COMMISSION STAFF WORKING DOCUMENT TECHNICAL INFORMATION TO THE CLIMATE ACTION PROGRESS REPORT Accompanying the document Report from the Commission to the European Parliament and the Council Climate action progress report, including the report on the functioning of the European carbon market and the report on the review of Directive 2009/31/EC on the geological storage of carbon dioxide (required under Article 21 of Regulation (EU) No 525/2013 of the European Parliament and of the Council of 21 May 2013 on a mechanism for monitoring and reporting greenhouse gas emissions and for reporting other information at national and Union level relevant to climate change and repealing Decision No 280/2004/EC, under Article 10(5) and Article 21(2) of the Directive 2003/87/EC of the European Parliament and of the Council of 13 October 2003 establishing a scheme for greenhouse gas emissions allowance trading within the Community and amending Council Directive 96/61/EC and under Article 38 of Directive 2009/31/EC of the European Parliament and of the Council on the geological storage of carbon dioxide)
Date: 2015-11-18
Institutions: Directorate-General for Climate Action, European Commission
Subjects: EU Emissions Trading Scheme, EU environmental policy, Kyoto Protocol, adaptation to climate change, climate change, environmental monitoring, greenhouse gas, pollution control measures, reduction of gas emissions, tradeable emission permit

EUROPEAN 
COMMISSION 

Brussels, 18.11.2015  
SWD(2015) 246 final 

COMMISSION STAFF WORKING DOCUMENT 

TECHNICAL INFORMATION TO THE CLIMATE ACTION PROGRESS REPORT

Accompanying the document 

Report from the Commission to the European Parliament and the Council 

Climate action progress report, including the report on the functioning of the European 
carbon market and the report on the review of Directive 2009/31/EC on the geological 
storage of carbon dioxide  
(required under Article 21 of Regulation (EU) No 525/2013 of the European Parliament 
and of the Council of 21 May 2013 on a mechanism for monitoring and reporting 
greenhouse gas emissions and for reporting other information at national and Union 
level relevant to climate change and repealing Decision No 280/2004/EC, under Article 
10(5) and Article 21(2) of the Directive 2003/87/EC of the European Parliament and of 
the Council of 13 October 2003 establishing a scheme for greenhouse gas emissions 
allowance trading within the Community and amending Council Directive 96/61/EC and 
under Article 38 of Directive 2009/31/EC of the European Parliament and of the Council 
on the geological storage of carbon dioxide)  

{COM(2015) 576 final} 

EN 

   EN 

 
 
 
 
  
 
 
 
 
Contents 

1.  TECHNICAL REFERENCES TO MAIN DATA & FIGURES................................ 5 

2.  OVERVIEW OF CLIMATE TARGETS ................................................................... 6 

3.  EU WIDE TRENDS (INVENTORY) AND PROJECTIONS (WEM) PER SECTOR8 

4.  MEMBER  STATES  PROGRESSES  TOWARDS  EFFORT  SHARING  DECISION 
TARGETS................................................................................................................. 18 

5.  EU ETS AUCTIONING  REVENUES .................................................................... 23 

6.  EU POLICIES AND MEASURES........................................................................... 29 

7. 

INFORMATION ON EX-POST EVALUATION OF CLIMATE POLICIES........ 40 

8.  ADAPTATION TO CLIMATE CHANGE .............................................................. 47 

9.  MEMBER STATES CLIMATE FINANCE ............................................................ 49 

2 

 
 
Index of tables 

Table 1: Overview of climate targets......................................................................................................6 

Table 2: GHG emissions from energy supply and use, excluding transport (1990-2013)......................9 

Table 3: GHG emissions from transport (1990-2013) ..........................................................................10 

Table 4: GHG emissions from agriculture (1990-2013).......................................................................10 

Table 5: GHG emissions from industrial processes (1990-2013).........................................................11 

Table 6: GHG emissions from waste management (1990-2013)..........................................................11 

Table 7: Historic and projected GHG emissions per sector and gas.....................................................15 

Table 8: Emissions (MtCO2-eq.) covered by the Kyoto Protocol........................................................17 

Table 9: Emissions (MtCO2-eq.) covered by the Climate and Energy Package ..................................17 

Table  10:  Gap  between  emissions  estimates  and  ESD  targets  in  2014  and  between  projected 
emissions (with existing measures) and ESD targets in 2020 . ............................................................18 

Table  11:  Historic  (2013-2014proxy)  and  projected  (2015-2020)  gaps  between  emissions  estimates 
and annual limits under the Effort Sharing Decision............................................................................20 

Table 12: total reported revenues from the auctioning of ETS allowances in 2014 and amount used or 
planned to be used on climate & energy -related purposes (millions of euros)....................................23 

13: Reported split of auctioning revenues used or planned to be used at domestic level per type of use 
(millions of euros) 2014........................................................................................................................26 

Table 14: Summary of implemented and planned policies and measures ............................................29 

Table 15: Variables of three factor decomposition analysis .................................................................40 

Table 16: Climate finance provided to developing countries (2013)....................................................49 

3 

 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
Index of Figures 

Figure 1: Share of emissions by sector in the EU-28; 2013 ...................................................................8 

Figure 2: Change in EU-28 GHG emissions by sector and share of sectors in total GHG emissions....9 

Figure  3:  GHG  emissions  intensity  in  the  EU-28,  2014/1990.  Percentages  reflect  annual  average 
reduction................................................................................................................................................12 

Figure  4:  GHG  emissions  per  capita  in  the  EU,  2014/1990.  Percentages  reflect  annual  average 
reduction................................................................................................................................................13 

Figure 5: EU-28 GHG emissions per sector in the WEM scenario ......................................................16 

Figure 6: Reported breakdown of the revenues from the auctioning of EU ETS allowances (millions 
of Euros) in 2014 used or planned to be used for domestic climate and energy related purposes EU-
28...........................................................................................................................................................28 

Figure 7: Comparison of total reported auctioning revenues used or planned to be used for domestic 
climate and energy related purposes: 2013 & 2014..............................................................................28 

Figure 8: 1995-2012 CO2 decomposition analysis ...............................................................................41 

Figure 9: Economy-wide decomposition analysis- EU28.....................................................................43 

Figure 10: electricity generation decomposition analysis – EU 28 ......................................................44 

Figure 11: Inland Passenger transport sector decomposition analysis – EU 28 ...................................45 

Figure 12: Household sector decomposition analysis – EU28 .............................................................46 

4 

 
 
 
 
 
 
1. 

TECHNICAL REFERENCES TO MAIN DATA & FIGURES 

Source of data:  

Emissions up to 2013 are based on data from the official 2015 inventory submissions by the Member 
States. They have been compiled according to the 2006 IPCC guidelines, and the new global warming 
potentials from the IPCC Fourth Assessment Report (AR4). Over the time series, the new estimates 
lead  to  an  increase  on  average  of  approximately  1.2%  in  the  annual  CO2  equivalent  emissions  as 
compared to those previously calculated on the basis of the 1996 IPCC guidelines. 

The  review  of  2013  GHG  emissions  under  the  Effort  Sharing  Decision  has  been  delayed  due  to 
significant delays in the development of Common Reporting Format (CRF) software by the UNFCCC 
Secretariat. 

Emissions estimates for the year 2014 are based on approximated inventory data provided in 2015 by 
the Member States or estimated by the EEA1 on behalf of the Commission, where needed.  

