COMMISSION STAFF WORKING PAPER Accompanying the document REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 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)
Date: 2012-10-24
Institutions: European Commission
Subjects: accession criteria, air quality, climate change, commercial farming, energy production, greenhouse gas, industrial production, reduction of gas emissions, tradeable emission permit, transport market, waste management

EUROPEAN 
COMMISSION 

Brussels, 24.10.2012  
SWD(2012) 353 final 

COMMISSION STAFF WORKING PAPER 
Accompanying the document 

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND 
THE COUNCIL 

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(2012) 626 final} 

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COMMISSION STAFF WORKING PAPER 
Accompanying the document 

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND 
THE COUNCIL 

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) 

1. 

DETAILED ANALYSIS OF EMISSION TRENDS IN THE MAIN SECTORS  

1.1. 

Energy supply and use, excluding transport 

Table 1: GHG emissions from energy supply and use, excluding transport (1990-2010) 

EU-15 
EU-27 

Share in 1990 
total GHG 
60.8% 
63.2% 

Share in 2010 
total GHG 
58.9% 
60.0% 

Change 1990-2010 

-13.4% 
-19.7% 

Change 
2000-2010 
-7.9% 
-7.9% 

•  Total GHG emissions from energy supply and use decreased in the period 1990-2010 by 

13.4% in EU-15 and by 19.7% in EU-27.  

•  Energy, responsible for about 60%, is the largest sector in terms of GHG emissions in the 

EU. 

•  CO2 emissions from electricity and heat production is the largest key source in the EU-
15  accounting  for  26%  of  total  greenhouse  gas  emissions  in  2009  and  for  86  %  of 
greenhouse  gas  emissions  of  the  energy  industries  sector.  Between  1990  and  2010,  CO2 
emissions  from  electricity  and  heat  production  decreased  by  6  %  in  the  EU-15. 
Differences in the intensity of greenhouse gas emissions of heat and electricity production 
between the Member States are to a large extent explained by the mix of fuels combusted. 

•  CO2  emissions  from  public  electricity  and  heat  production  did  not  increase  in  line  with 
fuel  consumption.  The  main  explanatory  factors  at  the  EU-15  level  during  the  past  20 
years are fuel switching from coal to natural gas and improvements in energy efficiency. 

•  Between 1990 and 2010 in the EU-15, greenhouse gas emissions from energy industries 
increased  in  seven  Member  States  and  fell  in  eight.  The  highest  absolute  increase  was 
accounted for the Netherlands, Finland and Greece. Germany and the UK account for the 
largest part of reductions. 

•  The decoupling of fuel combustion and greenhouse gas emissions is also observed in the 
EU-27.  The  reduction  in  the  use  of  coal  for  heat  and  power  generation  in  the  EU-27 
accounted for two thirds of the net reduction in emissions from energy industries. In 2010, 
natural  gas  use  increased  more  than  coal  use  while  oil  consumption  fell,  resulting  in 

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reduced  CO2  emissions  per  unit  of  fossil  fuel  energy  generated.  The  steady  increase  in 
biomass use also served as a substitute for fossil fuels. 

1.2. 

Transport 

Table 2: GHG emissions from transport (1990-2010)  

EU-15 
EU-27 

Share in 1990 
total GHG 
16,4% 
13,9% 

Share in 2010 
total GHG 
21,2% 
19,7% 

Change 1990-2010  Change 2000-2010 

15,6% 
20,0% 

-2,9% 
2,0% 

•  Between 1990-2010 total GHG emissions from transport increased by 16% in the EU-15 
and  by  20%  in  the  EU-27.  The  trend  of  greenhouse  gas  emissions  follows  closely  the 
trend of fuel combustion.  

•  CO2 emissions from road transport is the second largest key source of all categories in 
the EU-15. Between 1990 and 2010, CO2 emissions - mainly from fuel combustion - from 
road transportation increased by 17 % in the EU-15. 

• 

In the EU-15 Germany, France, Italy, Spain and the United Kingdom contributed most to 
the CO2 emissions from road transport (77%). All Member States, except for Germany (-
3%), increased emissions from road transportation between 1990 and 2010. The Member 
States with the highest increases in absolute terms were Spain, Italy, France and Austria. 
The  countries  with  the  lowest  increase  in  relative  terms  were  the  United  Kingdom, 
Finland, France and Sweden. 

•  Between 2009 and 2010 the total emissions from road transport decreased in the EU-15 
as  well  as  in  EU-27  due  to  lower  gasoline  derived  emissions.  This  was  despite  the 
recovery in diesel derived emissions after two consecutive years of decline. Diesel price 
inflation has outpaced the rapidly increasing gasoline prices for some years. Along with 
the  start  of  economic  recession  in  the  second  half  of  2008  and  the  whole  of  2009,  this 
triggered  a  fall  in  freight  transport  demand,  which  was  reversed  in  2010.  To  a  lesser 
extent, increased use of biofuels also contributed to the lower road transport emissions in 
2010. 

•  Emissions  from  international  aviation  and  maritime  transport  also  fell  for  the  third 
consecutive  year.  The  decline  in  emissions  from  international  shipping  was  much 
stronger,  reflecting  the  severity  of  the  economic  recession  and  lower  freight  transport. 
Since  1990,  however,  international  transport  emissions  have  grown  very  rapidly, 
reaching 6 % of total EU greenhouse gas emissions. 

•  CO2 emissions from rail transportation account for 0.13 % of total EU-15 GHG emissions 
in  2010.  Between  1990  and  2010,  CO2  emissions  from  rail  transportation  decreased  by 
38%  in  the  EU-15.  CO2  emissions  from  navigation  account  for  0.5  %  of  total  EU-15 
greenhouse  gas  emissions  in  2010.  Between  1990  and  2010,  CO2  emissions  from 
navigation increased by 9 % in the EU-15. 

1.3. 

Agriculture  

Table 3: GHG emissions from agriculture (1990-2010) 

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EU-15 
EU-27 

Share in 1990 
total GHG 
10,2% 
10,6% 

Share in 2010 
total GHG 
9,8% 
9,8% 

Change 1990-2010  Change 2000-2010 

-13,8% 
-22,3% 

-9,8% 
-8,3% 

• 

In  2010,  total  EU-15  greenhouse  gas  emissions  from  agriculture  were  13.8 %  below 
1990 levels. In the EU-27 emissions were 22.3 % below 1990 levels. 

•  Agriculture contributes 9.8 % to total EU-15 GHG emissions, making it the second largest 
sector. The most important GHGs from agriculture are N2O and CH4 accounting for 5.5 % 
and 4.4 % of the total GHG emissions respectively.  

•  Enteric  fermentation  from  cattle  is  the  largest  single  source  of  CH4  emissions  in  the 
EU-15  accounting  for  3.2  %  of  total  GHG  emissions  in  2010.  Between  1990  and  2010, 
CH4 emissions from enteric fermentation from cattle declined by 12 % in the EU-15. 

•  N2O emissions from agricultural soils  account  for  4.9  %  of  total  GHG  emissions.  N2O 
emissions  from  this  source  decreased  by  18  %  between  1990  and  2010.  All  EU-15 
Member States show decreased emissions. 

•  The  decrease  in  emissions  is  largely  a  consequence  of  efficiency  improvements  (in 
particular more efficient fertiliser use and increased animal productivity) and the reform 
of the EU common agricultural policy (CAP) decoupling direct support from production, 
strengthening  the  link  to  environmental  legislation  (cross-compliance),  introducing 
climate change objectives into the CAP (under the Health Check Reform) and increasing 
support  to    climate  friendly  measures  included  in  agri-environmental  programmes. 
Further, the implementation of the Nitrates Directive has been enhanced. 

1.4. 

Industrial processes 

Table 4: GHG emissions from industrial processes (1990-2010)  

EU-15 
EU-27 

Share in 1990 
total GHG 

Share in 2010 
total GHG 

Change 1990-2010  Change 2000-2010 

8,3% 
8,3% 

7,0% 
7,3% 

-25,1% 
-26,3% 

-14,8% 
-12,9% 

•  Total  EU-15  greenhouse  gas  emissions  from  industry  were  25 %  below  1990  levels  in 

2010. In the EU-27 emissions were 26 % below 1990 emissions in 2010. 

•  Industrial  processes  is  the  third  largest  sector  contributing  7  %  to  total  EU-15  GHG 
emissions in 2010. The most important GHGs from this sector are CO2 (5 % of total GHG 
emissions), HFCs (1.5 %) and N2O (0.8 %). 

• 

In 2010, the emissions increased by 3 % compared to 2009, due to the recovery from the 
economic recession. 

•  Cement  production  dominates  the  trend  until  1997.  Factors  for  declining  emissions  in 
the early  1990s  were low economic activity and cement imports from Eastern European 
countries.  Between  1997  and  1999  the  trend  is  dominated  by  reduction  measures  in  the 
adipic  acid  production  in  Germany,  France  and  the  UK.  In  addition,  between  1998  and 
1999  large  reductions  were  achieved  in  the  UK  due  to  reduction  measures  in 
hydrochlorofluorocarbons (HCFC) production. The large decrease in 2009 was driven by 

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reductions in cement production and a significant drop in the iron and steel production asa 
consequence of the economic crisis. 

•  Large  emission  reductions  occurred  in  adipic  acid  production  (N2O)  mainly  due  to 
reduction  measures  in  Germany,  France,  the  UK  and  Italy,  and  in  production  of 
halocarbons (HFCs) and SF6. Additional N2O emission reductions were achieved in nitric 
acid  production.  Large  HFC  emission  increases  can  be  observed  from  consumption  of 
halocarbons and SF6. Figure 4.2 shows that the three largest key sources account for about 
two thirds of total process-related GHG emissions in the EU-15. 

1.5.  Waste management  

Table 5: GHG emissions from waste management (1990-2010)  

EU-15 
EU-27 

Share in 1990 
total GHG 
4,0% 
3,6% 

Share in 2010 
total GHG 
2,8% 
3,0% 

Change 1990-2010  Change 2000-2010 

-36,7% 
-30,4% 

-25,4% 
-21,4% 

• 

In 2010 total EU-15 greenhouse gas emissions from waste were 37% below 1990 levels 
and 30% below 1990 in EU-27. 

•  Waste  is  the  fourth  largest  sector  in  the  EU-15,  contributing  around  3%  to  total  GHG 

emissions. In 2010, emissions decreased by 3 % compared to 2009. 

•  CH4 emissions from from solid waste disposal on land decreased by 42 % between 1990 
and  2010  in  the  EU-15.  11  EU-15  Member  States  reduced  their  emissions  from  this 
source; however France1, Greece, Portugal and Spain did not. 

•  Between 1990 and 2010, CH4 emissions from managed landfills declined by 41 % in the 
EU-15. Between 1990 and 2010, CH4 emissions from managed landfills declined by 41 % 
in the EU-15. Ten EU-15 Member States reduced their emissions from this source during 
that  period,  France,  Greece,  Italy,  Portugal  and  Spain  did  not.  In  2010,  CH4  emissions 
from  landfills  decreased  by  2  %  compared  to  2009.  A  main  driving  force  of  CH4 
emissions  from  managed  waste  disposal  on  land  is  the  amount  of  biodegradable  waste 
going to landfills. Total municipal solid waste disposal on land declined by 44 % between 
1990 and 2010. In addition, CH4 emissions from landfills are influenced by the amount of 
CH4  recovered  and  utilised  or  flared.  The  share  of  CH4  recovery  has  increased 
significantly in EU-15 since 1990. 

•  The Member States with most emissions from managed waste disposal on land in 2010 
were France, the UK, Italy and Spain. These MS account for 69 % of EU-15 emissions in 
this year. The largest reductions in absolute terms during 1990 and 2010 were reported by 
the  UK  and  Germany.  The  emission  reductions  are  partly  due  to  the  (early) 
implementation of the landfill directive or similar legislation in the Member States. 

2. 

GHG EMISSIONS IN THE EU CANDIDATE COUNTRIES 

The Republic of Croatia is a Party to the UNFCCC from April 1996 and ratified the Kyoto 
Protocol  in  May  2007  committing  to  a  5%  reduction  of  GHG  compared  to  the  base  year 

1 French CH4 emissions from solid waste disposal are currently overestimated due to methodological reasons 

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(1990)14. Between 1990 and 2010 Croatia's GHG emissions decreased by 9% and comparing 
to  2009  decreased  by  2%.  GHG  emissions  per  capita  are  at  6.5  tons  and  GHG  intensity  of 
GDP is 16% higher than that of the EU-27. According to GHG emission projections included 
in the 5th National Communication, Croatia may to face difficulties with achieving its Kyoto 
target with the current set of policies and measures. 

Iceland ratified the UNFCCC in June 1993 and the Kyoto Protocol in May 2002 committing 
itself to keep the increase of GHG emissions within 10% compared to the base year (1990). 
Iceland's  GHG  emissions  between  1990  and  2010  increased  by  30%  and  in  2010  were  4% 
lower than in 2009 which reflects the impact of the economic recession. GHG emissions per 
capita are at 14.3 tons and GHG intensity of GDP is 37% higher than in the EU. According to 
latest  projections  included  in  the  5th  National  Communication  and  taking  into  account 
decision  14/CP.7  (allowing  Iceland  to  exclude  emission  from  the  heavy  industry  from  the 
commitment level under the Kyoto Protocol in the period 2008-2012), Iceland is on track to 
meet its Kyoto target.  

Turkey  became  an  Annex  I  Party  to  the  UNFCCC  in  May  2004  and  ratified  the  Kyoto 
Protocol  in  May  2009  (however  has  no  GHG  limitation/reduction  commitment).  Turkey’s 
first National Communication to the UNFCCC was submitted in January 2007. According to 
the recent GHG inventory, in 2010 Turkey’s emissions amounted to 369.6 MtCO2-eq, so an 
increase  of  97.6%  was  noted  compared  to  187  MtCO2-eq.  in  1990.  The  emissions  also 
increased  between  2009  and  2010,  by  9%.  Between  1990  and  2010,  per  capita  GHG 
emissions  have  increased  in  Turkey.  However,  at  5.5  tonnes,  the  per  capita  emissions  in 
Turkey are about half of the average EU-27 per capita emissions. Turkey's emissions intensity 
is 20% than in the EU.  

