant and the high
level of political commitment
from European municipalities
who have signed up to achieving more than 20 % energy
savings. However if only large cities sign up, this initiative risks
being a symbolic gesture. It is now time to engage all sub-
national authorities, municipalities and regions, as appropriate
to the internal structure of each Member State, to intensify sign-
up to the Covenant or to boost the number of partners involved
in other kinds of practical work to a similar end. Small munici-
palities should be informed about the possibility of
joining
together in regional networks.

2.
Underlines that every citizen has the right to know what
their elected representatives are doing to ensure the sustain-
ability of their environment for future generations.

9.
Calls therefore for the regional and local levels to be an
equally indispensable partner in the Covenant and the imple-
mentation of EU climate change commitments.

3.
Emphasises that the ‘Covenant of Mayors’ is an excellent
opportunity for Mayors to engage citizens in collective and posi-
tive action to combat climate change and will enable the Euro-
pean Union to demonstrate true leadership in this sphere.

4.
Reminds the EU institutions that local action is a key
determinant of individual changes in behaviour which is crucial
to meeting the 20 % energy efficiency targets and the crucial
role of regions and municipalities to delivering this is already
well recognised by the European Commission (1) and European
Parliament (2).

5.
Notes that by promoting sustainable energy and energy
efficiency, the Covenant of Mayors can spur on the cities and
regions to implement changes to protect their most vulnerable
citizens, particularly those on low and fixed incomes, from the
effect of high energy prices and from suffering fuel poverty. In
doing so, however, care should be taken to avoid subsidising
energy use and to allow scope for strong incentives to improve
energy efficiency and, as far as possible, reduce energy use.

6.
Notes that regional and local authorities have already
started to undertake activities and initiatives which will contri-
bute to the goals and objectives of EU climate change policy,
showing leadership with the bold and necessary decision to
increase energy efficiency for the benefit of their citizens and
the environment. The Covenant of Mayors,
like a number of
similar national and international initiatives, provides a strong
mechanism for renewed impetus for this work to continue.

7. Welcomes the newly created possibility of being able to
take account of municipalities' past performance in energy effi-
ciency and energy saving and urges municipalities that are
leading the way in this area to play an active role in the cove-
nant and to present their own projects.

(1) Andris Piebalgs:

‘indeed, many of the most innovative ideas and
projects for fighting global warming are coming from regions and
cities’, CoR April Forum.

(2) EP Report on an Action Plan for Energy Efficiency: Realising the Poten-
tial (2007/2106(INI):
‘stresses the role of local and regional energy
agencies in the effective implementation of energy-efficient measures’.

in the

legislative

10. Welcomes progress
frameworks
provided by the energy and climate change package which will
give legislative certainty and a framework for activities to be
undertaken through the Covenant of Mayors. However more
activity is required at EU level to action the commitment of
member states to reduce energy consumption by 20 %.

11.
Regrets the failure to introduce a binding energy effi-
ciency target in the 2008 climate change and energy package
which is the missing link to achieving the necessary CO2 reduc-
tion; and

12.
Underlines that without a framework that sets targets at
EU, national, regional and local levels, the Covenant will not be
enough to deliver the at-least-20 % emission reductions that
signatories have committed themselves to. It is important for
local and regional authorities to be involved in drawing up
climate and energy targets,
instruments to be
adopted for achieving these targets, and for adequate financing
to be made available.

for practical

Role of Regional Authorities

Reiterates messages of earlier opinions adopted by the
13.
CoR in this field (3). Regions,
like towns and cities, are key
players in the field of energy having responsibilities in numerous
activities which deal with planning, permitting,
investment,
procurement, production and consumption. Transport, housing
and public buildings, and public lighting infrastructure, which
are planned for and provided by local and regional authorities,
are both areas where significant CO2 reductions and energy
savings can be achieved.

(3) Opinion of the Committee of the Regions on Limiting Global Climate
Change to 2 degrees and the Inclusion of Aviation in the Emissions
Trading System DEVE-IV-015.