Projected emissions are based on Member States' submissions of 2015 which were quality-checked, 
gap-filled and adjusted where necessary by the EEA on behalf of the Commission. For the gap filling 
and ETS/non-ETS split estimation, data from the 2013 EU Reference Scenario based on the PRIMES 
and 
used 
(http://ec.europa.eu/clima/policies/strategies/2030/docs/eu_trends_2050_en.pdf).2 

GAINS 

models 

have 

been 

Notes related to Figures presented in the Climate Action Progress Report: 

Figure  1:  the  scope  of  the  emissions  presented  is  as  under  the  Climate  and  Energy  Package  but 
excluding international aviation. The targets for the first and second commitment periods under the 
Kyoto  Protocol  are  indicative.  The  target  for  the  first  commitment  has  been  calculated  using  the 
methodology  in  1996  IPCC  guidelines,  and  global  warming  potentials  from  the  IPCC  Second 
Assessment Report (AR2). The figure does not take into account the possible use of carbon sinks and 
flexibility  mechanisms  for  compliance  with  the  Kyoto  targets.  The  quantification  of  the  EU  2030 
target is also indicative. 

Figure 3: The 2014 gap is the difference between 2014 estimates in the non-ETS sector and the 2014 
targets as a percentage of ESD base-year emissions (2005). The 2020 gap is the difference between 
projected non-ETS emissions and targets in 2020 as a percentage of base year emissions.   

Figure 4: The methodology used is explained in the SWD, section 8. 

Figure 5: This figure represents the amount of auctioning revenues as reported by Member States for 
the year 2014. Some amounts can differ from the revenues actually collected during the same year in 
particular due to the fact that the revenues collected one year can be committed and disbursed during 
the following ones. 

1 See "Approximated EU GHG inventory: proxy GHG estimates for 2014" report of the European Environment Agency 

http://www.eea.europa.eu/publications/approximated-eu-ghg-inventory-2014   

2 For more information, see Trends and Projections in Europe 2015 : http://www.eea.europa.eu/publications/trends-and-

projections-in-europe-2015 

5 

 
 
 
 
 
                                                            
2. 

OVERVIEW OF CLIMATE TARGETS  

Table 1: Overview of climate targets. 

International commitments 

EU domestic legislation 

Kyoto Protocol 

Target year of period 

First commitment period 
(2008-2012) 

Second commitment 
period (2013-2020) 

Emission reduction target 

-8% 

-20% 

Climate and Energy Package 

EU ETS 

2013-2020 

ESD 

2013-2020 

-21% compared to 2005 
for ETS emissions 

Annual targets by MS. In 
2020 -10% compared to 
2005 for non-ETS 
emissions 

Renewable Energy Directive: 20% share of 
renewable energy of gross final energy consumption; 
Energy Efficiency Directive : Increase energy 
efficiency by 20 % 

1990 
KP Flexibility rules (Art 
3(5)) regarding F-gases 
and Economies in 
Transition 

Included ARD and other 
activities if elected 

1990, but subject to 
flexibility rules. 1995 or 
2000 may be used as its 
base year for NF3 

1990 for overall emission reduction target; 2005 for 
renewable energy and energy efficiency target; as 
well as for targets broken down into ETS and non-
ETS emissions  

Included ARD and forest 
management, other 
activities if elected 
(new accounting rules)  

Excluded  

Domestic aviation 
included. International 
aviation excluded.  

Domestic aviation 
included. International 
aviation excluded.  

Domestic and 
international  (partly, in 
discussion) aviation 
included in EU ETS 

Aviation generally 
excluded, some domestic 
aviation included 
(operators below ETS de 
minimum thresholds) 

6 

Further targets 

Base year 

LULUCF 

Aviation 

 
 
 
  
 
 
International commitments 

EU domestic legislation 

Kyoto Protocol 

Target year of period 

First commitment period 
(2008-2012) 

Second commitment 
period (2013-2020) 

Use of international credits 

Use of KP flexible 
mechanisms subject to 
KP rules 

Use of KP flexible 
mechanisms subject to 
KP rules 

Carry-over of units (1)from 
preceeding periods 

Not applicable 

Subject to KP rules 
including those agreed in 
the Doha Amendment 

Climate and Energy Package 

EU ETS 

2013-2020 

ESD 

2013-2020 

Upper limit for credit use 
for period 2008-2020 at a 
maximum of 50 % of the 
reduction effort below 
2005 levels  
EU ETS allowances can 
be banked into 
subsequent ETS trading 
periods since the second 
trading period 

3Annual use of carbon 
credits is limited to up to 
3 % of each Member 
State's ESD emissions in 
2005  

No carry over from 
previous period 

Gases covered 

Sectors included 

CO2, CH4, N2O, HFCs, 
PFCs, SF6, 

CO2, CH4, N2O, HFCs, 
PFCs, SF6, NF3 

CO2, CH4, N2O, HFCs, PFCs, SF6 

Energy, IPPU, 
agriculture, waste, 
LULUCF 

Energy, IPPU, 
agriculture, waste, 
LULUCF 

Power & heat generation, 
energy-intensive industry 
sectors, aviation 

Transport (except 
aviation), buildings, non-
ETS industry, agriculture 
(except forestry) and 
waste 

GWPs used 

IPCC SAR 

IPCC AR4 

IPCC AR4 

Applicable to number of MS 

Source: European Commission 

15 (additional KP targets 
for single MS) 

28 and Iceland 

28 (2)  

Note:  

(1) For the CP2 it refers to carry over from CP1. For the ETS it refers to carry-over from previous trading period under the scheme itself 

(2) Iceland, Liechtenstein and Norway are also covered under the EU-ETS. 

3 Member States that do not use their 3 % limit for the use of international credits in any specific year can transfer the unused part of their limit to another Member State or bank it for their own 
use until 2020. Member States fulfilling additional criteria (Austria, Belgium, Cyprus, Denmark, Finland, Ireland, Italy, Luxembourg, Portugal, Slovenia, Spain and Sweden) may use credits 
from projects in Least Developed Countries (LDCs) and Small Island Developing States (SIDS) up to an additional 1 % of their verified emissions in 2005. These credits are not bankable and 
transferable. Approximately 750 Mt of international credits can be used during the period from 2013 to 2020 in the ESD. 

7 

 
 
 
 
  
 
 
                                                            
3. 

EU WIDE TRENDS (INVENTORY) AND PROJECTIONS (WEM) PER SECTOR  

3.1.  EMISSION TRENDS IN THE MAIN SECTORS. 

3.1.1.  CHANGE IN SECTORIAL EMISSIONS 

In  2013, energy-related activities, such  as energy  production  and  final  use  including  transport  were  
responsible  for  79   %  of  emissions  in  the  EU.  Agriculture  was  responsible  for  10 %  of  total 
emissions, followed by the sector Industrial Processes with 8 % and Waste with 3 %: 

Figure 1: Share of emissions by sector in the EU-28; 2013 

Source: EEA, EU greenhouse gas inventory, 2015 inventory data 

Since  1990,  emissions  in  energy,  agriculture,  industrial  processes  and  waste  have  been  decreasing 
while  emissions  in  the  transport  sector  significantly  increased  (13%).  However,  total  transport 
emissions have also been decreasing since 2007.   

8 

 
 
  
 
Figure 2: Change in EU-28 GHG emissions by sector and share of sectors in total GHG emissions. 

1990-2013

2013-2020

Energy supply

-24%

Energy supply

-13%

Energy use (excluding transport)

-29%

Energy use (excluding transport)

-5%

Transport

13%

Transport

-1%

Industrial processes

-29%

Agriculture

-23%

Industrial processes

Agriculture

0%

0%

Waste

-38%

Waste

-15%

-50%

-40%

-30%

-20%

-10%

0%

10%

20%

-20%

-15%

-10%

-5%

0%

5%

Source: EEA, 2015 EU greenhouse gas inventory  

According  to  projections  based  on  existing  measures,  emissions  from  energy  supply  will  further 
decrease between 2013 and 2020. Emissions from energy use and, to a lesser extent, from transport 
are also projected to decrease. Emissions from waste will continue to decrease considerably, and to a 
lesser extent, emissions from agriculture are projected to nearly remain stable from 2013 until 2020 
(slightly increase of 0,4%). Finally, and according to national projections, emissions in the industrial 
sector will stabilise in the next decade (slight increase of +0.1%). 

a)  Energy supply and use, excluding transport 

Energy supply concerns the production of energy, such as electricity or fuels like gasoline, coal, etc.  
In  terms  of  emissions,  energy  supply  comprises  mainly  the  emissions  from  public  electricity  and 
heat production (thermal power plants), which together with the other supply-side sources, namely 
petroleum refining and manufacture of solid fuels (coal), are responsible for the bulk of all energy-
related  emissions.  Energy  use  concerns  the  emissions  from  manufacturing  industries  and 
construction, residential and service sectors. 