The former Yugoslav Republic of Macedonia became a Party to UNFCCC in January 1998 
and  ratified  the  Kyoto  Protocol  in  November  2004.  The  former  Yugoslav  Republic  of 
Macedonia  is  considered  a  developing  country  under  the  Convention  and  its  Protocol.  In 
January  2009  the  former  Yugoslav  Republic  of  Macedonia  submitted  to  the  UNFCCC 
secretariat its 2nd National Communication, including inventory of GHG emissions for 1990-
2002. According to available data for 2005, total GHG emissions decreased by around 19% 
since  1990.  In  2005,  CO2  emissions  per  capita  are  at  level  of  5.4  ton  and  GDP  per  capita 
amounted to 2300 €. Currently, ther e is no information on GHG projections available for the 
former Yugoslav Republic of Macedonia. 

Figure 1: GHG total emissions and emissions per capita in the EU candidate countries 

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Croatia

Iceland

former Yougoslav
Republic of Macedonia

31,5
30,2
28,6

3,5
3,8
4,5

13,5
10,9

Turkey

187,0

329,9

401,9

6,6
6,8
6,5

7,2

5,4

3,4

4,6

5,5

13,8

13,0

14,3

1990

2005

2010

0

100 200

300 400

500

0

5

10

15

20

MtCO2-eq.

tCO2-eq. per capita

Note: no 2010 data available for the former Yugoslav Republic of Macedonia, 2005 data come from the EDGAR database  
Source: UNFCCC submissions, EDGAR database (see: http://edgar.jrc.ec.europa.eu/index.php) 

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

1990 

Base year (1) 

GHG 
emissions 
2010 

Change 
2009-
2010 

Change 2010 
relative to 
base year 

EU burden-
sharing or 
Kyoto target 

EU burden-
sharing or 
Kyoto target 

Mt CO2 

Mt CO2 

Mt CO2 

Austria 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Denmark (3) 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Luxembourg 

Malta 

Netherlands 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

78,2 

143,3 

114,3 

6,5 

195,8 

68,6 

40,9 

70,4 

559,0 

1246,1 

105,0 

97,3 

55,2 

519,2 

26,6 

49,4 

12,8 

2,0 

212,0 

457,4 

60,1 

253,3 

71,8 

18,5 

282,8 

72,8 

763,9 

79,0 

145,7 

132,6 

no target 

194,2 

69,3 

42,6 

71,0 

563,9 

1232,4 

107,0 

115,4 

55,6 

516,9 

25,9 

49,4 

13,2 

no target 

213,0 

563,4 

60,1 

278,2 

72,1 

20,4 

289,8 

72,2 

776,3 

84,6 

132,5 

61,4 

10,8 

139,2 

61,1 

20,5 

74,6 

522,4 

936,5 

118,3 

67,7 

61,3 

501,3 

12,1 

20,8 

12,1 

3,0 

210,1 

400,9 

70,6 

121,4 

46,0 

19,5 

355,9 

66,2 

590,2 

EU-15 

EU-27 (2) 

4249,3 

5583,1 

4265,5 

no target 

3797,6 

4720,9 

Notes: 

% 

6,1% 

5,8% 

4,3% 

% 

7,0% 

-9,1% 

-53,7% 

% 

Mt CO2 

-13,0% 

-7,5% 

-8,0% 

68,8 

134,8 

122,0 

-2,4% 

no target 

no target 

no target 

3,3% 

0,6% 

25,2% 

12,8% 

1,5% 

2,7% 

-5,1% 

1,2% 

-0,7% 

2,0% 

10,2% 

4,3% 

4,9% 

0,6% 

5,6% 

5,0% 

-5,1% 

-1,6% 

4,1% 

0,3% 

-2,8% 

11,0% 

3,1% 

2,1% 

2,4% 

-28,4% 

-11,9% 

-51,9% 

5,0% 

-7,4% 

-24,0% 

10,6% 

-41,4% 

10,3% 

-3,0% 

-53,4% 

-57,9% 

-8,3% 

-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% 

178,7 

55,8 

39,2 

71,0 

563,9 

973,6 

133,7 

108,5 

62,8 

483,3 

23,8 

45,5 

9,5 

no target 

no target 

no target 

-1,4% 

-28,9% 

17,4% 

-56,4% 

-36,2% 

-4,1% 

22,8% 

-8,2% 

-24,0% 

-11,0% 

-6,0% 

-6,0% 

27,0% 

-8,0% 

-8,0% 

-8,0% 

15,0% 

4,0% 

-12,5% 

-8,0% 

200,3 

529,6 

76,4 

256,0 

66,3 

18,7 

333,2 

75,0 

679,3 

3924,3 

no target 

no target 

no 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) The target includes a base-year compensation of 1 million AAU per year as agreed under Decision 2010/778/EU. 
(4 )Malta and Cyprus do not have Kyoto targets.

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Table 7a: Kyoto targets for non-ETS sectors for 2008–2012, compared with emission projections 

Base-year 
emissions 
(BY) 

Kyoto or burden-sharing 
target 

Total allowed 
emissions of non-
ETS sectors 
(approximation)

Projections of non-ETS emissions 
with existing measures 

Projections of non-ETS emissions 
with additional measures 

Removals (-) or 
emissions (+) from 
carbon sink activities

Use of Kyoto 
mechanisms at 
government level 

Annual average 
2008-2012 

Annual 
average 
2008-2012

Gap between 
projections and target

Annual 
average 
2008-2012

Gap between 
projections and target 

Annual average  
2008-2012 

Annual average  
2008-2012 

Projections of non-ETS emissions 
with existing measures, with 
carbon sink removals and use of 
Kyoto mechanisms 

Projections of non-ETS emissions 
with additional measures, with 
carbon sink removals and use of 
Kyoto mechanisms 

Annual 
average 
2008-2012

Gap between 
projections and target

Annual 
average  
2008-2012 

Gap between 
projections and target 

Austria 
Belgium 
Bulgaria (3) 
Cyprus (2) 
Czech Republic 
Denmark (1) 
Estonia 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland (4) 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta (2) 
Netherlands 
Poland 
Portugal 
Romania (3) 
Slovakia 
Slovenia 
Spain 
Sweden 
United Kingdom 
EU-15 
EU-27 

Mt CO2-eq.

Mt CO2-
eq. 
79,0 
68,8 
145,7 
134,8 
132,6 
122,0 
5,3 
no target 
194,2 
178,7 
69,3 
55,8 
42,6 
39,2 
71,0 
71,0 
563,9 
563,9 
1.232,4 
973,6 
107,0 
133,7 
115,4 
108,5 
55,6 
62,8 
516,9 
483,3 
25,9 
23,8 
49,4 
45,5 
13,2 
9,5 
2,0 
no target 
213,0 
200,3 
563,4 
529,6 
60,1 
76,4 
278,2 
256,0 
72,1 
66,3 
20,4 
18,7 
289,8 
333,2 
72,2 
75,0 
776,3 
679,3 
3.924,3 
4.265,5 
5.767,1  no target 

% change from 
BY 
-13,0% 
-7,5% 
-8,0% 
no target 
-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% 
no target 
-6,0% 
-6,0% 
27,0% 
-8,0% 
-8,0% 
-8,0% 
15,0% 
4,0% 
-12,5% 
-8,0% 
no target 

Mt CO2-eq. 

38,0 
76,3 
83,9 
n.a. 
92,0 
31,3 
27,4 
33,4 
431,9 
522,1 
65,4 
81,8 
41,8 
281,7 
20,4 
36,9 
7,0 
n.a. 
112,8 
323,9 
41,6 
181,9 
33,7 
10,4 
181,0 
52,6 
433,7 
2.353,4 
n.a. 

Mt CO2-
eq. 
53,4 
79,5 
28,3 
5,3 
62,5 
35,5 
6,1 
32,8 
398,0 
480,2 
60,2 
44,0 
44,2 
311,1 
8,8 
15,6 
9,9 
1,1 
119,8 
196,6 
46,1 
78,5 
24,0 
11,8 
229,8 
42,5 
345,5 
2.288,6 
2.771,4 

Mt CO2-
eq. 
15,4 
3,2 
-55,6 
na 
-29,5 
4,3 
-21,3 
-0,7 
-33,9 
-42,0 
-5,2 
-37,8 
2,4 
29,4 
-11,6 
-21,3 
2,9 
na 
7,1 
-127,3 
4,5 
-103,4 
-9,8 
1,4 
48,8 
-10,0 
-88,2 
-64,8 
na 

% of BY 
emissions 
19,5% 
2,2% 
-41,9% 
na 
-15,2% 
6,2% 
-50,0% 
-0,9% 
-6,0% 
-3,4% 
-4,9% 
-32,7% 
4,4% 
5,7% 
-44,9% 
-43,1% 
21,9% 
na 
3,3% 
-22,6% 
7,6% 
-37,2% 
-13,5% 
6,8% 
16,9% 
-13,9% 
-11,4% 
-1,5% 
na 

Mt CO2-
eq. 
53,0 
79,1 
28,3 
5,3 
62,4 
35,4 
6,1 
32,7 
395,4 
474,5 
59,9 
43,9 
44,0 
311,6 
8,8 
15,3 
9,8 
1,1 
119,4 
196,6 
46,1 
78,5 
23,9 
11,7 
229,6 
42,5 
345,5 
2.278,8 
2.760,7 

Mt CO2-
eq. 
15,0 
2,8 
-55,6 
na 
-29,5 
4,2 
-21,3 
-0,7 
-36,5 
-47,7 
-5,5 
-37,9 
2,3 
30,0 
-11,7 
-21,6 
2,9 
na 
6,6 
-127,3 
4,5 
-103,4 
-9,8 
1,2 
48,6 
-10,0 
-88,2 
-74,7 
na 

% of BY 
emissions 
19,0% 
1,9% 
-41,9% 
na 
-15,2% 
6,0% 
-50,0% 
-1,0% 
-6,5% 
-3,9% 
-5,1% 
-32,8% 
4,1% 
5,8% 
-45,0% 
-43,6% 
21,7% 
na 
3,1% 
-22,6% 
7,6% 
-37,2% 
-13,6% 
6,0% 
16,8% 
-13,9% 
-11,4% 
-1,8% 
na 

Mt CO2-
eq. 
-0,7 
0,2 
-1,0 
na 
-1,3 
-2,0 
0,2 
-0,6 
-3,2 
-10,1 
-0,6 
-2,2 
-2,9 
-16,3 
-1,3 
-1,1 
0,0 
na 
0,0 
-12,4 
-4,7 
-3,0 
-0,3 
-1,3 
-11,4 
-2,1 
-3,4 
-57,9 
-81,6 

% of BY 
emissions 
-0,9% 
0,1% 
-0,8% 
na 
-0,7% 
-2,9% 
0,4% 
-0,8% 
-0,6% 
-0,8% 
-0,6% 
-1,9% 
-5,2% 
-3,2% 
-5,1% 
-2,3% 
0,0% 
na 
0,0% 
-2,2% 
-7,8% 
-1,1% 
-0,4% 
-6,5% 
-3,9% 
-3,0% 
-0,4% 
-1,4% 
-1,4% 

Mt CO2-
eq. 
-16,0 
-6,3 
1,4 
na 
25,0 
-3,7 
1,2 
-1,0 
0,0 
0,0 
0,0 
4,0 
-1,6 
-2,0 
8,4 
14,1 
-2,9 
na 
-10,0 
0,0 
-1,5 
0,0 
5,4 
-1,0 
-38,8 
0,0 
0,0 
-83,8 
-25,3 

% of BY 
emissions 
-20,2% 
-4,3% 
1,1% 
na 
12,9% 
-5,3% 
2,8% 
-1,4% 
0,0% 
0,0% 
0,0% 
3,5% 
-2,9% 
-0,4% 
32,4% 
28,6% 
-22,2% 
na 
-4,7% 
0,0% 
-2,5% 
0,0% 
7,5% 
-4,9% 
-13,4% 
0,0% 
0,0% 
-2,0% 
-0,4% 

Mt CO2-
eq. 
36,7 
73,5 
28,7 
na 
86,2 
29,8 
7,5 
31,2 
394,8 
470,0 
59,5 
45,9 
39,7 
292,8 
15,9 
28,6 
7,0 
na 
109,9 
184,2 
39,9 
75,5 
29,1 
9,5 
179,6 
40,4 
342,0 
2.146,9 
2.664,5 

Mt CO2-
eq. 
-1,3 
-2,8 
-55,2 
na 
-5,8 
-1,4 
-19,9 
-2,2 
-37,1 
-52,1 
-5,9 
-35,9 
-2,1 
11,1 
-4,5 
-8,3 
0,0 
na 
-2,9 
-139,7 
-1,6 
-106,4 
-4,6 
-0,9 
-1,4 
-12,2 
-91,7 
-206,5 
na 

% of BY 
emissions 
-1,6% 
-1,9% 
-41,6% 
na 
-3,0% 
-2,0% 
-46,8% 
-3,2% 
-6,6% 
-4,2% 
-5,5% 
-31,1% 
-3,8% 
2,2% 
-17,6% 
-16,8% 
-0,3% 
na 
-1,4% 
-24,8% 
-2,7% 
-38,3% 
-6,4% 
-4,5% 
-0,5% 
-16,9% 
-11,8% 
-4,8% 
na 

Mt CO2-
eq. 
36,3 
73,1 
28,7 
na 
86,1 
29,7 
7,4 
31,1 
392,2 
464,4 
59,3 
45,8 
39,5 
293,4 
15,8 
28,3 
6,9 
na 
109,4 
184,2 
39,9 
75,5 
29,1 
9,3 
179,4 
40,4 
342,0 
2.137,1 
2.653,9 

Mt CO2-
eq. 
-1,7 
-3,2 
-55,2 
na 
-5,8 
-1,5 
-19,9 
-2,3 
-39,8 
-57,8 
-6,1 
-36,1 
-2,2 
11,7 
-4,6 
-8,6 
-0,075 
na 
-3,4 
-139,7 
-1,6 
-106,4 
-4,7 
-1,1 
-1,6 
-12,2 
-91,7 
-216,4 
na 

% of BY 
emissions 
-2,2% 
-2,2% 
-41,6% 
na 
-3,0% 
-2,2% 
-46,8% 
-3,3% 
-7,0% 
-4,7% 
-5,7% 
-31,2% 
-4,0% 
2,3% 
-17,7% 
-17,3% 
-0,6% 
na 
-1,6% 
-24,8% 
-2,7% 
-38,3% 
-6,5% 
-5,4% 
-0,5% 
-16,9% 
-11,8% 
-5,1% 
na 

Notes: (1) Denmark's burden-sharing target and allowed non-ETS emissions include a base-year compensation of 1 million AAUs per year of the first commitment period. 