31.3.2009

EN

Official Journal of the European Union

C 76/21

14.
Emphasises the impact which a general goal of reduction
in consumption of both consumer goods and natural resources
such as water will make on reducing emissions and energy use.
In many cases, regions can have a wider impact on behavioural
change than individual local authorities and thus are well placed
to influence citizens to change behaviours as they operate across
both urban and rural areas.

15.
Therefore advocates a major role for regions and hopes
that the competent regional bodies will encourage the numerous
municipalities within their respective areas to take part.

Solid Recovered Fuels and develop renewable and alternative
sources of energy with low greenhouse gas emissions. and
develop renewable and alternative sources of energy with low
greenhouse gas emissions.

sub-national authorities,

Thus the Covenant should be relaunched to make explicit
21.
including
the opportunity for all
regions, to be members with the aim of maximum territorial
coverage,
including rural areas which face considerable chal-
lenges to improve energy efficiency, promote sustainable energy
sources and reduce CO2 emissions. The Covenant of Mayors
should be coordinated with similar national initiatives.

16.
Considers the need for the action plans of towns and
cities to sit within the context of regional and national plans.
Regional plans could provide the link between the local and
national
local plans are
developed in a coherent manner. It is important that the action
technical, human resource,
plans contain concrete financial,
legislative and evaluative instruments, as well as a timetable, for
achieving these targets.

initiatives which would ensure that

that

Recalls

17.
there are profound differences between
regions, that certain systems, sectors and regions may be parti-
cularly affected by climate change, and that the ability to adapt,
which is distributed unevenly among the various sectors and
regions, is closely bound up with socioeconomic development;
in this regard, regions and local authorities have an important
role to play.

18. Welcomes the benchmarking element of the Covenant
and underlines the leadership role regions could play in identi-
fying local opportunities for action, sharing best practice, identi-
fying project partners, allocating funding, measuring progress
and communicating
should be
success. Local
embedded in a regional or national framework to maximise the
impact and enable opportunities for partnerships to emerge. In
addition they should be free to set themselves ambitious targets,
which are sustainable, exceeding those in national frameworks.

initiatives

Recognises an important factor in the success or failure
19.
of the Covenant will be the size of the partnerships committing
to undertake actions. In order for actions to be effective they
need to be large enough to have an impact but small enough to
ensure local ownership. Whereas major cities can achieve econo-
mies of scale, regions can help smaller municipalities and rural
authorities in particular to confront the considerable challenges
involved in improving energy efficiency, promoting sustainable
energy sources and reducing CO2 emissions.

20.
Reminds the Commission of the important role played
by regions and cities to influence energy markets through their
role as a large procurer of heat and electricity and as a supplier
of heat and electricity through for example, combined heat and
power systems and municipal waste processing systems such as
Energy from Waste, Anaerobic Digestion and production of

Challenges for the Covenant

Reiterates its support for the objectives of the Covenant
22.
and the scope of
including reducing energy
demand and consumption, developing a sustainable and secure
energy supply through the promotion of renewable energy
sources and improving the energy efficiency of products.

its activities,

23.
Insists that emission reduction measures have long-term
sustainability as their main goal and thus that qualitative criteria
are attached to targets to ensure that sustainability can be
assured.

Points out that in order for the Covenant to have a long
24.
term impact, it needs to be firmly embedded in the constitutions
of the authorities who sign up to it, protecting its commitments
and goals from future interference or watering down resulting
from possible future changes in political leadership or adminis-
trative and boundary changes.

25.
Points out that short term budgetary pressures challenge
regions and cities who take medium to long term investment
and policy decisions to improve their own energy efficiency, to
promote the use of sustainable energy sources and reduce CO2
emissions. National performance assessment targets should take
this into account.