Table 2: GHG emissions from energy supply and use, excluding transport (1990-2013) 

Share in 1990 total 
emissions 

Share in 2013 total 
emissions 

Change 1990-2013 

Change 2005-2013 

EU 

62.9 % 

58.9 % 

-26.2 % 

-16.1 % 

Total emissions from energy, excluding transport, fell by further than a quarter over the period 1990-
2013.  The  two  biggest  contributors  to  emissions  from  energy  (fossil  fuel  combustion)  were  energy 
supply and use, together accounting for about 63 % of the EU total emissions (excluding LULUCF).  
There is a slight contraction of the share of these emissions of about four percentage points compared 
to 1990. 

Despite increasing production of electricity, energy supply emissions showed a -23.6 % decline since 
their  1990  levels.  These  emission  cuts  were  due  to  improvements  in  the  energy  efficiency  in  the 
transformation of primary fuels into electricity, heat and oil products as well as strong improvements 
in the carbon intensity of energy production, namely switching to cleaner fuels, such as a switch from 
coal  to  natural  gas,  but  also  a  strong  uptake  of  renewables  (specially  the  introduction  of  wind  and 

9 

 
 
 
 
 
biomass energy in the energy production system)4 (see section 7). Regarding the latter, the share of 
renewables in gross final energy consumption in the EU reached 15 %5 in 2013. 

b)  Transport 

Table 3: GHG emissions from transport (1990-2013)  

Share in 1990 total 
emissions 

Share in 2013 total 
emissions 

Change 1990-2013 

Change 2005-2013 

EU 

13.8 % 

19.8 % 

12.9 % 

-8.9 % 

Transport  is  the  only  sector  that  increased  emissions  in  the  EU  over  the  period  1990-2013:  an 
increase of approximately 13 %, yet with a downward trend since 2007. The share of transport in total 
emissions was 19.8 % in 2013, marking an increase of 6 percentage points since 1990. 

The  biggest  emission  source  within  transport  was  by  far  road  transport.  Emissions  from  inland 
transport  peaked  in  2007.  They  are  now  driven  down  by  the  increasing  use  of  biofuel  and  the 
increasing efficiency of cars (see section 6).  

c)  Agriculture  

Emissions from agriculture in the EU have also shown a steady decline since 1990 levels, with an 
overall  decrease  of  nearly  a  quarter  (23 %).  The  most  prevalent  greenhouse  gas  emitted  from 
agriculture are methane (CH4) and nitrous oxide (N2O), with respectively 25 and 298 times the global 
warming potential of carbon dioxide.6 

Table 4: GHG emissions from agriculture (1990-2013) 

Share in 1990 total 
emissions 

Share in 2013 total 
emissions 

Change 1990-2013 

Change 2005-2013 

EU 

10.0 % 

9.8 % 

-22.6 % 

-3.1 % 

In 2013, agriculture emissions amounted to 9.8% of the EU total (without LULUCF). This share has 
slightly decreased since 1990 (10% in 1990). 

d) 

Industrial processes 

Industrial  Processes  cover  non-energy  (i.e.  non-combustion)  emissions  that  stem  from  chemical 
processes  where  greenhouse  gases  are  released.  The  most  prevalent  gas  is  CO2  but  so  called 
fluorinated  gases  (F-gases)  have  a  significant  share  too.    In  2013,  the  share  of  industrial  processes 
emissions in the EU total was 8 % of the EU total (excluding LULUCF), showing a small shrinkage 
compared to its share in 1990.  

4 See analysis carried out on behalf of the European Commission DG Clima (http://ec.europa.eu/clima/) [to be published 

in December 2015]. 

5 Source: Eurostat; Share of renewables in gross final energy consumption 2013. 
6 According to the new UNFCCC reporting guidelines and IPCC 2006-Guidelines. 

10 

 
 
 
 
 
 
                                                            
Table 5: GHG emissions from industrial processes (1990-2013)  

Share in 1990 total 
emissions 

Share in 2013 total 
emissions 

Change 1990-2013 

Change 2005-2013 

EU 

9 % 

8 % 

-29.5 % 

-19.7 % 

Overall  emissions  from  industrial  processes  have  shown  one  of  the  largest  reductions  since  1990 
levels, compared to other sectors, where around 30% of emissions have been cut. Factors which have 
contributed  to  drive  this  decrease  are  industrial  emissions  policy  and  gains  of  energy  efficiency  in 
industrial processes.   

On  the  other  hand,  emissions  from  the  consumption  of  halocarbons  and  SF6  grew  considerably 
since 1990 levels.  Most of this growth was in F-gases used in refrigeration and air conditioning.  . F-
gases  have  generally  several  thousand  times  the  global  warming  potential  of  CO2  and  are  the  only 
group of greenhouse gases that have risen in the EU since 19907, in contrast to all the others that have 
generally been reduced. 

e)  Waste management  

Table 6: GHG emissions from waste management (1990-2013)  

Share in 1990 total 
emissions 

Share in 2013 total 
emissions 

Change 1990-2013 

Change 2005-2013 

EU 

4.3 % 

3.4 % 

-37.8 % 

-26.2 % 

The last emissions sector with a share of 3.4% of the EU total in 2013 is waste.   

Waste is also one of the sectors with largest emissions reductions of more than a third (-37.8 %) since 
1990  levels.  The  most  prevalent  gas  was  methane.  A  main  driving  force  of  CH4  emissions  from 
managed waste disposal on land is the amount of biodegradable waste going to landfills. In addition, 
CH4 emissions from landfills are influenced by the amount of CH4 recovered and utilised (combustion 
of biogas for electricity and/or heat generation) or flared. The share of CH4 recovery  has increased 
significantly in EU since 1990. The emission reductions are also partly due to the implementation of 
the Landfill Directive8 or similar legislation in the Member States. 

7 Of all F-gases, over the period 1990-2012 perfluorocarbons (PFCs) and sulphur hexafluoride (SF6) have been decreased, 
yet this decline has been offset by a much larger increase in hydrofluorocarbons (HFCs). 
8 Council Directive 1999/31/EC of 26 April 1999 on the landfill of waste 

11 

 
 
 
 
 
 
 
                                                            
3.1.2.   CONVERGENCE IN GHG EMISSIONS INTENSITY AND EMISSIONS PER CAPITA  

All  Member  States  have  experienced  a  reduction  in  GHG  emissions  intensity  with  the  average  annual 
reduction rate ranging from 0.9 % to 5.1 %. This has led to a convergence of performances between Member 
States (Figure 3). 

Figure 3: GHG emissions intensity in the EU-28, 2014/1990. Percentages reflect annual average reduction 

Source: Commission, EEA 

Note: approximated 2014 data.  

12 

 
 
 
 
 
 
In  all  Member  States  except  Cyprus,  Malta  and  Portugal,  per  capita  emissions  have  been  decreasing  and 
converging since 1990. 

Figure 4: GHG emissions per capita in the EU, 2014/1990. Percentages reflect annual average reduction 

Source: Commission, EEA. 

Note: approximated 2014 data.  

13 

 
 
 
 
 
3.2.  PROJECTIONS 

This section presents projections of greenhouse gas emissions (GHG emissions) for the “with existing 
measures  scenario”  (WEM),  differentiated  by  sector  and  by  gas  and  aggregated  to  EU-28  level. 
Projections are presented for 2015, 2020, 2025 and 2030. All emissions and projections are displayed 
in  CO2  equivalents  and  excluding  emissions  or  removals  from  LULUCF.  Projections  of  emissions 
related  to  fuel  sold  to  ships  and  aircrafts  engaged  in  international  transport  are  not  included  in  the 
totals reported in this section, unless noted otherwise. 