(2) No commitment under the Kyoto Protocol, therefore no base year and no emission target. 1990 emissions are used in the column "base year".. 
(3) Projection data for Bulgaria and Romania from Primes/Gains 
(4) For Ireland, the use of unused ETS allowances from the new entrants reserve is taken into account in the non-ETS target. 

EN 

9 

EN 

 
  
 
Table 7b: Aggregate of total GHG projections for the various scenarios 

Projections of total 
emissions "with existing 
measures" 

With Kyoto mechanisms 

With carbon sink removals 
and use of Kyoto 
mechanisms 

With carbon sink removals, 
use of Kyoto mechanisms 
and impact of the EU ETS 
cap 

Projections of total 
emissions "with additional 
measures", carbon sinks, 
ETS trade and Kyoto 
mechanisms 

Annual 
average 
2008–2012 

Mt CO2-eq. 
3.785,4 

4.717,9 

4.717,9 

change 
from base 
year 

% 

-11,3% 

-18,2% 

-15,6% 

Annual 
average 
2008–2012 

Mt CO2-eq. 
3.701,6 

4.692,6 

4.692,6 

change 
from base 
year 

% 

-13,2% 

-18,6% 

-16,0% 

Annual 
average 
2008–2012 

Mt CO2-eq. 
3.643,7 

4.611,0 

4.611,0 

change 
from base 
year 

% 

-14,6% 

-20,0% 

-17,5% 

Annual 
average 
2008–2012 

Mt CO2-eq. 
3.726,8 

4.747,9 

4.747,9 

change 
from base 
year 

% 

-12,6% 

-17,7% 

-15,0% 

Annual 
average 
2008–2012 

Mt CO2-eq. 
3.707,9 

4.728,0 

4.728,0 

change 
from base 
year 

% 

-13,1% 

-18,0% 

-15,4% 

Base year 
emissions 

Mt CO2-eq. 
4.265,5 

5.767,1 

5.588,8 

EU-15 

EU-27 
EU-27 
(1990) 

EN 

10 

EN 

 
  
 
  
 
 
Table 8: Comparison of historic GHG emissions and AAUs budgets 

Burden 
sharing or 
KP target 

Mt CO2 eq 
68,8 
134,8 
122,0 
no target 

Cumulative 
AAU budget 
2008-2011 

Cumulative total 
GHG emissions 
2008-2011 (2) 

Mt CO2 eq 
275,1 
539,2 
488,0 
no target 

Mt CO2 eq 
333,2 
515,7 
256,9 
42,8 

Cumulative 
use of sink 
activities 
2008-2011 

Mt CO2 eq 
-2,8 
0,8 
-4,1 
0,0 

Cumulative gap between 
relevant AAU budget 
including sink activities 
and emissions 2008-2011 
(1) 

Mt CO2 eq 
63,2 
3,5 
-230,5 
no target 

% 
23,0% 
0,6% 
-47,2% 
no target 

-121,5 

-17,0% 

7,3 
-84,7 
-5,6 
-107,0 
-250,4 
-30,7 
-163,7 
-3,2 
64,4 
-47,6 
-91,5 
11,4 
no target 
21,5 
-558,6 
-12,4 
-436,5 
-41,9 
-0,4 
155,4 
-47,4 

3,3% 
-54,0% 
-2,0% 
-4,7% 
-6,4% 
-5,7% 
-37,7% 
-1,3% 
3,3% 
-50,0% 
-50,3% 
30,0% 
no target 
2,7% 
-26,4% 
-4,1% 
-42,6% 
-15,8% 
-0,6% 
11,7% 
-15,8% 

-375,7 

-13,8% 

558,6 

241,4 
77,5 
278,2 
2.071,7 
3.741,3 
492,8 
273,5 
248,0 
2.028,1 
46,9 
86,5 
47,9 
12,1 
809,4 
1.593,3 
292,8 
515,1 
186,2 
80,0 
1.482,1 
252,3 

2.342,5 

-5,1 

-8,0 
0,7 
-2,4 
-12,9 
-40,5 
-2,5 
-8,7 
-11,6 
-65,1 
-5,3 
-4,5 
0,0 
0,0 
0,1 
-49,6 
-18,7 
-12,0 
-1,1 
-5,3 
-45,6 
-8,5 

-13,8 

Austria 
Belgium 
Bulgaria 
Cyprus 
Czech 
Republic 
Denmark 
Estonia 
Finland 
France (3) 
Germany (3) 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 
United 
Kingdom 
EU-15 
EU-27 

178,7 

55,8 
39,2 
71,0 
563,9 
973,6 
133,7 
108,5 
62,8 
483,3 
23,8 
45,5 
9,5 
no target 
200,3 
529,6 
76,4 
256,0 
66,3 
18,7 
333,2 
75,0 

679,3 

3.924,3 
no target 

714,8 

223,1 
156,9 
284,0 
2.255,7 
3.894,5 
534,9 
433,9 
251,3 
1.933,0 
95,3 
181,8 
37,9 
no target 
801,0 
2.118,5 
305,6 
1.023,9 
265,1 
74,9 
1.333,0 
300,2 

2.717,2 

15.697,1 
no target 

15.177,4 
18.906,7 

-231,4 
-326,4 

-517,4 
no target 

-3,3% 
no target 

Notes: 
(1) includes the impact of the EU ETS cap 
(2) 2011 data based on proxy data developed by the EEA2 
(3) ETS effect includes corrections for allowances issued (through free allocation or auctioning) for Germany and France. For Germany 
and  France  corrections  for  allocated  allowances  have  been  included.  Germany  distributed  additional  8.1  Mt  in  2008  to  finance  its 
auctioning mechanism and in 2009 and 2010 Germany received 4 Mt from operators due to back requirements that are not inluded in the 
CITL.  France  distributed  in  2008  and  2009  additional  9.4  Mt  to  operators  that  are  not  included  in  the  CITL.  In  2011  the  CITL  data 
showed additional 9.6 Mt that are yet not included in the EEA EU ETS viewer.   

EN 

11 

   EN 

 
  
 
 
 
 
 
 
Table 9: Summary of implemented and planned policies and measures  

Cross-cutting measures 

Policies and measures 
‘Cross-cutting’ 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation 
/timetable /comments 

EU Emission Trading 
Scheme 
Revision of the monitoring 
mechanism 
Link Kyoto flexible 
mechanisms to emissions 
trading 

Energy Supply 

Policies and measures 

‘Energy supply’ 
Promotion of electricity 
from RES-E (2001) 
(New) Renewable energy 
Directive (Directive 
2009/28/EC) 

N/a 

N/a 

N/a 

N/a 

N/a 

N/a 

In force 

In force 

In force 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation 
/timetable /comments 

100-12518 

CCS Directive 

N/a 

NER300 laying down 
criteria and measures for 
the financing of 
commercial demonstration 
projects for CCS and 
innovative renewable 
energy technologies under 
the revised EU ETS 

Directive on promotion of 
cogeneration 

Further measures on 
renewable heat (including 
biomass action plan) 

Intelligent Energy for 
Europe: programme for 
renewable energy 

6521 

36-4822 

N/a 

Developing the internal 
energy market 

80-120 18 

Strategic Energy 
Technology (SET) Plan 

600-90019 

0.87520 

In force 

In force 

In force 

First call for proposals ongoing 

In force until mid-2014. To be 
replaced by the new Energy 
Efficiency Directive. 
Biomass Action Plan, Dec 2005, 
over 20 further actions planned. 
Renewable heat included in 
proposed new Directive on 
renewable energy 

Programme for policy support in 
renewable energy 

Amendments to a number of 
directives28 to continue to help 
complete the internal energy 
market. 

6 European Industrial Initiatives 
and 10 Integrated Research 

EN 

12 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
Programmes that address the 
development and market roll-out 
of new generation of renewable 
energy, carbon capture and 
storage, nuclear and smart grids 
technologies are in force since 
2010/11. At EU level these 
initiatives are supported by FP7. 

Energy demand 

Policies and measures 

‘Energy demand’ 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation / 
timetable /comments 

Directive on the energy 
performance of buildings 

2024 

Directive on the energy 
performance of buildings 
(recast) 
Directive on ecodesign 
requirements for energy-
related products 
Directive on labelling of 
the consumption of energy 
and other resources by 
energy-related products 
Regulation on the labelling 
of tyres with respect to fuel 
efficiency and other 
essential parameters 
Regulation on energy 
efficiency labelling 
programme for office 
equipment (Energy Star) 

Directive on energy end 
use efficiency and energy 
services 

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

Energy Efficiency Plan 
2011 

9226 

N/a 

160-21025 

400 

1.5-4.0 

11.2 (2009-2014) 

Replaced by the recast Directive 
below. 

Adopted in May 2010 with 
implementation deadline by June 
2012. 
Product policy under 
implementation. 14 
implementing measures adopted 
on ecodesign and 9 on energy 
labelling. Some 20-30 more 
measures are expected by 
2014/2015. 

Product policy under 
implementation 

Product policy under 
implementation 

In force until mid-2014. 
Afterwards to be (almost fully) 
replaced by the new Energy 
Efficiency Directive; National 
Energy Efficiency Action Plans 
adopted in all EU-27. 
Launched Oct 200627. Identifies 
10 priority actions to achieve the 
to 20% energy efficiency target 
of 368 Mtoe primary energy 
savings in 2020 (or 740 MtCO2-
eq). Reinforced in March 2011 
(see below). 
Launched March 2011. Aims at 
closing the gap to the 20% 
energy efficiency target in 2020 
by delivering 150 Mtoe primary 
energy savings in 2020 

EN 

13 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
New Energy Efficiency 
Directive 

Action under the Industrial 
emission directive 

Not known 

Intelligent Energy for 
Europe programme (incl. 
Covenant of Mayors, 
ELENA) 

N/a 

European Energy 
Efficiency Fund 

Public procurement 

25-40 18 

Strategic Energy 
Technology (SET) Plan 

Recently adopted. To be 
implemented by mid-2014. 
Estimated primary energy 
savings of 100 Mtoe in 2020. 
Reference document on Best 
Available Techniques regarding 
Energy Efficiency finalised. 

Programme for policy support in 
energy efficiency 

Launched in July 2011. 
Estimated investment potential 
of EUR 265 million for energy 
efficiency, renewables and 
sustainable urban transport 
projects. 

EU Handbook developed for 
guidance for increased energy 
efficient public procurement 

Launch in 2012 of the Smart 
Cities and Communities 
European Innovation Partnership 
addressing the demand side of 
low carbon technologies in 
energy, transport and ICT 
sectors. 

EN 

14 

   EN 

 
 
 
 
 
 
 
 
 
 
 
Transport 

Policies and measures 
‘Transport’ 

Strategy on CO2 from light 
duty vehicles; Regulation 
on CO2 emissions from 
passenger cars, Regulation 
on CO2 emissions from 
light commercial vehicles, 
car labelling directive 

Fuel quality Directive 

Directive on the promotion 
of transport bio-fuels 
Voluntary agreements with 
European, Japanese and 
Korean car manufacturers. 

Framework Directive 
Infrastructure use and 
charging 

Infrastructure charging for 
heavy goods (revised 
Eurovignette) 
Shifting the balance of 
transport modes 

Fuel taxation 

Directive on mobile air 
conditioning systems: 
HFCs 
Inclusion of Aviation in 
EU ETS 
Public procurement of 
vehicles 

Strategic Energy 
Technology (SET) Plan 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation / 
timetable / comments 

Labelling: in force 
Regulations in force 
Communication on fiscal 
measures: in implementation 

62.528 

First implemented in 1998. 
Revised in 2009 

35-4018 

75-8018 

N/a 

N/a 

N/a 

N/a 

See regulation on 
fluorinated gases 

18330 

1.931 

In force 

Implemented 

In implementation, in relation to 
heavy road duty transport only, 
amendment of "Eurovignette" 
has been proposed 

Adopted 

Package of measures in 
implementation 
In force 
Currently focus on EU 
harmonisation of taxation, not on 
CO2 reduction; ongoing review 
of the Energy Tax Directive 

In force 

Adopted. Includes all flights 
since 1/01/2012 

One Joint technology Initiative 
on Fuel cells and Hydrogen in 
force since 2009 and one 
European Industrial Initiative 
and Integrated Research 
Programme on bioenergy in 
force since 2010/11. At EU level 
these initiatives are supported by 
FP7. 

Industry & non CO2 gases 

Policies and measures 

‘Industry’ 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation / 
timetable / comments 

EN 

15 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Regulation on fluorinated 
gases (including Directive 
on mobile air conditioning 
systems) 

2332 

4640 

In force 

IPPC & non-CO2 gases 

60-7018 

In force 
In 2008 the Directive was 
codified and in 2010 amended 
by the Industrial Emissions 
Directive 

Waste 

Policies and measures 

‘Waste’ 
Landfill Directive 

Waste Framework 
Directive 

Thematic Strategy on 
waste 

Directives on waste 
electrical and electronic 
equipment (WEEE) 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation / 
timetable / comments 

4118 

3534 

In force 
Adopted. 
Launched December 200533, 
including a revision of the 
original waste directive of 1975, 
revised in 2008. 

Launched in 2005 

In force. Revised directive in 
2008 

Integration Research & Development 

Policies and measures 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation 
/timetable /comments 

R&D framework Program 

N/a 

Competitiveness and 
Innovation Framework 
Programme (CIP) 

Strategic Energy 
Technology (SET) Plan 

In force. Under the 7th 
Framework program (FP7), 
which runs from 2007 to 2013, a 
budget of 50.5 billion euros will 
be allocated over the entire 
period. Over 2.3 billion to 
energy related R&D activities. 
CIP runs from 2007 to 2013 with 
a total budget of 3.6 billion 
euros. The CIP is divided in 
three operational programmes 
two of which are related to 
energy and climate change. 

In force since 2007 and 
implemented at EU level 
through FP7. 

EN 

16 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
Integration Cohesion Policy 

Policies and measures 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation 
/timetable /comments 

N/a 

N/a 

For the budgetary period 2007-
13 sustainable transport, 
adaptation, renewable energy 
and energy efficiency have been 
indentified as eligible areas for 
support. 