26.
Suggests that as there is no one definition for Mayor or
Region which exists across all Member States in the EU, the title
of the Covenant and its implied scope needs to ensure that it
does not exclude other bodies or
sign-up to the
Covenant.

inhibit

27.
Highlights the variation in progress across EU cities and
regions in reducing CO2 emissions and energy consumption in
recent years and that some pioneers of progress are already
reaching beyond the ‘low hanging fruit’. Account should be
taken of the variety of energy intensity of consumption and
production and the associated greenhouse gas emissions situa-
tions across and within Member States, particularly between
urban and rural areas.

C 76/22

EN

Official Journal of the European Union

31.3.2009

Further suggestions for the Covenant

28.
Calls for support in preparing baseline emission reduc-
tion trajectories as well as clear guidance on how emissions data
is going to be reported and measured. This is essential to be
able to compare and benchmark.

29.
Suggests that in order to avoid mistakes being repeated,
benchmarking should include examples not only of failures but
also of successes. These examples should be directly applicable,
and consequently details of all
including their
budgets, should be provided. The EU should include lessons
drawn from the US Conference of Mayors and the North
(US) Regional Greenhouse gas
Eastern and Mid-Atlantic
initiative.

initiatives,

30.
Suggests that as many cities and municipalities are
members of regional or national networks which have all devel-
oped methodologies and accounting systems, ways of using
these methodologies within the Covenant should be considered
whilst at the same time looking to harmonise reporting and
measuring tools in the medium term. This would avoid rein-
venting methodologies and might encourage wider participation
in the Covenant. The aim is to ensure that the majority of muni-
cipalities that are members of existing networks sign up to the
Covenant of Mayors.

31.
Suggests that the timescales within the Covenant need to
allow the Bench Marks of Excellence and existing initiatives
which are considered best practice to be shared across Member
States prior to the action plans being developed. This will
ensure that the action plans which cities and regions prepare
can reflect this good practice.

34.
Urges that there should be a direct link between national
energy action plans and those of the regions as these are an
indispensable link between the national sustainable energy plans
and those of the cities and municipalities. It is important for
local and regional authorities to be involved in drawing up
climate and energy targets,
instruments to be
adopted for achieving these targets and for adequate financing
to be made available.

for practical

35.
Calls for EU funding and financing to be adapted in
order to prioritise actions to promote sustainable energy use
such as an increase in the percentage of regional funding to be
spent on improving the energy efficiency of domestic homes
from 3 % to 5 %. EIB loans should be readily accessible for local
authorities and regions willing to invest in energy efficiency
programmes, to promote the use of sustainable energy sources
and to reduce CO2 emissions.

Suggests

therefore that

36.
the mid-term review of EU
funding programmes needs to look at how the full range of
programmes can be adapted to support energy efficiency,
promote sustainable energy sources and reduce CO2 emissions,
and ensure programmes to improve energy efficiency are acces-
sible to regions and cities. Thus, for instance, possible revisions,
in addition to an increase of regional/cohesion funding to
support the energy efficiency of domestic homes, should include
greater investment to support the commercialisation of new
technologies under programmes such as FP7. A review of the
regulations governing state aids may also be necessary in order
for measures to be taken in the area of industrial change and
energy conversion.

Challenges for the EU energy efficiency targets

32.
Underlines the importance of the European and national
context to the success of
local action and in particular the
the Commission to action and update the 2006
failure of
Energy Efficiency Action Plan. This will be required in order to
give Member States and their regions and cities the incentive to
push for efficiencies beyond the 20 % EU target.

Repeats the call at the June European Council to the
33.
European Commission and Member States to expedite its imple-
mentation and to consider its revision.

37.
Invites the Commission to continue to develop and accel-
erate the review of measures which could assist cities, towns and
regions effect behavioural change e.g. promoting and classifying
energy efficient products.

38.
Believes that regions and cities would be assisted in their
efforts to meet and exceed the 20 % energy efficiency target for
2020 if the target were made binding and the EU Energy Effi-
this,
ciency Action Plan were updated to take account of
including the expectation that Member States revise National
Action Plans to reflect this target.

Brussels, 26 November 2008.

The President

of the Committee of the Regions

Luc VAN DEN BRANDE