The WEM projection of the European Union represents a business-as-usual scenario aggregated from 
28  national  WEM  projections  where  only  policies  and  measures  that  have  been  adopted  or  already 
implemented  in  the  Member  State  are  considered,  as  far  as  covered  by  national  projections.  With 
regard to EU policy coverage the WEM projection is thus a conservative scenario. For Member States 
that did not submit new projections in 2015, the EUCLIMIT Reference scenario 2013 was used for 
gap-filling purposes.  

When additional measures are taken into account, projections submitted by Member States lead to a 
reduction of emissions by 30% in 2030 compared to 1990. These projections are consistent with the 
results of the Reference Scenario9 published by the Commission based on the PRIMES and GAINS 
model (-32% in 2030 compared to 1990 on the basis of current policies). 

3.2.1.  PROJECTIONS OF EU GHG EMISSIONS –SUMMARY- 

The next table summarises historic and projected greenhouse gas emissions as totals, per sector and 
per gas. 

9 http://ec.europa.eu/clima/policies/strategies/2030/docs/eu_trends_2050_en.pdf 

14 

 
 
 
 
                                                            
Table 7: Historic and projected GHG emissions per sector and gas 

3.2.2.  TOTAL AGGREGATE GHG EMISSION PROJECTIONS PER SECTOR 

From  a  sectoral  perspective,  the  largest  share  of  emission  reductions  comes  from  the  energy  sector 
(supply  and  use,  excluding  transport)  which  is  the  sector  which  contributes  the  most  to  emissions. 
These emissions are projected to decrease by approximately 33 % (vs. 1990) in 2020.   

Transport is the only sector where emissions are expected to increase between 1990 and 2020. They 
will be 13 % higher in 2020 than in 1990 and stay at about this level until 2030.  

The industry sector is projected to decrease its GHG emissions by approximately 29 % in 2020 (vs. 
1990).   

15 

 
 
 
 
Figure 5: EU-28 GHG emissions per sector in the WEM scenario 

Mt CO2equivalent

4000

3500

3000

2500

2000

1500

1000

500

Energy (w/o) transport

Transport

Industry

Agriculture

Waste

0
1990

1995

2000

2005

2010

2015

2020

2025

2030

Note:    The trajectories displayed here are not stacked, i.e. each trajectory refers to the values shown on the y-axis. Values up to 2012 are from the latest 
available greenhouse gas inventory. Projected values, starting in 2015, stem from Member States submissions under Article 14, MMR. For gap-
filled countries, the share of gases has been calculated applying the average share of EU-28 of specific gases to total GHG emissions 

16 

 
 
 
 
 
 
 
3.3.  COMPARISON OF EU-28 GHG TOTAL EMISSIONS AND PROJECTIONS UNDER THE KYOTO 

PROTOCOL AND UNDER THE CLIMATE AND ENERGY PACKAGE 

The EU 20 % reduction commitment by 2020 under the Climate and Energy package covers EU CO2 
emissions to the extent aviation is covered under the EU ETS. Since 2012 emissions that means all 
flights from international flights departing from, to and within the EU. The Kyoto Protocol includes 
GHG emissions from domestic aviation only (inventory category).  

The table below presents the quantitative differences between the scopes of the Kyoto Protocol and of 
the  Climate  and  Energy  Package.  Reductions  achieved  by  the  EU-28,  in  2013,  when  the  emissions 
from  international  aviation  are  also  taken  into  account,  amount  to  -20 %  compared  to  1990  levels. 
When excluding international aviation, the reduction amounts to -21%. 

Table 8: Emissions (MtCO2-eq.) covered by the Kyoto Protocol 

1990 

2005 

Total GHG emissions 

5,689  

5,229  

Of which domestic aviation 

15 

20 

2013 

4,481  

16 

Projections as compilation of MS data, WEM scenario  

-20% compared to Kyoto base year(1) 

Table 9: Emissions (MtCO2-eq.) covered by the Climate and Energy Package 

Total GHG emissions 

of which domestic aviation 

of which international aviation 

1990 

5,758 

15 

70 

2005 

5,361 

20 

132 

2013 

4,616 

16 

134 

Projections as compilation of MS data, WEM scenario 

-20 % compared to 1990 

2020 

4,228 

4,641 

2020 

4,382 

4,607 

Note: (1) The Kyoto base year emissions is different from 1990 emissions level and it is estimated at 5,798 Mt CO2 eq.  

17 

 
 
 
 
  
  
 
  
  
 
4. 

MEMBER STATES PROGRESSES TOWARDS EFFORT SHARING DECISION TARGETS  

Table 10: Gap between emissions estimates and ESD targets in 2014 and between projected emissions (with existing measures) and ESD targets in 2020 . 

Country 

Austria 

Belgium 

Bulgaria 

Croatia 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Luxembourg 

Malta 

2014 

2020 

2014 ESD target 
compared to 2005 

2014 approximated 
non-ETS data 
compared to 2005 

Relative gap 2014 vs. 
ESD 2014 target 

2020 national target 
(ESD target) compared 
to 2005 

Projected 2020 non-ETS 
emissions compared to 
2005 (with existing 
measures) 

Gap between projected 
2020 non-ETS emissions 
versus 2020 ESD targets 

Percentage points (% 
of 2005 emissions) 

Percentage points (% of 
2005 emissions) 

-10% 

-3% 

13% 

5% 

-5% 

2% 

-6% 

8% 

-7% 

-7% 

-6% 

-7% 

-3% 

-6% 

-10% 

11% 

-1% 

-8% 

6% 

-17% 

-10% 

1% 

-14% 

-36% 

0% 

-15% 

-5% 

-8% 

-16% 

-10% 

-28% 

-30% 

-13% 

-22% 

3% 

-7% 

-10% 

-2% 

-16% 

-15% 

20% 

11% 

-5% 

9% 

-20% 

11% 

-16% 

-14% 

-14% 

-4% 

10% 

-20% 

-13% 

17% 

15% 

-20% 

5% 

-7% 

-7% 

-12% 

-19% 

-31% 

-2% 

-9% 

-14% 

0% 

-9% 

-4% 

-21% 

-27% 

-7% 

-13% 

-7% 

-6% 

-2% 

-8% 

18 

-12% 

-9% 

-5% 

-9% 

-54% 

-8% 

-20% 

-2% 

-16% 

-17% 

-15% 

-31% 

-30% 

-10% 

-18% 

7% 

-3% 

1% 

-16% 

4% 

6% 

-25% 

-20% 

-49% 

-17% 

0% 

-13% 

0% 

-3% 

-1% 

-27% 

-40% 

10% 

-5% 

-10% 

-18% 

21% 

-21% 

 
 
 
 
 
  
 
  
  
  
  
Country 

2014 ESD target 
compared to 2005 

2014 approximated 
non-ETS data 
compared to 2005 

Relative gap 2014 vs. 
ESD 2014 target 

2020 national target 
(ESD target) compared 
to 2005 

Projected 2020 non-ETS 
emissions compared to 
2005 (with existing 
measures) 

Gap between projected 
2020 non-ETS emissions 
versus 2020 ESD targets 

2014 

2020 

Netherlands 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

Percentage points (% 
of 2005 emissions) 

Percentage points (% of 
2005 emissions) 

-5% 

10% 

-2% 

4% 

4% 

3% 

-5% 

-8% 

-9% 

-23% 

8% 

-23% 

-9% 

-9% 

-12% 

-17% 

-24% 

-16% 

-18% 

-2% 

-20% 

-14% 

-12% 

-14% 

-12% 

-16% 

-7% 

-16% 

14% 

1% 

19% 

13% 

4% 

-10% 

-17% 

-16% 

-21% 

6% 

-25% 

4% 

-4% 

-8% 

-12% 

-28% 

-19% 

-5% 

-8% 

-26% 

-15% 

-17% 

-12% 

-2% 

-11% 

-3% 

19 

 
 
 
  
 
  
  
  
  
 
Table 11: Historic (2013-2014proxy) and projected (2015-2020) gaps between emissions estimates and annual limits under the Effort Sharing Decision 

2013(1) 

2014 (2) 

2015(3) 

2016(3) 

2017(3) 

2018(3) 

2019(3) 

2020(3) 

Country 

Mt CO2 
eq.  