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

Emission reduction 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation 
/timetable /comments 

Integration climate change 
in structural funds 
&cohesion funds 

Agriculture 

Policies and measures 

‘Agriculture’ 
CAP reforms (2003 and 
2008 Health Check 
Reform) 
Reduction of CH4 and 
N2O from animal manure 

1235 

1.7 

N2O from soils 

0.9-1036 

CAP reform post 2013 

Adopted. Major reforms of the 
CAP were implemented in 2000, 
2003 and 2008. 
Possibility for support through 
Rural development programmes 
Possibility for support through 
Rural development programmes 
and from an improved 
implementation of the nitrates 
Directive 
In November 2011, the 
Commission proposed the 
introduction of new climate 
related measures into the CAP as 
of 2014. These comprise the 
introduction of new mandatory 
"greening measures" (ecological 
focus areas, maintenance of 
permanent grassland, crop 
diversification), strengthened 
conditions for good agricultural 
and environmental conditions 
(GAEC), and re-enforced agri-
environment-climate measures 
under rural development. 
Resource efficiency and the shift 
towards a low carbon and 
climate resilient economy is 
introduced as a specific priority 
for rural development. 

EN 

17 

   EN 

 
 
 
 
 
 
Forests and soils 

Policies and measures 

‘Forests’ 

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

Sequestration 
potential in 2020 in 
EU-27 (Mt CO2-eq.) 

Stage of implementation 
/timetable /comments 

EU Forest Strategy and EU 
Forest Action Plan 

N/a 

N/a 

1418 

Afforestation and 
reforestation: 
- Afforestation 
programmes 

- Natural forest expansion 

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

Forest management 
(various measures) 

19 18 

Proposed soil directive 

N/a 

N/a 

Implemented. The Forest Action 
Plan was  presented in June 
2006. Its timeframe was 2006-
2011. It builds on the EU’s 
Forestry Strategy adopted in 
1998. The EU Forestry Stategy 
and the EU Forest Action Plan 
are currently being revised and a 
new EU Forest Strategy is 
foreseen for Spring 2013. 
Possibility for support through 
forestry scheme of rural 
development. New forest related 
measures are proposed by the 
Commission to be introduced in 
rural development policy post 
2014. 
Possibility for support through 
Rural development programmes, 
specific measure for restoring 
forestry potential and 
introduction of prevention 
actions 
Possibility for support through 
forestry scheme of rural 
development, dependent on 
national implementation. 
The European Climate Change 
Programme (ECCP) Working 
Group on Sinks Related to 
Agricultural Soils estimated this 
potential at equivalent to 1.5 to 
1.7% of the EU’s anthropogenic 
CO2 emissions during the first 
commitment period under the 
Kyoto Protocol37 

Proposed decision on 
accounting rules and action 
plans on greenhouse gas 
emissions and removals 
resulting from activities 
related to land use, land use 
change and forestry 

N/a 

N/a 

The proposal was adopted by the 
Commission in March 2012. 

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Table 10: Key figures of the emissions trading scheme for 2005-2007, 2008, 2009 and 2010 for EU-27(1) 

Number of installations (2) 

Freely allocated allowances 
(MtCO2-eq. / year) 

Verified emissions 
(MtCO2-eq. / year) 

Difference between verified emissions and 
allocated allowances (%) (5) 

2005-07 

2008 

2009 

2010 

2011 

2005-07 

2008 

2009 

2010 

2011 

2005-07 

2008 

2009 

2010 

2011 

2005-07 

2008 

2009 

2010 

2010 

1. Combustion 
installations 
2. Mineral oil 
refineries 

3. Coke ovens 

4. Metal ore roasting 
or sintering 

5. Pig iron or steel 

6. Cement clinker or 
lime 
7. Glass including 
glass fibre 
8. Ceramic products 
by firing 
9. Pulp, paper and 
board 
99. Other activity 
opted-in 

7.214 

7.320 

7.340 

7.392 

8.480 

1.508 

1.255 

1.264 

1.285 

1.285 

1.529 

1.508 

1.379 

1.412 

1.377 

1,4% 

20,2% 

9,1% 

9,9% 

7,2% 

162 

155 

154 

152 

170 

165 

154 

154 

159 

159 

155 

156 

147 

144 

142 

-6,1% 

1,0% 

-4,9% 

-9,3% 

-10,4% 

21 

30 

239 

567 

436 

21 

28 

238 

557 

438 

22 

28 

234 

558 

427 

22 

28 

232 

553 

426 

22 

32 

256 

600 

478 

1.173 

1.085 

1.058 

1.030 

1.313 

830 

489 

826 

542 

801 

549 

796 

552 

910 

611 

23 

33 

156 

201 

24 

19 

38 

16 

23 

22 

185 

212 

25 

19 

39 

25 

23 

22 

185 

215 

26 

19 

40 

26 

23 

22 

185 

216 

26 

19 

41 

24 

23 

22 

185 

216 

26 

19 

41 

24 

21 

24 

131 

194 

21 

15 

30 

23 

21 

18 

133 

191 

23 

14 

32 

25 

16 

11 

95 

153 

19 

9 

28 

22 

20 

13 

114 

154 

20 

9 

30 

22 

20 

13 

113 

152 

21 

9 

29 

27 

-8,5% 

-6,9% 

-30,1% 

-12,8% 

-14,8% 

-27,2% 

-19,8% -49,8% 

-39,9% 

-40,3% 

-15,5% 

-27,9% -48,4% 

-38,6% 

-38,7% 

-3,6% 

-10,0% -28,9% 

-28,6% 

-29,3% 

-9,1% 

-9,7% 

-23,8% 

-20,9% 

-18,6% 

-17,9% 

-27,7% -52,1% 

-52,5% 

-52,7% 

-20,2% 

-18,1% -29,0% 

-25,1% 

-28,5% 

45,3% 

-1,0% 

-17,1% 

-5,7% 

13,7% 

All EU installations 

11.160 

11.210 

11.171 

11.183 

12.872 

2.182 

1.958 

1.974 

1.999 

1.999 

2.144 

2.120 

1.880 

1.939 

1.904 

-1,7% 

8,2% 

-4,8% 

-3,0% 

-4,7% 

Notes: 
(1) Please note that due to changes in the application of the scope (i.e. the coverage by the EU ETS of installations or emissions) in some Member States between the 2005-2007 and the 2008-2012 
trading period, one can not perfectly compare data (whether it is allocated allowances or verified emissions) that relate on the one hand to the 2005-2007 trading period, and on the other hand to the 
2008-2012 trading period. 
(2) All installations which have participated in the scheme are included, even if their account is already closed.  
(3) The exact figure is 293019 allowances but appearing as 0 due to rounding. 
(4) For RO and BG data for 2007 is added on top of EU-25 2005-2007 average and not divided by three for 2005-2007 average. For CY no verified emissions are available for 2011. 
(5) Positive value = emissions above free allocation. Negative value = emissions below free allocation. 
Source:  EEA EU ETS data viewer (June 2012) 

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Table 11: Overview on the EU ETS verified emissions and 2nd NAPs(1) 

2005-2007 
average 
emissions 

2008-2012  
EU ETS 
cap 

Freely allocated 
allowances 
average 2008-
2011 

2008 verified 
emissions 

2009 verified 
emissions 

2010 verified 
emissions 

2011 verified 
emissions 

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-27 

32,5
54,3 
39,2 
5,2 
84,6 
30,0 
13,4 
40,1 
128,3 
480,1 
71,3 
26,3 
21,8 
226,6 
2,9 
6,4 
2,6 
2,0 
79,0 
207,5 
33,6 
69,6 
25,1 
8,9 
183,3 
19,4 
250,1 
2.071,5 

30,7 
58,5 
38,1 
5,2 
86,7 
24,5 
11,8 
37,6 
132,0 
451,5 
68,3 
26,7 
21,1 
201,6 
3,4 
8,6 
2,5 
2,1 
87,5 
205,7 
34,8 
74,1 
32,5 
8,3 
152,2 
22,5 
245,6 
2.074,1 

31,9 
56,0 
37,4 
5,2 
86,0 
23,9 
11,8 
37,4 
138,6 
394,4 
64,1 
25,1 
20,5 
205,3 
4,4 
7,8 
2,5 
2,1 
82,6 
203,6 
31,6 
73,9 
32,3 
8,2 
151,6 
22,2 
218,1 
1.974,6 

Mt CO2-eq. / year 
32,1
55,5 
38,3 
5,6 
80,4 
26,5 
13,5 
36,2 
124,1 
472,7 
69,9 
27,2 
20,4 
220,7 
2,7 
6,1 
2,1 
2,0 
83,5 
204,1 
29,9 
63,8 
25,3 
8,9 
163,5 
20,1 
265,1 
2.100,2 

27,4
46,2 
32,6 
5,3 
73,8 
25,5 
10,4 
34,4 
111,1 
428,3 
63,7 
22,4 
17,2 
184,9 
2,5 
5,8 
2,2 
1,9 
81,0 
191,2 
28,3 
49,0 
21,6 
8,1 
136,9 
17,5 
231,9 
1.860,9 

2010 verified 
emissions 
compared to 
average annual 
EU ETS cap 

2011 verified 
emissions 
compared to 
average annual 
EU ETS cap 

Share of  
EU ETS in 
total GHG 
emissions  
in 2009 

Share of  
EU ETS in 
total GHG 
emissions  
in 2010 

Share of CER 
in total verified 
emissions 2008-
2011 

Share of ERU 
in total verified 
emissions 2008-
2011 

% 

30,9
50,1 
33,8 
5,0 
75,6 
25,3 
14,5 
41,3 
115,7 
454,9 
59,9 
23,0 
17,4 
191,5 
3,2 
6,4 
2,3 
1,9 
84,7 
199,7 
24,2 
47,3 
21,7 
8,1 
121,5 
22,7 
237,4 
1.919,9 

30,6
46,2 
40,0 
NA 
74,2 
21,5 
14,8 
35,1 
105,1 
450,4 
58,8 
22,5 
15,8 
189,7 
2,9 
5,6 
2,1 
1,9 
80,0 
203,0 
25,0 
51,2 
22,2 
8,0 
132,7 
19,8 
220,9 
1.884,6 

0,6%
-14,3% 
-11,3% 
-5,0% 
-12,9% 
3,1% 
22,7% 
10,0% 
-12,4% 
0,8% 
-12,3% 
-13,7% 
-17,6% 
-5,0% 
-5,1% 
-25,5% 
-9,5% 
-12,4% 
-3,1% 
-2,9% 
-30,6% 
-36,1% 
-33,3% 
-2,0% 
-20,2% 
0,8% 
-3,3% 
-7,4% 

-0,4%
-21,0% 
5,0% 
NA 
-14,5% 
-12,4% 
25,2% 
-6,6% 
-20,3% 
-0,2% 
-13,9% 
-15,7% 
-25,2% 
-5,9% 
-14,4% 
-34,6% 
-17,5% 
-9,9% 
-8,6% 
-1,3% 
-28,2% 
-30,8% 
-31,7% 
-3,7% 
-12,9% 
-11,8% 
-10,1% 
-9,1% 

34,3%
36,9% 
55,4% 
48,0% 
54,8% 
42,0% 
63,3% 
52,0% 
21,6% 
47,0% 
51,1% 
33,5% 
27,9% 
37,6% 
22,7% 
29,0% 
18,9% 
62,9% 
40,7% 
50,1% 
38,0% 
39,7% 
48,9% 
41,4% 
37,4% 
29,3% 
40,5% 
40,4% 

36,5%
37,8% 
55,0% 
46,0% 
54,3% 
41,4% 
70,7% 
55,4% 
22,1% 
48,6% 
50,7% 
34,0% 
28,3% 
38,2% 
26,8% 
30,7% 
18,7% 
61,9% 
40,3% 
49,8% 
34,2% 
39,0% 
47,2% 
41,6% 
34,1% 
34,2% 
40,2% 
40,7% 

3,8% 
4,3% 
5,8% 
6,0% 
4,1% 
2,3% 
0,0% 
5,0% 
8,4% 
6,9% 
4,5% 
5,9% 
3,9% 
5,5% 
7,4% 
10,7% 
6,3% 
0,0% 
2,2% 
6,0% 
7,2% 
5,1% 
9,6% 
4,4% 
10,6% 
4,3% 
3,2% 
5,8% 

0,0% 
0,3% 
3,7% 
0,0% 
1,3% 
2,3% 
0,3% 
0,6% 
0,9% 
2,1% 
1,1% 
1,3% 
1,8% 
0,7% 
0,4% 
7,6% 
0,0% 
0,0% 
0,3% 
1,0% 
0,4% 
3,0% 
0,1% 
3,6% 
1,9% 
0,0% 
0,3% 
1,3% 

Notes: (1) Please note that due to changes in the application of the scope (i.e. the coverage by the EU ETS of installations or emissions) in some Member States between the 2005-2007 and the 2008-
2012 trading period, one can not perfectly compare the verified emissions data that relate on the one hand to the 2005-2007 trading period, and on the other hand to the 2008-2012 trading period. (2) 
Data on the EU ETS cap may differ from final values yet to be determined by the European Commission due to the fact that issues such as the treatment of the new entrant reserves are still pending. (3) 
For Ireland, the ETS cap is reduced by the expected leftover units in the new entrants' reserve at the end of the trading period which will not be distributed to operators but used for Kyoto compliance. 
(4)  For  Romania  and  Bulgaria  data  for  2007  is  added  on  top  of  EU-25  2005-2007  average  and  not  divided  by  three  for  2005-2007  average.  (5)  For  Germany  and  France  corrections  for  allocated 
allowances have been included. In 2009 and 2010 Germany received 4 Mt from operators due to back requirements that are not inluded in the CITL. France distributed in 2008 and 2009 additional 9.4 
Mt to operators that are not included in the CITL. In 2011 the CITL data showed additional 9.6 Mt that are yet not included in the EEA EU ETS viewer. 
Source: EEA EU ETS data viewer, CITL, UNFCCC 

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Table 12: Planned government use of the Kyoto mechanisms 

Planned use 
of Kyoto 
mechanisms 

Type of 
Kyoto 
mechanisms 
(IET, CDM, 
JI) (1) 

Achievement 
of Kyoto 
target 
planned 
through 
domestic 
action only 

Actual use of 
flexible 
mechanisms 
(AAUs, CERs and 
ERUs) at 
government level 

Projected emission 
reduction 2008-
2012 through the 
use of Kyoto 
mechanisms 

Mt CO2-eq. / year 

Yes  

Yes  

IET, JI, CDM 

IET, JI, CDM 

No 

No 

No 
Not 
applicable 
No 

Yes  

No 

Yes  

No 

No 

No 

No 

Yes  

Yes  

No 

Yes 

- 
Not 
applicable 
- 

IET, JI, CDM 

- 

JI, CDM 

- 

- 

- 

- 

IET, JI, CDM 

IET, JI, CDM 

- 

JI 

Yes 
Not 
applicable 
Yes 

No  

Yes 

No  

Yes 

Yes 

Yes 

Yes 

No  

No  

Yes 

Yes 

Yes  
Not 
applicable 
Yes  

IET, JI, CDM 
Not 
applicable 
IET, JI, CDM 

No  
Not 
applicable 
No  

No 

Yes  

No 

No 

Yes  

Yes  

No  

No  

Yes  

Yes  

- 

IET, JI, CDM 

- 

- 

IET, JI, CDM 

IET, JI, CDM 

- 

- 

IET, JI, CDM 

IET, JI, CDM 

Yes 

No  

Yes 

Yes 

No  

No  

Yes  

Yes 

No  

No  

1,2 

0,6 

-2,7 

- 

-23,5 

2,5 

-11,6 

0,3 

-0,2 

1,6 

-0,3 

-0,8 

1,6 

1,8 

-6,8 

-8,7 

1,5 

- 

6,6 

-4,4 

0,0 

-0,4 

-4,3 

0,0 

14,3 

0,1 

0,2 

31,8 

-31,5 

16,0 

6,3 

-1,4 

Not applicable 

-25,0 

3,7 

-1,2 

1,0 

- 

- 

- 

-4,0 

1,6 

2,0 

-8,4 

-14,1 

2,9 

Not applicable 

10,0 

- 

1,5 

- 

-5,4 

1,0 

38,8 

- 

- 

83,8 

25,3 

Budget 
(2) 

M€ for 
2008-
2012 
611 

276 

- 
Not 
applicable 
- 

217 

- 

80 

- 

- 

- 

- 

290 

- 

- 

- 

250 
Not 
applicable 
500 

- 

106 

- 

- 

80 

382 

178 

- 

2.890 

2.970 

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 

Notes:  

 (1) IET: International Emissions Trading; JI: Joint Implementation; CDM: Clean Development Mechanism. 