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

emissions 

Austria 

limit 

emissions 

Belgium 

limit 

emissions 

Bulgaria 

limit 

emissions 

Croatia 

limit 

emissions 

Cyprus 

limit 

Czech 
Republic 

emissions 

limit 

emissions 

Denmark 

limit 

emissions 

Estonia 

limit 

emissions 

Finland 

limit 

emissions 

France 

limit 

emissions 

Germany 

limit 

2.9 

4.2 

3.8 

4.0 

1.6 

0.8 

3.5 

0.5 

0.4 

49.7 

52.6 

74.2 

78.4 

23.1 

26.9 

15.6 

19.6 

4.3 

5.9 

61.7 

62.5 

33.3 

36.8 

5.8 

6.3 

31.4 

31.8 

4.0 

5.2 

2.9 

3.6 

1.9 

1.2 

3.6 

0.8 

0.2 

48.1 

52.1 

71.7 

76.9 

24.3 

27.2 

16.2 

19.8 

4.0 

5.9 

62.0 

63.2 

32.4 

35.9 

5.5 

6.3 

31.1 

31.3 

0.0 

1.8 

4.0 

3.2 

3.0 

2.8 

3.1 

0.7 

0.9 

51.5 

51.5 

73.5 

75.3 

23.5 

27.5 

16.8 

20.0 

2.9 

5.9 

61.2 

64.0 

31.9 

35.0 

5.6 

6.3 

29.9 

30.8 

-0.5 

0.6 

4.4 

3.3 

3.0 

4.3 

2.6 

0.7 

0.5 

51.5 

51.0 

73.2 

73.8 

23.3 

27.7 

16.8 

20.2 

2.9 

5.9 

60.4 

64.7 

31.6 

34.1 

5.6 

6.4 

29.8 

30.3 

-1.0 

-0.7 

4.8 

3.4 

3.0 

5.8 

1.9 

0.7 

0.4 

51.4 

50.4 

73.0 

72.3 

23.2 

28.0 

16.9 

20.4 

2.9 

5.9 

59.6 

65.4 

31.4 

33.2 

5.6 

6.4 

29.4 

29.8 

-1.5 

-2.0 

5.3 

3.5 

3.0 

7.4 

1.3 

0.8 

0.2 

51.3 

49.9 

72.7 

70.7 

23.0 

28.3 

17.0 

20.6 

2.9 

5.9 

58.8 

66.2 

31.0 

32.3 

5.7 

6.4 

29.2 

29.3 

51.3 

49.3 

72.5 

69.2 

22.8 

28.5 

17.1 

20.8 

2.9 

5.9 

58.0 

66.9 

31.1 

31.4 

5.7 

6.4 

28.8 

28.8 

-1.9 

51.0 

-2.2 

48.8 

-3.3 

72.2 

-4.5 

67.7 

5.7 

22.7 

6.1 

28.8 

3.6 

17.2 

3.7 

21.0 

3.1 

2.9 

3.1 

5.9 

8.9 

57.2 

10.5 

67.7 

0.3 

30.3 

0.2 

30.5 

0.8 

5.7 

0.8 

6.5 

0.1 

28.4 

0.0 

28.4 

371.7 

22.4 

349.9 

39.6 

359.2 

25.2 

356.5 

22.9 

353.8 

20.5 

351.2 

18.2 

348.5 

15.9 

345.8 

13.5 

394.1 

467.5 

472.5 

389.5 

384.4 

379.4 

374.4 

5.0 

446.7 

19.1 

444.6 

14.5 

440.0 

12.4 

435.4 

10.3 

465.8 

459.1 

452.4 

445.7 

369.3 

430.9 

439.0 

8.2 

364.3 

426.3 

432.3 

359.3 

6.1 

421.7 

4.0 

425.6 

20 

 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
2013(1) 

2014 (2) 

2015(3) 

2016(3) 

2017(3) 

2018(3) 

2019(3) 

2020(3) 

Country 

Mt CO2 
eq.  

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

emissions 

Greece 

limit 

emissions 

Hungary 

limit 

emissions 

Ireland 

limit 

Italy 

Latvia 

emissions 

limit 

emissions 

limit 

emissions 

Lithuania 

limit 

emissions 

Luxembourg 

limit 

Malta 

emissions 

limit 

emissions 

Netherlands 

limit 

Poland 

emissions 

limit 

emissions 

Portugal 

limit 

Romania 

Slovakia 

emissions 

limit 

emissions 

12.9 

12.1 

3.8 

46.0 

59.0 

38.3 

50.4 

43.1 

46.9 

13.4 

14.2 

3.4 

45.9 

59.3 

37.3 

51.5 

42.3 

45.8 

12.5 

12.7 

2.3 

47.1 

59.6 

40.0 

52.6 

42.3 

44.6 

13.5 

14.3 

0.7 

46.4 

59.9 

39.4 

53.8 

42.8 

43.5 

14.5 

16.0 

-0.4 

45.7 

60.3 

38.8 

54.9 

42.7 

42.4 

15.5 

17.7 

-2.0 

45.1 

60.6 

38.3 

56.0 

43.2 

41.2 

16.5 

19.4 

-3.5 

44.4 

60.9 

37.7 

57.1 

43.6 

40.1 

17.5 

21.1 

-4.9 

43.7 

61.2 

37.2 

58.2 

43.9 

39.0 

270.8 

37.4 

262.7 

43.5 

272.0 

32.2 

272.8 

29.4 

273.7 

26.6 

274.5 

23.8 

275.4 

21.0 

276.2 

18.2 

308.2 

306.2 

304.2 

302.3 

300.3 

298.3 

296.4 

294.4 

0.9 

0.5 

0.2 

0.1 

8.4 

9.3 

12.5 

12.9 

9.3 

9.5 

1.1 

1.2 

0.6 

0.8 

0.2 

0.1 

8.7 

9.4 

12.5 

13.3 

9.2 

9.3 

1.1 

1.2 

0.9 

1.0 

-0.6 

0.2 

8.6 

9.4 

12.7 

13.7 

9.7 

9.1 

0.9 

1.2 

109.2 

13.7 

98.0 

22.7 

108.1 

10.3 

122.9 

189.0 

193.6 

40.3 

49.3 

68.4 

75.6 

21.8 

4.6 

9.0 

7.3 

2.2 

120.7 

190.9 

194.9 

39.2 

49.6 

67.3 

77.5 

21.5 

4.0 

10.4 

10.2 

2.9 

118.4 

188.2 

196.1 

40.2 

49.9 

70.2 

79.3 

22.4 

8.0 

9.7 

9.1 

2.4 

8.7 

9.5 

12.7 

14.0 

9.8 

8.9 

0.9 

1.2 

106.7 

116.1 

188.3 

197.4 

39.8 

50.1 

71.6 

81.1 

22.4 

21 

0.9 

1.3 

-0.9 

0.2 

9.4 

0.9 

1.6 

-1.2 

0.2 

8.5 

8.8 

9.6 

12.8 

14.4 

9.9 

8.7 

0.9 

1.2 

105.4 

113.9 

0.8 

1.9 

-1.5 

0.2 

7.6 

8.9 

9.7 

12.9 

14.7 

10.0 

8.5 

0.9 

1.2 

104.0 

111.6 

0.8 

2.2 

-1.8 

0.2 

6.7 

9.0 

9.8 

12.9 

15.1 

10.2 

8.3 

0.9 

1.2 

102.6 

109.3 

0.8 

2.5 

-2.1 

0.2 

5.8 

9.1 

9.9 

13.0 

15.5 

10.3 

8.1 

0.9 

1.2 

101.2 

107.0 

9.0 

188.5 

10.1 

188.7 

11.2 

188.8 

12.3 

189.0 

13.4 

198.6 

39.4 

50.4 

72.9 

82.9 

22.5 

11.1 

10.0 

3.0 

199.9 

38.9 

50.7 

74.3 

84.7 

22.5 

11.8 

10.4 

3.3 

201.1 

202.3 

38.5 

51.0 

75.7 

86.6 

22.6 

12.4 

10.9 

3.6 

38.1 

51.2 

77.0 

88.4 

22.6 

13.1 

11.3 

3.9 

10.4 

9.5 

2.7 

 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
2013(1) 

2014 (2) 

2015(3) 

2016(3) 

2017(3) 

2018(3) 

2019(3) 

2020(3) 

Country 

Mt CO2 
eq.  