(2) The figure for budget does not include the revenue from the sale of AAUs 

(3) Cyprus and Malta have no emissions targets for the period 2008-2012 under the Kyoto Protocol. 
Source: Questionnaires and projection reports submitted under the greenhouse gas Monitoring Mechanism, SEF tables (25 
May 2012) and the EEA EU ETS data viewer 

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

Article 3.3 
Net carbon 
stock 
change 
during 
Mt CO2 / 
-0,7 
0,2 
-1,0 
NA 

-0,1 

-0,1 

0,2 
4,0 
5,0 
-5,6 
-0,3 
-1,1 
-2,9 
-6,1 

-0,1 

-0,1 
0 
NA 
0,0 

-9,4 

-3,4 

0,7 

-0,3 
0,3 

-6,3 

1,5 
-2,1 
-14,8 
-25,8 

Election of 
activities (1) 

None 
None 
None 
NA 

FM 

FM, CM, GM 

None 
FM 
FM 
FM 
FM 
FM 
None 
FM 

FM 

FM 
None 
NA 
None 

FM 

FM, CM, GM 

FM, 
Revegetation 
None 
FM 

FM, CM 

FM 
FM 
Not applicable 
Not applicable 

Article 3.4 
Net carbon 
stock change 
during 2008–
12 (3) 

Maximum 
allowance for 
forest 
management 

Mt CO2 / year 

NA 
NA 
NA 
NA 
Removals 
likely larger 
than CAP 
FM: 0.42       
CM+GM: -1.7 
Not estimated 
> -10 to -20 
NA 
-7,3 
-1.50 to -2.00 
-4.24 
NA 
-10,2 
Removals 
likely larger 
than CAP 
-1,0 
NA 
NA 
NA 
Removals 
likely larger 
than CAP 
FM: -0.81       
CM+GM: -0.50 

-3,7 

NA 
-1.32 
FM: >-2.46 
CM: -2.6 
-38,5 
-1,4 
-30,6 
-38,4 

NA 
NA 
NA 
NA 

-1,2 

-0,2 

NA 
-0,6 
-3,2 
-4,6 
-0,3 
-1,1 
NA 
-10,2 

-1,3 

-1,0 
NA 
NA 
NA 

-3,0 

-0,8 

-4,0 

NA 
-1,3 

-2,5 

-2,1 
-1,4 
Not applicable 
Not applicable 

Total 

Mt CO2 / 
-0,7 
0,2 
-1,0 
0,0 

-1,3 

-2,0 

0,2 
-0,6 
-3,2 
-10,1 
-0,6 
-2,2 
-2,9 
-16,3 

-1,3 

-1,1 
0 
0,0 
0,0 

-12,4 

-4,7 

-3,0 

-0,3 
-1,3 

-11,4 

-2,1 
-3,4 
-57,9 
-81,6 

Austria 
Belgium 
Bulgaria 
Cyprus 

Czech Republic 

Denmark 

Estonia 
Finland (2) 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 

Latvia 

Lithuania 
Luxembourg 
Malta 
Netherlands 

Poland 

Portugal 

Romania 

Slovakia 
Slovenia 

Spain 

Sweden (2) 
United Kingdom 
EU-15 
EU-27 

Note: 
Consistent  with  the  reporting  of  emission  inventories  a  negative  sign  '-'  is  used  for  removals  and  a  positive  sign  '+'  for 
emissions. NA: not applicable; NE: not estimated.  
(1) FM: Forest Management; CM: Cropland Management; GM: Grazing Land Management. 
(2) 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 and Sweden, removals from forest management 
are projected to exceed the sum of emissions under Art. 3.3. and the maximum allowance for forest management. 
(3) The sum for EU-15 and EU-27 includes emissions and removals from Article 3.4 actvities as indicated by Member States 
with application of the cap for Forest Management. Note that the net carbon stock change during 2008–12 resulting from Art. 
3.3 activities plus net carbon stock change during 2008–12 resulting from Art. 3.4 activities for EU-15 and EU-27 does not 
result  in  their  totals,  as  net  emissions  from  Art.  3.3  in  Finland  and  Sweden  could  be  completely  compensated  with  net 
removals from Art. 3.4 in these Member States. 
Source:  Questionnaires  and  projection  reports  submitted  under  the  EC  greenhouse  gas  Monitoring  Mechanism;    The 
European Community's initial report under the Kyoto Protocol (EEA Technical report No 10/2006); Initial reports under the 
Kyoto Protocol of Greece and Romania; 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 2: Greenhouse gas emissions (tCO2-eq.) per capita of Member States for 1990 and 2010 

EU27

EU15

EU12

Latvia

Romania

Lithuania

Portugal

Hungary

Sweden

Malta

Spain

France

Bulgaria

Italy

Slovakia

United Kingdom

Slovenia

Austria

Greece

Poland

Denmark

Germany

Belgium

Netherlands

Czech Republic

Cyprus

Ireland

Finland

Estonia

Luxembourg

12

12

9

10

13

9

10

11

13

5

6

6
6
7

9

7

7

9

6

7
7
8

8

8

10

9

8

8

10
9
10
10
10
10
10

13

14

13

12

11

13

11

11

16

14

12

14

13

13

13

11

16

14
14
14

15

19

0

5

10

15

20

Source: EEA 

1990

2010

26

24

25

34

30

35

40

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Table  14:  comparison  of  EU-27  GHG  total  emissions  and  projections  under  the  Kyoto 
Protocol and under the Climate and Energy Package 

 The  EU  uniteral  20%  reduction  commitment  by  2020  includes  also  CO2  emissions  from 
international  flights  from  the  EU.  The  Kyoto  Protocol  covers  only  GHG  emissions  from 
domestic aviation. The table  below presents the quantitative differences. Reductions achieved 
by  the  EU-27,  so  far,  when  the  emissions  from  international  aviation  are  also  taken  into 
account, amount to  -14% compared to 1990 levels39. 

Emissions (MtCO2-eq.) covered by the Kyoto Protocol 

Total GHG emissions 

of which domestic aviation 

1990 

5583.1 

14.1 

2005 

5148.7 

19.1 

2010 

4720.9 

17.4 

Projections as compilation of MS data, WEM scenario 
-20% compared to Kyoto base year(2) 

2020 

4509.6(1) 

4617.4 

Emissions (MtCO2-eq.) covered by the Climate and Energy Package 

Total GHG emissions 

of which domestic aviation 

of which international aviation CO2 

1990 

5652.2 

14.1 

69.1 

2005 

5279.8 

19.1 

131.1 

2010 

4852.5 

17.4 

131.6 

Projections based on PRIMES/GAINS model, baseline scenario 

-20 % compared to 1990 

2020 

4794.1 

4521.8 

Note:  (1)  This  projected  value  is  based  on  aggregated  national  projections3.  It  includes  a  value  for  Germany 
which is based on projections completed in the first half of 2009. Therefore a sensitivity analysis based on more 
recent European projections, the PRIMES/GAINS baseline, has been carried out. Using this result would lead to 
27 Mt or 0.5% higher EU total emissions. (2) The Kyoto base year emissions is different from 1990 emissions 
level and amount to 5771.7 Mt CO2 eq. (3) data on historic emissions based on EU GHG inventory submission 
2012;  (4)  figures  for  emissions  from  domestic  aviation  cover  CO2,  CH4,  N2O;  figures  for  emissions  from 
international aviation cover CO2 only. 

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Table 15: Monitoring of the implementation of the White Paper - Joint Action Plan 

Action 

1) Developing the knowledge base 

EU Action – status and planned 

Establish  by  2012  a  Clearing  House  Mechanism 
(CLIMATE-ADAPT  –  European  Climate  Adaptation 
Platform) 

COMPLETED - CLIMATE-ADAPT, a web-based tool which will help decision makers at national, regional and local level to establish adaptation strategies, has 
been  launched  on  March  23rd  2012.  CLIMATE-ADAPT  is  presently  hosted  and  managed  by  the  EEA  and  is  publicly  accessible  here:  http://climate-
adapt.eea.europa.eu/. 

Develop  methods,  models,  data  sets  and  prediction  tools 
by 2011 

Under the EU's 7th Framework Program for Research / FP7 (2007-2013) climate change remains a key priority including research on climate change adaptation. A 
number of projects funded under FP 7 will contribute to the improvement of the assessment framework by improvement of the understanding of the climate system 
and its processes, the quantification of climate change impacts on human and natural systems (including extreme events), and to the identification and assessment of 
mitigation and adaptation options including their costs. These research projects also serve as a knowledge basis for the development and support of international 
climate  policies  as  well  as  policies  on  e.g.  disaster  reduction  (including  hydrometeorological  hazards).  Most  relevant  FP7  projects:  ClimateCost:  Full  costs  of 
inaction  and  adaptation  of  climate  change;  CLIMSAVE:  Climate  change  integrated  assessment  methodology  for  cross-sectoral  adaptation  and  vulnerability; 
RESPONSES: European responses to climate change: deep emission reductions and mainstreaming of mitigation and adaptation; MEDIATION: Methodology 
for  effective  decision-making  on  impacts  and  adaptation;  CCTAME:  Climate  change,  Terrestrial  adaptation  and  mitigation;  ClimateWater:  Bridging  the  gap 
between  adaptation  strategies  of  climate  change  impacts  and  European  water  policies;  ACQWA:  Assessing  climatic  change  and  impacts  on  the  quality  and 
quantity  of  water;  IMPRINTS:  Improving  preparedness  and  risk  management  for  flash  floods  and  debris  flow  events;  CLIWASEC:  Cluster  -  Climate-Water-
Security; IMPACT2C: Quantifying projected impacts under 2°C warming; ArcRisk: Impacts on health in the Arctic and Europe owing to climate-induced changes 
in contaminant cycling; CLEAR: Climate change, environmental contaminants and reproductive health Viroclime: Impact of Climate Change on the Transport, 
Fate  and  Risk  Management  of  Viral  Pathogens  in  Water;  EDENext:  Biology  and  control  of  vector-borne  diseases  in  Europe;  DROUGHT-R&SPI:  Fostering 
European Drought Research and Science-Policy Interfacing; KULTURISK: Knowledge-based approach to develop a culture of risk prevention 

Develop indicators to better monitor the impact of climate 
change,  including  vulnerability  impacts,  and  progress  on 
adaptation by 2011 

A set of studies and contributions from research projects will be used to convert the generic concept of vulnerability promoted by the Impact Assessment A (in the 
line  of  IPCC  AR4)  into  an  operational  instrument  to  be  used  for  raising  awareness,  guiding  adaptation  policy  design  (e.g.  funding  requirements),  assessing  the 
effectiveness of adaptation measures. EEA published a report on urban vulnerability and adaptation to climate change in May 2012 and is preparing 2 reports to be 
published in autumn 2012:  

Assess the cost and benefit of adaptation options by 2011 

1)  2012 indicator based report on climate change impacts and vulnerability in Europe  

2)  2012 report on adaptation to climate change in Europe   

A database on adaptation  measures  will be the backbone of this action. It will be integrated into CLIMATE ADAPT and will gather information available from 
existing FP7 projects and other on-going projects. A methodological study has been launched that will conduct an extensive review of available information on costs 
of  adaptation  on  adaptation  measures  within  the  EU  and  a  review  of  existing  methodologies  for  identifying  these  costs.  It  will  also  assess  and  compare  such 
methodologies,  identify  the  methodological  and  data  challenges  associated  with  calculating  the  expenditure  on  adaptation.  It  will  propose  a  set  of  criteria  for 
classifying different projects, programs or budget lines and calculating the expenditure on and propose a system to estimate the "adaptation share" for projects not 
exclusively intended for adaptation as well as producing a list of frequently occurring cases and borderline cases. 

The  PESETA  II  project,  i.e.  a  multi-sectoral,  bottom-up  high-resolution  impact  and  adaptation  assessment  using  most  recent  high-resolution  regional  climate 
projections for Europe (IPCC/SRES in ENSEMBLES project) and operational physical impact models was initiated. Results will be publicly available by the end of 
the year. 

Implement, by 2015, the Global Earth Observation System 
of Systems (GEOSS) 

Currently in the process of being built, GEOSS will aim at encompassing all areas of the globe, and to cover in situ, airborne, and space-based observations. GEOSS 
will meet the need for timely, quality long-term global information as a basis for sound decision-making. The data and information include Climate change with the 
strategic target to achieve effective and sustained operation of the global climate observing system and reliable delivery of climate information of a quality needed 

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Action 

EU Action – status and planned 
for predicting, mitigating and adapting to climate variability and change, including for better understanding of the global carbon cycle. 