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

Emiss
/limit 

gap to 
limit 

limit 

emissions 

Slovenia 

limit 

Spain 

emissions 

limit 

emissions 

Sweden 

limit 

United 
Kingdom 

emissions 

limit 

24.0 

10.8 

12.3 

1.5 

24.4 

10.6 

12.4 

1.7 

24.7 

11.2 

12.4 

1.2 

25.1 

11.2 

12.4 

1.2 

25.5 

11.1 

12.4 

1.3 

25.8 

11.1 

12.5 

1.4 

196.6 

31.0 

198.1 

27.6 

199.0 

24.8 

201.1 

20.7 

202.9 

17.0 

204.8 

13.2 

227.6 

35.1 

41.7 

6.6 

225.6 

34.0 

41.0 

7.0 

345.1 

13.6 

326.3 

27.9 

358.7 

354.2 

223.7 

34.1 

40.4 

345.7 

349.7 

6.3 

4.0 

221.8 

33.7 

39.8 

337.8 

345.2 

6.0 

7.4 

219.9 

33.3 

39.1 

333.1 

340.7 

5.8 

7.6 

218.0 

32.9 

38.5 

327.9 

336.1 

5.6 

8.2 

26.2 

11.1 

12.5 

206.8 

216.1 

32.5 

37.8 

323.3 

331.6 

1.4 

9.2 

5.3 

26.5 

11.0 

12.5 

208.4 

214.2 

32.1 

37.2 

1.5 

5.8 

5.1 

8.3 

315.6 

11.5 

327.1 

Source: EEA, European Commission. 

 (1) 2013 non-ETS emissions from 2015 GHG inventory data. 

(2) 2014 emissions data are approximated data (Art. 8 of the MMR) 

(3) 2015-2020 non-ETS projected emissions from MS with existing measures 

22 

 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
5. 

EU ETS AUCTIONING  REVENUES 

Table 12: total reported revenues from the auctioning of ETS allowances in 2014 and amount used or planned to be used on climate & energy -related purposes 
(millions of euros)  

Total revenues 
from 
the auctioning 
of allowances 
(millions of 
euros) 

Country 

Share used or planned to be 
used for climate & energy 
related purposes  (%) 

Total used or 
planned to be 
used for domestic 
and international 
climate & energy 
related purposes 
(million euros) 

Of which 
domestic  
climate & 
energy related 
purposes 
(million euros) 

Of which 
support to 
third countries 
(million euros) 

Not used for 
climate & 
energy related 
purposes 
(million euros) 

No use 
reported (9) 
(million euros) 

DE 

IT  

UK 

ES 

FR 

NL 

EL 

RO 

BE  (1)  

PL 

PT 

FI 

SK  

HU  

CZ 

AT 

DK 

BG 

750.0 

408.6 

401.5 

330.1 

215.3 

131.1 

131.1 

97.9 

97.1 

78.0 

67.1 

63.5 

57.6 

56.5 

55.7 

53.6 

48.1 

36.4 

113% 

47% (up to 50% foreseen) (4) 

100% 

112% 

100% 

100% 

100% 

69% 

0% 

50% 

97% 

49% 

26% (up to 100% foreseen) (5) 

23% (up to 50% foreseen) (7) 

51% 

102% 

100% 

99% 

844.1 

192.8 

401.5 

370.2 

215.3 

131.1 

131.1 

67.3 

0.0 

39.0 

64.8 

31.1 

15.1 

13.1 

28.2 

54.8 

48.1 

36.2 

23 

841.5 

88.2 

328.6 

370.2 

215.3 

131.1 

131.1 

67.3 

0.0 

39.0 

62.0 

0.0 

15.1 

13.1 

28.2 

46.5 

24.045 

36.2 

2.7 

104.6 

72.9 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

3.0 

31.1 

0.0 

0.0 

0.0 

8.3 

24.05 

0.0 

204.3 

0.0 

0.0 

0.0 

0.0 

30.6 

39.0 

2.2 

32.4 

0.0 

28.2 

27.6 

0.0 

0.2 

11.5 

97.1 

42.6 

15.1 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Total revenues 
from 
the auctioning 
of allowances 
(millions of 
euros) 

Country 

Share used or planned to be 
used for climate & energy 
related purposes  (%) 

Total used or 
planned to be 
used for domestic 
and international 
climate & energy 
related purposes 
(million euros) 

Of which 
domestic  
climate & 
energy related 
purposes 
(million euros) 

Of which 
support to 
third countries 
(million euros) 

Not used for 
climate & 
energy related 
purposes 
(million euros) 

No use 
reported (9) 
(million euros) 

IE 

SE  

LT 

SI 

LV  

EE 

MT 

CY  

LU  

HR (3) 

36.0 

33.6 

17.3 

16.6 

10.2 

7.4 

3.9 

0.7 

5.2 

0.0 

56% (up to 100% foreseen) (6) 

100% 

233% 

55% 

1% (up to 100% foreseen) (8) 

49% 

145% 

55% 

56% 

- 

Total 
Source: Reporting submitted by MS under Monitoring Mechanism Regulation (EU) n 525/2013 
Notes: 

3210.2 

87% 

36.0 

18.9 

40.3 

9.1 

0.1 

3.6 

5.7 

0.4 

2.9(2)  

- 

2800.9 

2.4 

0.0 

40.3 

9.1 

0.1 

3.2 

5.7 

0.4 

n.p 

- 

2498.6 

33.5 

18.9 

0.0 

0.0 

0.0 

0.4  3.8 

0.0 

0.0 

n.p  2.3 

0.0 

7.5 

0.0 

0.3 

14.7 

10.1 

- 

299.5 

- 

376.7 

191.1 

(1) BE details on the use of auctioning revenues not provided 

(2)LU split of use of revenues for climate and energy pursposes between domestic and international use has not been officially reported in article 17 MMR. However LU confirmed that the 

revenue of 2.9 M EUR is used in equal amounts for domestic and international purposes.   

(3)HR began with the auctioning on 8 January 2015 hence no revenues in 2014. 

(4)IT: On the basis of Legislative Decree n. 30/2013, any revenue not yet used will be earmarked for climate and energy related purposes until the 50% threshold is reached. 

(5)SK has so far used less than 50 % due to the pending implementation of a financial legal instrument or of other decisions needed to invest 100% of the revenues generated in climate and 

energy purposes. 
(6)SE plans to spend 100% of their auctioning revenues for climate and energy purposes. The figure of 14.7MEUR  corresponds to the revenues generated in the year 2014 but to be spent in 

2015 on climate and energy purposes.  

24 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
(7)HU: The share of 23% is foreseen to increase up to 50% by the end of the year 2015. The commitment of at least 50% of the revenues generated from the auctioning of the allowances for the 

purposes specified in Directive 2003/87/EC is ensured by Hungarian Regulations (e.g. Government decree 368/2011. (XII. 31.)). 