2) Integrating adaptation into EU policies 

a) Health and social policies 

Develop  guidelines  and  surveillance  mechanisms  on  the 
health impacts of climate change by 2011 

The  EU  has  explored  with  the  WHO  and  EU  agencies  means  of  ensuring  adequate  surveillance  and  control  of  the  impact  of  climate  change  on  health,  such  as 
epidemiological surveillance, the control of communicable diseases and the effects of extreme events. The Parma Ministerial Declaration brings new priorities in the 
environment and health process with one pillar dedicated on protecting health and environment from climate change. The Health Programme of the EU has been the 
key financing  mechanism for projects, setting up networks and initiatives to support the work of the Health  Security Committee. Funding of projects to address 
adaptation  to  climate  change  has  been  foreseen  under  the  work  plans  for  2009-2011,  including:  PHASE  will  provide  the  public  health  sector  with  prevention 
guidelines to promote resilience and reduce health risk associated to extreme weather events, their environmental consequences and development of tools to select 
vulnerable subgroups most at risk to specific extreme weather events; CLIMATE TRAP: Impact assessment, surveillance and preparedness guidelines, training, 
will play a pivotal role in assisting the process of strengthening the implementation of existing warning systems and plans and in strengthening the Health Sector in 
preparedness in facing the health impact of climate change; HIALINE aims at evaluating the effects of climate diversity and change on airborne allergen exposure, 
and to implement an outdoor allergen early warning network; EUROSUN aims at monitoring ultra violet exposure in the EU and its effects on incidence of skin 
cancers  and  cataracts;  EUROMOMO  aims  at  developing  and  operating  a  coordinated  approach  to  real-time  mortality  monitoring  across  Europe  such  as 
pandemic influenza, emerging infections as well as environmental conditions with an impact on public health, i.e. heat waves and cold spells; CEHAPIS: Impact 
assessment, policy options and indicators on health and climate change aims at providing an evaluation of policy option impacts for successful health adaptation to 
climate change and monitor trends and policies over time; EDEN (Emerging diseases in a changing European environment) contributed to this effort. Atopica: 
Atopic diseases in changing climate, land use and air quality 

EFSA is developing scientific reports on vector-borne diseases and has already issued a general overview of the geographical distribution of tick species and an 
update on the role of tick vectors in the epidemiology of African Swine Fever and Crimean-Congo Hemorrhagic Fever in Eurasia. 

Development  of  a  new  Animal  Disease  Information 
System (ADIS)  

Develop  a  new  EU  Plant  Health  Law  addressing 
phytosanitary consequences of climate change 

The development of ADIS will provide better and more comparable epidemiological data to risk managers, enabling them to better identify, evaluate and respond to 
changing or emerging disease situations. 
The EU Plant Health Regime (PHR) concerns pests and diseases that impact on plant production in agriculture, forestry and the natural environment. The regime´s 
objective  is  to  contribute  through  plant  health  to  sustainable  production. The  evaluation  of  the  PHR  has  been  the  starting  point  for  a  fundamental  review  of  the 
regime for addressing the phytosanitary consequences of globalisation and climate change. A legal proposal for the new EU plant health law is foreseen by 2012. 
CLIMPEST is a project about the establishment of harmful organism due to climate change. 

Assess  the  impacts  of  climate  change  and  adaptation 
the  well-being  of 
policies  on  employment  and  on 
vulnerable social groups 

The social dimension of adaptation policies needs to be pursued within existing EU processes in the social and employment fields, and all social partners need to be 
involved. ECDC (European Centre for Disease Prevention and Control) is mapping EU vulnerability on climate change and has developed a Handbook for National 
Vulnerability, Impact, and Adaptation Assessments. See also PHASE project. 

Step  up  existing  animal  disease  surveillance  and  control 
systems 

The  ECDC  –  as  well  as  EFSA  -  are  conducting  many  projects  which  contribute  to  the  strengthening  of  the  knowledge  base  on  climate  change  health  impacts, 
vulnerability and adaptation, such as setting up of the European Environment and Epidemiology Network, development of a Handbook for National Vulnerability, 
Impact, and Adaptation Assessments and risk assessment for the water-, food- and vector-borne diseases. Within the frame of the EU Animal Health Strategy (2007-
2013) a Commission proposal for a new Animal Health Law is scheduled for adoption by the end of 2012. It will consolidate the exhaustive existing animal health 
legislation  and  put  more  emphasis  on  preventive  measures  such  as  surveillance  activities  and  biosecurity.  The  rules  will  be  flexible  allowing  for  adaptation  of 
disease control measures to changes in disease patterns including those resulting from climate change. 

b) Agriculture and forests 

Measures  for  adaptation  and  water  management  in  rural 
development national strategies and programmes for 2007-

The EU regulation on rural development 2007-2013 contains explicit references to the need to anticipate the likely effects of climate change on agriculture. After 
the "Health check" of the CAP in 2008, additional funds to measures that target new challenges faced by agriculture, such as climate change and the need for better 
water management, were made available. The revised RD programmes have been approved by the Commission within 6 months and the additional resources used 

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Action 
2013 

EU Action – status and planned 
as from 2009. A share of 15% of the new funds made available has been allocated to mitigation and adaptation measures. In addition, some measures aiming at 
improving water management (22% of funds allocated) and biodiversity (34%) will have some positive impact on adaptation. 

Integration  of  adaptation 
rural 
development, adequate support for sustainable production, 
contribution  of  the  CAP  to  the  efficient  use  of  water  in 
agriculture 

into  3  strands  of 

A number of actions with adaptation potential have been programmed by Member States and regions. Almost 70% of the RDP include actions to renovate irrigation 
equipment to improve the efficiency of water use. Half of the RDP supports waste water treatment installations on farms and water saving production techniques. 
Around  40%  of  the  programmes  also  include  the  development/improvement  of  farm  water  storage  capacity.  Due  to  the  Health  Check  better  water  management 
objectives have been included in the scope of cross compliance with a new GAEC issue relating to protection and management of water.  

Examine  the  capacity  of  the  Farm  Advisory  System  to 
reinforce 
training,  knowledge  and  adoption  of  new 
technologies that facilitate adaptation 

The Farm Advisory System (FAS) is an important tool to improve farm management. It requires national authorities to offer advice to farmers, at least for the rules 
included  into  cross  compliance.  Member  States  may  use  the  FAS  for  advising  farmers  on  the  respect  of  standards  going  beyond  cross  compliance,  e.g.,  water 
commitments under agri-environmental measures. RDP provides the possibility to co-finance the setting-up of the FAS and its use by farmers. The Commission 
proposal for the CAP post-2013 foresees to extend its scope to climate-related aspects, such as information on prospective impacts of climate change in the relevant 
regions, impact on GHG emissions of the relevant farming practices and on the contribution of the agricultural sector to mitigation. 

Update forestry strategy and launch debate on options for 
an EU approach on forest protection and forest information 
systems 

The  1998  EU  Forestry  Strategy  established  a  framework  for  forest-related  actions  in  support  of  sustainable  forest  management  (SFM)  which  is  currently  being 
revised. A Green  Paper on forest protection and forest information (preparing forests for climate  change) was adopted in 2010 with a view to strengthening EU 
action on forest protection and forest information systems; currently a follow-up of the Green Paper on forest protection and information is ongoing. Two recent 
studies  have  links  to  adaptation:  "Disturbance  of  EU  forests  by  biotic  agents"  and  "Influences  of  EU  forests  on  weather  patterns".  The  European  Forest  Fire 
Information System EFFIS helps decreasing GHG emissions of forest fires. It is the most up to date information on forest fires in Europe and in the Mediterranean 
area.    The  EU’s  rural  development  policy  for  the  period  2007–2013  provides  a  basis  for  the  full  integration  of  forestry.  In  the  context  of  the  review  of  Rural 
Development Policy post 2013 the further development of the forestry measures will be examined. A new EU Forest Strategy is expected to be adopted in Spring 
2013. 

European  Consortium  for  Modelling  of  Air  Pollution  and 
Climate Strategy 

Linkage of many sectoral models. Baseline and Forecasts on non CO2 emissions. Providing scientific and economic analyses for the revision of the EU Thematic 
Strategy on Air and the European Climate Change Programme (ECCP). 

LULUCF Accounting tool 

Modelling tool for international negotiations on LULUCF CO2 sink/source. 

An analysis of potential and costs of LULUCF use by EU 
MS 

This study is aimed at developing projections for LULUCF emissions by 2020 and 2030, covering forests, agricultural soils and wetlands. A next step will include 
policy scenarios deviating from BAU, taking account of the Copenhagen agreement and further policy options to be implemented at EU level. Finally, potential and 
costs for reducing net emissions from LULUCF will be estimated at MS level. 

including  LULUCF 

Options  for 
the  Community 
reduction  commitment  and  instruments  for  increasing 
GHG  mitigation  efforts  in  the  LULUCF  and  agriculture 
sectors 

in 

This study assessed and proposed policy options for including LULUCF in the Community reduction commitment. It presented four options for inclusion and three 
options  for  accounting  of  these  options,  altogether  12  possible  scenarios.  However,  the  accounting  scenario  was  developed  prior  to  the  Durban  decision  on 
LLULUCF  accounting rules, which  more or less  made several  accounting options obsolete. The policy options included no action, inclusion of LULUCF in the 
Effort Sharing Framework and a separate framework with or without a target. Using this input among other, the Commission developed its proposal for LULUCF 
accounting rules which are currently in co-decision procedure. 

Evaluation  of 
greenhouse gas emissions - phase II 

livestock  sector's  contribution 

to  EU 

COMPLETED - The objective of the GGELS project was to provide an estimate of the net emissions of GHGs and ammonia (NH3) from livestock sector in the 
EU-27 according to animal species, animal products and livestock systems following a food chain approach. The project provides a quantification of GHG and NH3 
emissions  both  ex-post  for  the  year  2004  and  ex-ante  according  to  the  latest  CAPRI  projections  for  the  year  2020.  A  new  FP7-funded  research  project 
AnimalChange will be working on mitigation and adaptation options for livestock. 

CC mitigation potential of EU Farm 

COMPLETED – The objective of this study is to better understand the GHG profile of common farm practices in the EU, and how these practices fit into the major 
farming  systems;  understand  how  changes  to  these  practices  can  improve  the  GHG  profile.  To  propose  a  tentative  model  for  a  whole-farm  assessment  of  GHG 
profile and to understand the potential synergies between the different practices discussed. 

Assessing  Agriculture  Vulnerabilities  to  design  Efficient  COMPLETED - The objective of the study is to provide an improved estimate of the main vulnerabilities of the European crop productions in the main producing 

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Action 
Measures for Adaptation to Climate Change -   AVEMAC 

EU Action – status and planned 
regions in the short and medium term (2020, 2030), assess the possible impacts (at macro level and at micro level using farm type) and adaptation potential in order 
to define the more efficient adaptation measures to be recommended. The JRC-IES will continue developing expertise to assess potential impacts of climate change 
on agriculture by developing the current modelling platform. The full report is available at: http://ec.europa.eu/agriculture/analysis/external/avemac/index_en.htm. 

Identification  and  Elaboration  of  Methodology 
for 
classification  and  costing  of  projects/programmes  for 
adaptation to climate change 

To  conduct  an  extensive  review  of  available  information  on  costs  of  adaptation  within  the  EU  (and  when  appropriate  neighbouring  countries)  and  a  review  of 
existing methodologies for identifying these costs. To assess and compare such methodologies identifying the methodological and data challenges associated with 
calculating the expenditure on adaptation. To propose a set of criteria for classifying different projects, programs or budget lines and calculating the expenditure and 
propose a system to estimate the "adaptation share" for projects not exclusively intended for adaptation. The scope of adaptation options does not include small-
scale private autonomous adaptation measures (e.g. farm-level adaptation practices, air conditioning). 

Inventory of certification schemes for agricultural products 
and foodstuffs marketed in the EU member states 

COMPLETED - A new inventory compiled (in 2010) counted 441 schemes for agricultural products and foodstuffs marketed in the EU. It provides a broad picture 
of existing schemes in the EU-27. Voluntary certification schemes for agricultural products provide assurance that certain aspects of the product or its production 
method, as laid down in a specification, have been observed. ( http://ec.europa.eu/agriculture/quality/certification/inventory/inventory-data-aggregations_en.pdf 

c) Biodiversity, ecosystems and water 

Explore  the  possibilities  to  improve  policies  and  develop 
measures  which  address  biodiversity  loss  and  climate 
change in an integrated manner to fully exploit co-benefits 
and  avoid  ecosystem  feedbacks  that  accelerate  global 
warming 

Climate change was one of the four key policy areas identified in the Communication on "Halting the loss of Biodiversity by 2010 – and beyond" and the 
Biodiversity Action Plan includes the objective "to support biodiversity adaptation to climate change". The EU Biodiversity Strategy up to 2020 reiterates that 
biodiversity loss and climate change are intrinsically linked and states that "Ecosystem-based approaches to climate change mitigation and adaptation can offer cost-
effective alternatives to technological solutions, while delivering multiple benefits beyond biodiversity conservation". Green Infrastructure is seen as an essential 
means of integrating biodiversity and climate change adaptation, a Green Paper on Green Infrastructure shall be presented in autumn 2012. 

Develop  guidelines  and  a  set  of  tools  (guidance  and 
exchange  of  best  practices)  by  the  end  of  2009  to  ensure 
that  the  River  Basin  Management  Plans  (RBMP)  are 
climate-proofed 

COMPLETED  -  The  Water  Framework  Directive  provides  European  countries  with  a  common  basis  to  address  water  challenges  posed  by  climate  change.  In 
particular, the Directive’s river basin approach to water management – centred on the establishment and review of river basin management plans every six years, 
including  a  Programme  of  Measures  to  bring  waters  to  good  status,  establishes  a  mechanism  to  prepare  for  and  adapt  to  climate  change.  The  first  river  basin 
management  plans  were  required  by  22  December  2009.  The  ClimWatAdapt  study,  completed  in  2011,  looked  into  how  key  sectors,  i.e.  agriculture,  industry, 
tourism, can adapt in order to counterbalance the effects of floods, water scarcity, droughts and changes in water quantity and aims to provide a sound basis for the 
assessment of vulnerability and of adaptation measures in the context of water policy, but also other environmental and sectoral policies. 

Ensure  that  climate  change  is  taken  into  account  in  the 
implementation of the Floods Directive. 

Directive 2007/60/EC on the assessment and management of flood risks requires Member States to assess if water courses and coast lines are at risk from flooding, 
then to map flood risks and to take adequate and coordinated measures to reduce the risk. Work is progressing on a catalogue of good adaptation measures and on 
the improvement of the information on past floods. Most Member States reported their preliminary flood risk assessments by March 2010. Member States must by 
2013 develop flood hazard maps and flood risk maps for areas where potential significant flood risk exists. 