(8)LV is currenlty working on a finantial instrument envisaged for different measures in accordance with national legistlation (so-called Emission allowances auction instrument ), which will be 

funded  directly from  auctioning  revenues.  The Law  on  Pollution  (http://likumi.lv/doc.php?id=6075)    Article  32.2  part  44  provides  that all  (100%)  revenues  derived  from  the auctions  of  EU 

emission allowances will be provided for climate-related measures. 

(9)Except for the case of BE where details on the use of auctioning revenues were not provided, the column called "no use reported" represents the use of revenues not officially reported for the 

year 2014 but foreseen by the MS concerned to be used for climate and energy purposes.  

25 

 
 
 
 13: Reported split of auctioning revenues used or planned to be used at domestic level per type of use (millions of euros) 2014 

Total reported 
auctioning revenues 
used or planned to 
be used for domestic 
climate & energy 
related purposes 

Country 

of which mitigation 
(no specific use 
provided or use 
other than 
transport, energy 
efficiency, 
renewable, 
management of the 
ETS and research) 

of which 
sustainable
Transport 

of which 
energy 
efficiency
(excl. 
Transport)

of which 
renewable
energy 

of which 
adaptation 

of which 
management 
of ETS 

of 
which 
research

DE 

IT 

UK 

ES 

FR 

NL 

EL 

RO 

BE(1) 

PL 

PT 

FI 

SK 

HU 

CZ 

AT 

DK 

BG 

IE 

841.5 

88.2 

328.6 

370.2 

215.3 

131.1 

131.1 

67.3 

0.0 

39.0 

62.0 

0.0 

15.1 

13.1 

28.2 

46.5 

24.0 

36.2 

2.4 

825.3 

0.0 

0.0 

38.2 

0.0 

n.p 

0.0 

0.0 

0.0 

0.0 

4.9 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

192.9 

320.8 

0.0 

n.p 

131.1 

0.0 

0.0 

1.6 

49.2 

0.0 

0.0 

0.0 

0.0 

22.4 

0.0 

36.2 

0.7 

0.0 

0.0 

0.0 

11.3 

0.0 

n.p 

0.0 

67.3 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

85.3 

0.0 

0.0 

215.3 

n.p 

0.0 

0.0 

0.0 

30.8 

0.0 

0.0 

15.0 

13.1 

26.4 

24.2 

0.0 

0.0 

0.0 

26 

0.0 

0.0 

0.0 

0.0 

0.0 

n.p 

0.0 

0.0 

0.0 

6.7 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

16.1 

2.9 

0.5 

0.0 

0.0 

n.p 

0.0 

0.0 

0.0 

0.0 

1.0 

0.0 

0.1 

0.0 

0.0 

0.0 

0.0 

0.0 

1.1 

0.0 

0.0 

135.1 

0.0 

0.0 

n.p 

0.0 

0.0 

0.0 

0.0 

6.8 

0.0 

0.0 

0.0 

1.7 

0.0 

24.0 

0.0 

0.6 

 
 
 
 
Total reported 
auctioning revenues 
used or planned to 
be used for domestic 
climate & energy 
related purposes 

Country 

of which mitigation 
(no specific use 
provided or use 
other than 
transport, energy 
efficiency, 
renewable, 
management of the 
ETS and research) 

of which 
sustainable
Transport 

of which 
energy 
efficiency
(excl. 
Transport)

of which 
renewable
energy 

of which 
adaptation 

of which 
management 
of ETS 

of 
which 
research

SE 

LT 

SI 

LV  

EE 

MT 

CY 

LU (2) 

HR (3) 

0.0 

40.3 

9.1 

0.1 

3.2 

5.7 

0.4 

n.p 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.2 

n.p 

0.0 

0.0 

0.0 

2.5 

0.0 

0.0 

0.0 

0.0 

n.p 

0.0 

0.0 

28.9 

6.6 

0.0 

0.0 

0.1 

0.0 

n.p 

0.0 

0.0 

10.9 

0.0 

0.0 

3.2 

5.3 

0.0 

n.p 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

n.p 

0.0 

0.0 

0.5 

0.0 

0.1 

0.0 

0.0 

0.1 

n.p 

0.0 

0.0 

0.0 

0.0 

0.0 

0.0 

0.2 

0.1 

n.p 

0.0 

Source: Reporting submitted by MS under Monitoring Mechanism Regulation (EU) n 525/2013 

(1) BE: details on the use of auctioning revenues could not be provided due to the absence of an agreement between federal and regional authorities on the use of auctionning revenues.  

(2 ) LU: split not reported pursuant to article 17 MMR provided. 

(3) HR began with the auctioning on 8 January 2015 hence no revenues in 2014. 

27 

 
 
 
 
 
 
Figure 6: Reported breakdown of the revenues from the auctioning of EU ETS allowances (millions of Euros) in 2014 
used or planned to be used for domestic climate and energy related purposes EU-28. 

Source: European Commission 

Figure  7:  Comparison  of  total  reported  auctioning  revenues  used  or  planned  to  be  used  for  domestic  climate  and 
energy related purposes: 2013 & 2014 

Source: European Commission  

28 

 
 
 
 
6. 

EU POLICIES AND MEASURES 

This  document  provides  an  overview  on  the  EU  policies  and  measures  (PaMs)  which  contribute  to 
meeting the EU emission reduction target.  

Table 14: Summary of implemented and planned policies and measures  

Cross-cutting measures  

Policies and measures  Stage of implementation /timetable /comments 

EU Emission Trading 

The  European  Commission  presented  in  July  2015  a  legislative  proposal  to  revise  the  EU 

System 

emissions trading system for the period after 2020. 

Decision  (EU)  2015/1814  of  the  European  Parliament  and  of  the  Council  of  6  October  2015 

creates a Market Stability Reserve which will start operating in January 2019.  The aim is two-

Creation of a market 

fold:  to  neutralise  the  negative  impacts  of  the  existing  allowance  surplus  that  the  EU  ETS  is 

stability reserve for the 

experiencing and to improve the system's resilience to future shocks. This will be achieved among 

EU ETS  

other  things  by  an  automatic  rule-set  adjusting  the  supply  of  allowances  to  be  auctioned  to  the 

annual  auction  volumes  when  the  total  number  of  allowances  in  circulation  is  outside  a  certain 

predefined range.  

In October 2014, the European Council reached an agreement on the main building blocks of the 

2030 Climate and 

EU  2030  Climate  and  Energy  Framework. The  Package  is  now being  implemented  through  the 

Energy package 

revision of the ETS directive. A revision of the ESD decision will be proposed in the course of 

2016.  

European Energy 

Communication adopted by the Commission on 28 May 2014, subject to discussions within the 

Security Strategy 

EU institutions. 

In  2014  the  Implementing  Regulation  (EU  No  749/2014)  and  Delegated  Regulation  (EU  No 

Monitoring and 

666/2014) were adopted to enable the implementation of the Monitoring Mechanism Regulation 

Reporting 

(Regulation No 525/2013) in several of its provisions, specifying in more detail the structure of 

the information, reporting formats, and submission procedures.  

29 

 
 
 
 
 
Energy Supply 

Policies and measures  Stage of implementation /timetable /comments 

The  promotion  of  renewable  energy  in  the  EU  has  been  of  interest  permanently  during  the  last 

two  decades.  The  EU  has  established  a  broad  policy  framework  for  renewable  energies  via  the 

Renewable Energy Directive 2009/28/EC directly and indirectly affecting other sectors, such as 

transport or LULUCF. The Directive aims at a 20 % share of renewable energy by 2020.  

The EU is on track to meet this target and reached a share of 15 % of renewable energy in 2013 

with 2014 share estimated at 15.3 % (COM(2015) 293 final). With 88 Mtoe or about 46 % of all 

primary renewable energy production in 2013, solid biomass still made the largest contribution in 

Renewables 

RES  primary  production,  followed  by  hydro  energy  (32 Mtoe),  while  wind  and  solar  energy 
production levels have doubled since 200910. 