Assess  the  need  for  further  measures  to  enhance  water 
efficiency in agriculture, households and buildings 

Explore  the  potential  for  policies  and  measures  to  boost 
ecosystem storage capacity for water in Europe 

The 2007 Communication on addressing the challenge of water scarcity and drought in the EU set out a number of policy options for addressing water scarcity, 
including the important roles played by water pricing and land-use planning in incentivising efficient water use. The Policy Review for Water Scarcity and Droughts 
will  be  integrated  into  the  "Blueprint  to  safeguard  European  waters"  to  be  presented  by  the  Commission  by  November  2012.  A  set of  completed  studies  helped 
bridging important knowledge gaps as regards water scarcity & droughts in the EU and assessed what measures are needed to improve water efficiency in various 
sectors: agriculture, buildings, water distribution networks, product labelling. 

The  Water  Framework  Directive  (WFD)  will  contribute  strongly  to  improving  and  maintaining  ecosystems  and  works  in  order  to  deliver  guidance  on  the 
relationship between inland river waterways and Natura 2000, selecting best-practice examples for integrated  management, combining nature protection, climate 
change  adaptation  and  transport  navigation  measures  are  ongoing.  A  service  contract  for  the  analysis  of  costs,  benefits  and  climate  proofing  of  natural  water 
retention measures, as part of the "green infrastructure" approach for flood and water scarcity & droughts prevention was completed in April 2012. Modelling of the 
land-use, hydrological, and economic impacts of the natural water retention measures is undertaken by JRC in the context of the impact assessment of the Blueprint 
Communication, which will address the need and potential options for unlocking the potential of these measures. 

Draft  guidelines  by  2010  on  dealing  with  the  impact  of  As the establishment phase is nearing completion the focus is increasingly on the management and restoration of sites in the network, and on its overall ecological 

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Action 
climate change on the management of Natura 2000 sites 

Explore  the  potential  for  policies  and  measures  to  boost 
soil storage capacity for both carbon and water in Erope 

d) Coastal and marine areas 

Ensure that adaptation in coastal and marine areas is taken 
into  account  in  the  framework  of  the  Integrated  Maritime 
Policy,  in  the  implementation  of  the  Marine  Strategy 
Framework  Directive  and  in  the  reform  of  the  Common 
Fisheries Policy. 

Develop European guidelines on adaptation in coastal and 
marine areas 

e) Production systems and physical infrastructure 

Take  account  of  climate  change  impacts  in  the  Strategic 
Energy Review process 

EU Action – status and planned 
coherence. A study on Biodiversity and Climate Change in relation to Natura 2000 was conducted. The guidelines on Natura 2000 and climate change will assess 
current knowledge of risk from climate change to species and habitats of EU conservation concern protected by the network, as well setting out on approaches to 
reduce,  mitigate and adapt to such impacts, both within the sites and at broader network level. They will also look at the benefits arising from  management and 
restoration of Natura 2000 sites to climate change mitigation and adaptation. Further assisting guidelines will help dealing with the impact of climate change on the 
management of Natura 2000. Scheduled issuing autumn 2012. 

The fight against soil degradation and, in particular, the loss of soil organic matter and soil biodiversity, is dealt with via the Soil Thematic Strategy (STS) and the 
proposed  Soil  Framework  Directive  (SFD).  CLIMSOIL  shows  the  inter-relationship  between  soil  and  climate  change  and  SOCO  assessed  a  range  of  soil 
conservation  practices,  including  from  the  perspective  of  keeping  organic  matter  levels.  Possible  ways  of  strengthening  and  supporting  soil  measures  within  the 
framework of the CAP will be addressed as part of the post-2013 reform. Guidelines have been produced to provide competent authorities in Member States as well 
as stakeholders with a useful tool containing relevant information which could be used from awareness raising to planning, from implementing mitigation measures 
to providing a check-list for development projects. It is based on the approach consisting of limiting, mitigating, and compensating the effects of soil sealing. 

When  addressing  maritime  activities  from  a  cross-sectorial  perspective,  the  EU  Integrated  Maritime  Policy  provides  a  comprehensive  framework  for  better 
understanding the impacts of climate change with  coastal and marine areas and to integrate measures on climate change adaptation at EU level. The EU Integrated 
Maritime Policy is implemented at the level of marine regions  and specific Sea Basin strategies have already been developed for the Baltic, the Mediterranean and 
the Atlantic Sea Basin. 

The  Marine  Strategy  Framework  Directive  will  facilitate    adaptation  to  climate  change  by  ensuring  that  climate  change  considerations  are  incorporated  into 
Member States’ marine strategies while providing a mechanism for regular updating of the marine strategies to take account of new information.  

The  Common  Fisheries  Policy  is  currently  subjected  to  a  root-and-branch  overhaul  with  a  view,  in  particular,  to  rebuild  stocks  to  levels  capable  to  produce 
maximum sustainable yield. Increasing the size of fish stocks and their productivity will make them less vulnerable to external factors like climate change. 

A more coherent and integrated approach to coastal and maritime  planning and management through integrated coastal zone management (ICZM) and maritime 
spatial  planning  (MSP)  will  benefit  adaptation  in  coastal  and  marine  areas.  The  ICZM  Recommendation  (2002/413/EC)  provides  for  Member  States  to  take  a 
strategic approach to the management of their coastal zones. The proposal for an EU framework on ICZM and MSP is expected towards the end of 2012. 

The Commission is committed to developing guidelines  on best practice in coastal and marine areas which will contribute to ensuring a coordinated and integrated 
approach to climate change adaptation in these  areas.  This could be addressed as part of the EU Communication on a strategy on adaptation to climate change to be 
adopted in 2013. The guidance will take account of and build on existing studies, research and relevant policy initiatives, in particular the Community strategy on 
disaster prevention, the Floods directive, the EUrosion study and the study on the Costs of coastal defence and adaptation. OURCOAST is an initiative to support 
and implement sustainable coastal planning and management. It includes a database of coastal planning and management practices, with a key focus on adaptation 
to risks and climate change. 

The EU’s agenda for 2020 has set out the essential first steps in the transition to a high-efficiency, low-carbon energy system. The EU needs to develop a vision for 
2050 and a policy agenda for 2030. The fundamental technological shifts involved in decarbonising the EU electricity supply, ending oil dependence in transport, 
low  energy  and  positive  power  buildings,  a  smart  interconnected  electricity  network  will  only  happen  with  a  coordinated  agenda  for  research  and  technological 
development, regulation, investment and infrastructure development. In addition, the transition to a high efficiency, low-carbon energy system needs to be promoted 
not only in Europe but worldwide. The Energy Roadmap towards 2050 was adopted in December 2011. 

Develop methodologies for climate-proofing infrastructure 
projects and consider how these could be incorporated into 
the  TEN-T  and  TEN-E  guidelines  and  guidance  on 

The 2008 Green Paper on infrastructure was designed to encourage a reflection on how energy networks should develop in the coming years, amongst others, to 
reflect  the  new  climate  change  and  energy  policy.  The  Commission  is  currently  working  on  a  comprehensive  energy  infrastructure  package.  Elements  such  as 
increasing resilience of energy transmission infrastructure to cope with extreme weather condition, positioning of over-head power lines, impacts of climate change 

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Action 
investments under Cohesion policy in the current period 

EU Action – status and planned 
on LNG infrastructure will be examined in the TEN-E revision process. The TEN-T programme consists of hundreds of projects whose ultimate purpose is to ensure 
the cohesion, interconnection and interoperability of the trans-European transport network, as well as access to it.  

Explore 
assessment a condition for public and private investment 

the  possibility  of  making  climate 

impact 

In  the  discussions  on  the  future  Cohesion  Policy  the  inclusion  of  climate  proofing  as  a  horizontal  condition  for  all  investments  is  ongoing.  Including  climate 
proofing provisions in EU co-financed programmes could be exemplary for national and local public investments and for private sector take-up.  

Assess the feasibility of incorporating climate impacts into 
construction standards, such as Eurocodes 

The  Eurocodes  are  currently  taken  up  by  Member  States  and  several  have  already  fully  replaced  their  previous  national  codes  with  the  Eurocodes.  In  principle 
Member States are supposed to have the Eurocodes in place since the beginning of 2011. 

Assess  the  effect  of  climate  change  on  the  transport 
network 

The  objective  of  the  ECCONET  project  (http://www.tmleuven.be/project/ecconet/home.htm)  is  to  gather  the  expertise  of  partners  from  different  fields  related  to 
meteorology, hydrology, infrastructure operation, transportation and economics in order to assess the effect of climate change on the transport network, taking the 
inland waterway network as case-study. 

Develop guidelines by 2011 to ensure that climate impacts 
are taken into account in the EIA and SEA Directives 

The Commission has decided to develop practical guidance and recommendations for integrating climate change and biodiversity into EIA/SEA procedures to assist 
EIA/SEA  practitioners  in  taking  full  advantage  of  EIA  and  SEA  in  achieving  EU  climate  change  and  biodiversity  goals.  It  is  expected  that  the  Commission 
Guidance should be made publicly available by the end of 2012. 

3) Instruments – Financing 

Estimate adaptation costs for relevant policy areas so that 
they can be taken into account in future financial decisions  

CLIMATECOST will include estimates of adaptation costs and benefits for Europe in the following sectors: Coasts and tourism, Agriculture and water, Energy 
consumption and production, Infrastructure and extremes (floods & storms), Health, Ecosystems and forests. A methodological study finalised at the beginning of 
2011 addresses the typology of adaptation actions, the methodology to project future adaptation costs and the methodology to estimate spending on adaptation. 

Further  examine  the  potential  use  of  innovative  funding 
measures for adaptation 

The  Commission  is  exploring  possibilities  for  the  future  LIFE+  instrument  to  address  adaptation  issues.  The  instrument  would  among  other  issues  finance 
adaptation actions and would be managed in an innovative manner. 

Explore  the  potential  for  insurance  and  other  financial 
products  to  complement  adaptation  measures  and  to 
function as risk sharing instruments 

A study on applying economic instruments for adaptation to climate change was finalised in 2011 which explored the application of the following instruments: Risk 
Management Instruments, Market Based Instruments, Public Private Partnerships. The application of the instruments is analysed from two perspectives: Promoting 
adaptation to climate change and sharing (transferring) the risks of climate change. 

Encourage Member States to utilise the EU ETS revenues 
for adaptation purposes 

The  possibility  of  using  revenue  generated  from  auctioning  allowances  under  the  EU  ETS  for  adaptation  purposes  should  be  utilised.  The  revised  Directive 
governing the scheme from 2013 provides that at least 50% of the revenue generated from auctioning allowances should be used, inter alia for adaptation in Member 
States and developing countries. This additional revenue will be crucial for sharing adaptation costs between the public and private sector. 

Examine  the  feasibility  of  collecting  data  on  climate 
change  expenditure  (mitigation  and  adaptation)  as  part  of 
the system of environmental accounts 

The  information  on  national  expenditure  related  to  climate  change  adaptation  can  be  useful  in  evaluating  the  measures  taken  by  Member  States  to  address 
adaptation.  Eurostat  is  investigating  the  feasibility  of  identifying  such  information  on  the  basis  of  existing  statistical  classifications  and  administrative  data  in 
environmental  protection  expenditure  accounts.  The  results  of  the  study  are  to  be  used  as  a  basis  for  further  elaborating  the  precise  statistical  methodology  for 
setting up an account on adaptation expenditure. 

4) Partnership with the Member States 

Establish  an  Impact  and  Adaptation  Steering  Group 
(IASG) to step up cooperation on adaptation 

In order to assist the Commission in developing its approach to dealing with adaptation, the Adaptation Steering Group was established in September 2010. This 
Group brings together Member States and a diverse range of stakeholders and is giving guidance about the work on mainstreaming of Adaptation into various EU 
policies and other issues. The Group is also supposed to assist the COM in the establishment of the 2013 Adaptation Strategy.  

further  development  of  National/Regional  Adaptation 
Strategies considering mandatory strategies from 2012 

The Commission is currently in the process of establishing an EU Adaptation Strategy which is supposed to be adopted in 2013. Currently 12 Member States have 
adopted a national adaptation strategy; other Member States are in the process to do so. 

5) External dimension and UNFCCC 

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Action 

EU Action – status and planned 

Step-up  efforts  to  mainstream  adaptation  into  all  EU 
external  policies  and  strengthen  dialogue  with  partner 
countries on adaptation issues 

Bilateral  and  regional  financial  assistance  programmes  will  aim  to  integrate  adaptation  considerations  into  all  relevant  sectors.  The  proposed  review  of  the  EU 
Environment  Integration  Strategy  presents  a  good  opportunity  to  emphasise  the  need  for  integrating  adaptation  needs,  as  will  the  Mid-Term  Review  of  EC 
cooperation strategies. The EU is strengthening its analysis and early warning systems and integrating climate change into existing tools such as conflict prevention 
mechanisms and security sector reform. Adaptation is also being brought into the dialogue with European Neighbourhood Policy (ENP) partner countries and the 
regular "Energy, Transport, Environment" sub-committees offer a forum for structured dialogue.  

Framework for Action on Adaptation in the UNFCCC 

The EU is taking an active role in the negotiations to ensure adaptation issues are adequately dealt with in a post 2012 agreement. 

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Table 16: Policy actions beyond mainstreaming activities as mentioned in the White Paper of Adaptation 

Policy option/Action 

Timeline 

Related Policy documents 

Related adaptation measures 

Commission Recommendation on 
Research joint programming initiative 
‘Connecting Climate Knowledge for 
Europe’ 

tentative: Adoption 
end of Oct. 2011, 
targeted for 
Council meeting 5 
Dec 2011 

Commission  Recommendation 
Working Paper 

and 

Staff 

1)  Improve  climate  predictability,  2)  Developing 
climate 
societal 
transformation and 4) Improving decision-making 

3)  Understanding 

services, 

Set up of a GMES (Global Monitoring 
for Environment and Security) Climate 
Service. The service will be based on 
satellite and in-situ monitoring data, 
Modelling of the entire Earth system, 
including Model reanalysis and data 
assimilation. Specific services for 
Impact assessment (Indicators) and 
Attribution will be included  

Reform of the Common Agricultural 
policy for the period 2014-2020 (on-
going) 

Definition of the 
service is still on 
going as part of the 
preparation of the 
GMES Operations 
from 2014 
onwards. 
Developements 
activities are 
planned through 
the last call of the 
FP7 Space theme. 
2012 

Documents related to GMES activities 

No  adaptation  measures,  but  the  Service  will  support 
Adaptation  policy 
the  European  Climate 
Adaptation Platform – CLIMATE ADAPT) 

(i.e. 

Commission  Communication  on 
the  CAP 
towards  2020  (November  2010)  and  Legal 
proposals for the CAP after 2013 (October 2011), 
currently  being  discussed  with  the  Member 
States 
Parliament 
the 
(http://ec.europa.eu/agriculture/cap-post-
2013/legal-proposals/index_en.htm) 

European 

and 

the 

Enhancing  farmers'  resilience  to  the  threats  posed  by 
climate  change  features  among 
three  main 
objectives of the next CAP for the period 2014-2020. A 
climate  resilient  agriculture  is  one  of  the  six  key 
priorities  for  the  future  rural  development  policy  and 
MS  will  be  requested  to  plan  actions  related  to  all 
priorities. Adaptation is also an aspect to be taken into 
account when assessing the specific needs of the other 
five priorities. The future RD will offer a wide range of 
possibilities  to  support  actions  that  are  targeted  or 

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Green Paper on Marine Knowledge 

2012 

2007 Blue Book on Integrated Maritime Policy 

2010  Report  from  the  EU Parliament  on  the  EU 
Integrated Maritime Policy 

relevant  for  preparing  for  climate  change  impacts, 
particularly for water management. 

No  specific  adaptation  measures,  but  the  Service  is 
developing  a  study  on  Marine  Knowledge  that  will 
explore  the  benefits,  for  both  bussiness  and  public 
autorithies, of reducing the uncertainty in the behaviour 
Improving  marine  knowledge  will 
of 
contribute 
to 
take  better  adaptation  measures 
Climate Change. 

the  sea. 
to 

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Technical notes 

(1) 

(2) 

(3) 

The  Annual  European  Union  greenhouse  gas  inventory  1990–2010  and  inventory 
report 2012 (EEA, Technical report No 3/2012).  

For further information see the EEA website: http://www.eea.europa.eu/themes/climate 

Based on MS submissions until May 2012 under the Monitoring Mechanism Decision 
280/2004/EC and PRIMES/GAINS projections for Bulgaria, Portugal and Romania. 

For  further  details  on  PRIMES-GAINS  projections  and  its  underlying  methodology 
see  COMMISSION  STAFF  WORKING  DOCUMENT  accompanying 
the 
COMMUNICATION  FROM  THE  COMMISSION  TO  THE  EUROPEAN 
PARLIAMENT,  THE  COUNCIL,  THE  EUROPEAN  ECONOMIC  AND  SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS: Analysis of options to 
move  beyond  20%  greenhouse  gas  emission  reductions  and  assessing  the  risk  of 
carbon leakage {COM(2010) 265 final}. Background information and analysis, Part II. 
SEC(2010)  650,  Brussels,  26.5.2010;  Höglund-Isaksson,  L.,  W.  Winiwarter,  F. 
Wagner,  Z. Klimont and  M. Amann: Potentials and costs for  mitigation  of non-CO2 
greenhouse gas emissions in the European Union until 2030. Update 2010, May 2010, 
http://ec.europa.eu/environment/climat/pdf/climat_action/non_co2emissions_may2010.pdf;  European 
Commission,  DG  Energy:  EU  energy  trends  to  2030  —  UPDATE  2009,  September 
2010. 

(4) 

The  six  corresponding  legislative  acts  were  published  in  the  Official  Journal  of  the 
European Union in June 2009 (5.06.2009 L 40), and are already in force. 

Directive  2009/29/EC  expands,  strengthens  and  improves  the  functioning  of  the  EU  ETS 
post-2012. From 2013 an emission cap will be set at EU level and cut each year to reach -21% 
in  2020  (comparing  to  2005  levels).  The  auctioning  system  of  allowances  will  be  increased 
and  ambitious  ex-ante  benchmark  for  free  allocation  will  be  introduced.  Industrial 
installations not subject to carbon leakage will be required to buy 20% of allowances in 2013 
rising to 70% in 2020 and 100% in 2027, while those identified to be exposed to the risk of 
carbon leakage will receive 100% of the quantity determined by benchmarks for free. Use of 
offset  credits  from  outside  of  the  EU  is  allowed  but  this  amount  remains  below  half  of  the 
reduction effort in order to ensure a sufficient level of emissions reductions inside the EU. (OJ 
5.06.2009 L 140) 

Decision  406/2009/EC  sets  national  commitments  to  reduce  GHG  emissions  which  are 
outside  the  scope  of  the  EU  ETS  (small-scale  emitters:  transport,  buildings,  agriculture, 
waste),  which  represent  some  60%  of  total  GHG  emissions  in  the  EU.  The  decision  sets 
legally  binding  annual  targets  in  the  period  2013-2020  for  each  MS  ensuring  that  by  2020 
emissions from these sectors will be reduced at EU level by 10% comparing to 2005 levels. 
The  efforts  (targets  ranging  from  -20%  to  +20%)  are  shared  between  MS  according  to 
differences in GDP per capita. Less wealthy Member States will be allowed to increase their 
emissions  in  non-ETS  sectors  by  up  to  20%  above  2005  levels.  These  targets  do,  however, 
still  represent  a  cap  on  their  emissions  and  will  still  require  a  reduction  effort  compared  to 
business as usual. By contrast, the wealthier Member States, with GDP/capita above the EU 
average,  will  have  to  reduce  emissions,  up  to  a  maximum  figure  of  -20%  below  2005.  (OJ 
5.06.2009 L 140) 

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Directive 2009/28/EC on the promotion of the use of renewable energy sets legally binding 
targets  for  each  Member  State  in  order  to  reach  the  EU  target  of  20%  share  of  renewable 
energy  in  the  EU’s  final  energy  consumption  and  10%  share  in  transport  by  2020.  (OJ 
5.06.2009 L 140) 

Directive 2009/31/EC on geological storage of CO2 provides a legal framework to manage 
possible  environmental  risks  and  liability  issues  and  includes  a  long-term  incentive  for 
investment in demonstration projects to capture and geologically store CO2. (OJ 5.06.2009 L 
140) 

Regulation  (EC)  No  443/2009  sets  standards  for  CO2  emissions  from  new  passenger  cars, 
which  will  ensure  that  emissions  from  the  new  car  fleet  are  reduced  to  an  average  of  130g 
CO2/km by 2015. A stringent long-term target of 95g CO2/km by 2020 was also set. Estimate 
of total GHG emission savings per year amounts to 50 Mt CO2 eq. (OJ 5.06.2009 L 140) 

Fuel quality directive 2009/30/EC puts an obligation on suppliers to reduce greenhouse gas 
emission from  entire fuel production  chain by  6% by 2020. A review in 2012 will consider 
increasing  the  target  to  10%  by  2020.  Estimate  of  total  GHG  emission  savings  per  year 
amounts to 62.5 Mt CO2-eq. (OJ 5.06.2009 L 140) 

(5) 

(6) 

(7) 

(8) 

(9) 

Or 30% if the conditions are right (other major emitting countries in the developed and 
developing  worlds  commit  to  do  their  fair  share  under  a  future  global  climate 
agreement) 

Commission  Decision  2010/634/EU  of  22  October  2010  adjusting  the  Union-wide 
quantity of allowances to be issued under the Union Scheme for 2013 (OJ 23.10.2010 
L 279/34) 

Commission  Regulation  (EU)  No.  1031/2010  of  11  November  2010  on  the  timing, 
administration and other aspects of auctioning of greenhouse gas emission allowances 
pursuant  to  Directive  2003/87/EC  of  the  European  Parliament  and  of  the  Council 
establishing  a  scheme  for  greenhouse  gas  emission  allowances  trading  within  the 
Community (OJ 18.11.2010 L 302/1) 

Commission Decision 2011/278/EU of 27 April 2011 determining transitional Union-
wide rules for harmonised free allocation of emission allowances pursuant to Article 
10a of Directive 2003/87/EC (OJ 17.5.2011 L 130/1) 

Commission  Decision  2010/670/EU  of  3  November  2010  laying  down  criteria  and 
measures  for  the  financing  of  commercial  demonstration  projects  that  aim  at  the 
environmentally safe capture and geological storage of CO2 as well as demonstration 
projects of innovative renewable energy technologies under the scheme for greenhouse 
gas  emission  allowance  trading  within  the  Community  established  by  Directive 
2003/87/EC of the European Parliament and of the Council. (OJ 6.11.2010 L 290/39) 

(10)  The Commission Regulation (EU) 550/2011 of 7June 2011 on determining, pursuant 
to  Directive  2003/87/EC,  certain  restrictions  applicable  to  the  use  of  international 
credits from projects involving industrial gases (OJ 8.6.2011 L 149/1.) 

(11)  Commission  Regulation  (EU)  No  394/2011 of  20  April  2011 amending  Regulation 
(EC) No 748/2009 on the list of aircraft operators that performed an aviation activity 
listed  in  Annex  I  to  Directive  2003/87/EC  of  the  European  Parliament  and  of  the 

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Council  on  or  after  1  January  2006  specifying  the  administering  Member  State  for 
each aircraft operator as regards the expansion of the Union emission trading scheme 
to EEA-EFTA countries (OJ 27.4.2011 L 107/1) 

(12)  Commission Regulation (EU) No 1014/2010 of 10 November 2010 on monitoring and 
reporting of data on the registration of new passenger cars pursuant to Regulation (EC) 
No 443/2009 of the European Parliament and of the Council (OJ 11.11.2010 L 293/15) 

(13)  Commission  Regulation  (EU)  No  63/2011  of  26  January  2011  laying  down  detailed 
provisions for the application for a derogation from the specific CO2 emission targets 
pursuant  to  Article  11  of  Regulation  (EC)  No  443/2009  of  the  European  Parliament 
and of the Council (OJ 27.1.2011 L 23/16) 

(14)  Regulation  (EU)  No  510/2011  of  the  European  Parliament  and  of  the  Council  of  11 
May 2011 setting emission performance standards for new light commercial vehicles 
as part of integrated approach to reduce CO2 emissions from light-duty vehicles. (OJ 
31.5.2011 L 145/1) 

(15)  CITL, July 2012 

(16)  The revised directive on EU ETS allows existing operators (from 2013) to use JI and 
CDM credits in such a way that the overall use of credits is limited to 50% of the EU-
wide reductions below the 2005 levels over the period 2008-2020 and for new sectors 
and  aviation  50%  of  the  reductions  below  the  2005  levels  over  the  period  from  the 
date  of  their  inclusion  in  the  EU  ETS  to  2020.  This  amounts  to  an  overall  JI/CDM 
limit of roughly 6.5% of the EU-wide cap over the period 2008-2020.The exact limits 
for each installation will still need to be determined but the Directive already grants to 
existing operators an access to credits of at least of 11% of their allocation during the 
period  2008-2012.  In  addition,  new  entrants  and  new  sectors  including  aviation 
receive minimum levels of access to JI and CDM credits.  

(17)  Base  year  level  of  GHG  emissions  for  Croatia  has  not  been  decided  yet,  however 
Croatia formally notified the UNFCCC to withdraw its appeal against the decision of 
the Executive Branch of the Compliance Committee  

(18)  Second 

progress 
http://europa.eu.int/comm/environment/climat/pdf/second_eccp_report.pdf 

ECCP 

report 

April 

2003 

(19)  Directive on the promotion of energy from renewable sources, Citizens' Summary, 23 

January 2008 

(20)  The original figure refers to a cumulative estimate of 7 MtCO2eq by 2020.  

(21)  Proposal  for  a  Directive  of  the  European  Parliament  and  of  the  Council  on  the 
promotion  of  cogeneration  based  on  a  useful  heat  demand  in  the  internal  energy 
market  

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

(23)  Decision No 1229/2003/EC, Regulation (EC) No 807/2004, Directive 2003/54/EC & 

2003/55/EC, Regulation (EC) No 1228/2003 

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

(25)  Energy  performance  of  buildings  –  impact  assessment  on  the  revised  directive 

SEC(2008) 2864 

(26)  Proposal  for  a  Directive  of  the  European  Parliament  and  of  the  Council  on  End-Use 

Energy Efficiency and Energy Services, COM(2003) 739 final 

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

(28)  Questions  and  answers  on  the  EU  strategy  to  reduce  CO2  emissions  from  cars, 

MEMO/07/46.  

(29)  Questions  and  answers  on  the  EU  strategy  to  reduce  CO2  emissions  from  cars, 

MEMO/07/46.  

(30) 

Inclusion  of  Aviation  in  the  EU  Greenhouse  Gas  Emissions  Trading  Scheme  (EU 
ETS), Summary of the Impact Assessment, SEC(2006) 1685 

(31)  Directive  on  the  promotion  of  clean  and  energy  efficient  road  transport  vehicles, 

2005/0283 (COD) 

(32)  Regulation proposal on certain fluorinated greenhouse gases, COM (2003) 492 final; 
estimated  emissions  reductions  are  due  to  both  the  implementation  of  F-gases 
Regulation  (842/2006)  and  the  MAC  Directive  (2006/40/EC-  for  air  conditioning 
systems in motor vehicles)  

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

(34)  Value  in  2011  -  Directive  on  waste  electrical  and  electronic  equipment  (WEEE), 

(recast) Impact Assessment, {COM(2008) 810}, {SEC(2008) 2933} 

(35)  From  ECCP  working  group  on  agriculture  and  sub-group  on  carbon  sinks  related  to 
agricultural  soils.  Some  of  potential  for  bioenergy  crops  will  be  covered  within 
potential from biofuels, cogeneration from biomass, further promotion of RES-H etc. 

(36)  EEA, 

Europe 
http://www.eea.europa.eu/publications/eea_report_2008_5/TPReport2008Annexes.pdf  

Projections 

Trends 

2008, 

GHG 

and 

in 

(37)  Thematic Strategy for Soil Protection, COM(2006)231 

(38)  This figure is based on the 2010 proxy estimate of total EU-27 GHG emissions. For 
further information see the EEA website: http://www.eea.europa.eu/themes/climate 

(39)  The  Package  introduced  some  further  differences  in  comparison  to  the  UN  rules 
including  the  following:  no  recognition  of  AAUs,  exclusion  of  the  LULUCF  sector, 
more restrictive CDM policy, annual compliance, broader coverage of sectors. 

(40)  Report  from  the  Commission  on  the  application,  effects  and  adequacy  of  the 

Regulation on certain fluorinated greenhouse gases (Regulation (EC) No 842/2006) 

(41) 

http://ec.europa.eu/clima/policies/f-gas/docs/report_en.pdf 

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