The new 2030 Framework for Climate and Energy framework (COM(2014) 15 final) stipulates a 

share of at least 27 % by 2030 binding at EU level. The Energy Union Strategy (COM(2015) 80 

final)  includes the EU commitment to become the world leader in renewable energy, the global 

hub  for  developing  the  next  generation  of  technically  advanced  and  competitive  renewable 

energies. Further deployment of renewable energy sources will be a key factor in the EU and in 

all  other  countries  as  the  global  efforts  to  mitigate  climate  change.  In  the  course  of  2016,  the 

Commission will propose initiatives on Renewable Energy. 

The  directive  on  the  geological  storage  of  CO2  (CCS  Directive):  establishes  the  legal 

framework  for  the  environmentally  safe  geological  storage  of  CO2  to  contribute  to  the  fight 

CCS Directive 

against climate change.  

ec.europa.eu/clima/policies/lowcarbon/ccs/directive/index_en.htm   

10 http://ec.europa.eu/eurostat/statistics-explained/index.php/Energy_from_renewable_sources 

30 

 
 
 
 
 
 
 
                                                            
Energy demand 

Policies and measures  Stage of implementation / timetable /comments 

The EU has a binding target of improving energy efficiency by +20 % by 2020. According to the 
most recent Communication on Energy Efficiency (COM(2014) 520 final), the EU is not on track 
and is expected to miss the 20 % target by a limited margin of 1-2 % by 202011 under the current 
circumstances and if efforts are not increased.  

If all Member States prioritise energy efficiency in their national policies and measures and fully 
implement the agreed legislation such as the Energy Efficiency Directive 2012/27/EU, the 20 % 
target can still be achieved. 

As laid down in the new Energy Union Strategy, the EU will pay special attention to sectors with 
large  energy  efficiency  potential,  such  as  transport  and  buildings  (Energy  Performance  of 
Buildings Directive 2010/31/EU). The Commission plans to promote new financing schemes to 
fully exploit the energy efficiency potential of buildings.  

The EU has an agreed target of improving energy efficiency by at least 27 % by 2030 within the 
context  of  the  2030  framework  for  Climate  and  Energy.  This  target  will  be  reviewed  in  2020 
having  in  mind  extending  it  to  30%.  In  the  course  of  2016,  the  Commission  will  propose 
initiatives on Energy Efficiency. 

In  terms  of  products  and  appliances,  the  EU  aims  to  reduce  their  environmental  impact  and 
increase energy efficiency. This objective, which also helps customers save money, can be seen in 
the  Energy  Union  Strategy.  It  is  estimated  that  consumers  could  save  around  € 100  billion 
annually by 2020 through more efficient appliances (COM(2014) 520 final).  

The  EU  has  implemented  two  Directives  which  provide  the  overall  frameworks  for  ecodesign 
(2009/125/EC) and energy labelling (2010/30/EU currently under review). These are followed by 
a  set  of  regulations  (implemented  measures  and/or  delegated  acts)  that  define  the  technical 
requirements  for  each  product  category/group.  The  list  of  such  products  and  appliances  is 
continuously extended and kept up to date. A third, voluntary labelling scheme known as Energy 
Star12 is also widely used for office equipment.  

With regard to the use of efficient products, the public sector acts as an example. Thus, the EU 
developed the Green Public Procurement13 instrument which aims to promote the purchase of 
environmentally friendly goods, services and works. 

The  overall  impact  of  these  measures  will  depend  on  how  many  implementing  regulations  are 
adopted. The emission reductions achieved could be very substantial over time, reaching 320 Mt 
CO2 per year by 2020, including the impact of energy labelling, Energy Star and tyre labelling14. 

Energy Efficiency 

Ecodesign energy 

labelling 

Green Public 

Procurement 

11  The  Directive  explicitly  sets  goals  of  1 483  Mtoe  (mega  tonnes  of  oil  equivalent)  of  primary  energy  consumption  and 

1 086 Mtoe of final energy consumption by 2020. 

12 http://www.eu-energystar.org/  
13 http://ec.europa.eu/environment/gpp/index_en.htm  

31 

 
 
                                                            
Transport 

Policies and measures  Stage of implementation / timetable / comments 

The CO2 and Cars Regulation (EC) No 443/2009 limits CO2 emissions from new cars to a 

fleet average of 130 grams of CO2 per kilometre (g/km) by 2015 and 95 g/km by 2021. The 

2015 and 2021 targets represent reductions of 18 % and 40 % respectively, compared with the 

2007 fleet average. In 2014, Regulation (EU) No 333/2014 on modalities for reaching the 2021 

target  for  cars  was  adopted.  Implementing  the  2021  emission  targets  for  cars  is  expected  to 

result in annual savings of 24.9 Mt CO2 in 2021, and 43.6 Mt CO2 in 2030. 

The CO2 and Vans Regulation (EU) No 510/2011 limits CO2 emissions from new vans to a 

fleet average of 175 g/km by 2017 and 147 g/km by 2020. These cuts represent reductions of 

14 %  and  28%  respectively,  compared  with  the  2007  average.  The  annual  CO2  equivalent 

savings are expected to be 1.9 Mt in 2020 and 5.3 Mt in 2030.  

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 

The most recent (provisional) data published by the EEA15 indicates that the EU car and van 

fleets will have met their targets well ahead of the deadlines. The average specific emissions of 

the European fleet in 2014 were 123.4 g/km for new cars (compared to the 130 g/km target for 

2015) and 169.2 g/km for new vans (compared to the 175 g/km target for 2017). 

 Directive  2009/30/EC  on  Fuel  Quality  tightens  the  requirements  for  a  number  of  fuel 

parameters.  The  Directive  introduces  a  binding  target  for  fuel  suppliers  to  reduce  life-cycle 

GHG emissions per unit of energy from fuel and energy supplied by 6 % by 2020 compared to 

2010. The reduction is to be obtained through the use of biofuels, alternative fuels, electricity 

in  road  transport  or  reductions  in  upstream  emissions  such  as  from  flaring  and  venting  at 

Fuel Quality Directive 

production  sites.  The  expected  savings  of  6 %  of  total  well-to-wheel  road  transport  CO2 

emissions in 2020 amount to roughly 55 Mt CO2 in 2020, excluding indirect land use change 
(ILUC)  emissions16.  Council  Directive  (EU)  2015/652  specifies  calculation  methods  and 

reporting requirements under the Fuel Quality Directive.  

Environmental and 

A number of Regulations are in place related to environmental and safety requirements of tyres 

safety requirements of 

and  gear  shift  indicators  (GSI).  Regulation  (EC)  No  661/2009  aims  at  increasing  the  fuel 

tyres and gear shift 

efficiency  of  motor  vehicles  by  introducing  tyre  pressure  monitoring  systems  and  GSI.  In 

14 Kemna R. (2014): Ecodesign Impact Accounting – Part 1 – Status Nov. 2013,  

https://ec.europa.eu/energy/sites/ener/files/documents/2014_06_ecodesign_impact_accounting_part1.pdf 

15 EEA (2014): Monitoring CO2 emissions from passenger cars and vans in 2013. EEA Technical report No 19/2014. 
16 European Commission, DG Climate Action. 

32 

 
 
 
                                                                                                                                                                                                            
Policies and measures  Stage of implementation / timetable / comments 

indicators (GSI) 

addition, Regulation (EC) No 1222/2009 on the labelling of tyres aims at influencing energy 

Regulaion. 

demand by promoting the market transformation towards fuel-efficient tyres. The Regulations’ 

total  CO2  emission  savings  from  all  vehicle  types  are  expected  to  range  from  1.5  to  4 Mt 

annually by 2020.  

The  Clean  Vehicles  Directive  2009/33/EC  aims  at  a  broad  market  introduction  of 

environmentally-friendly  vehicles.  The  Directive  requires  that  energy  and  environmental 

Clean Vehicles 

impacts linked to the operation of vehicles over their whole lifetime, including CO2 emissions, 

Directive 

are  taken  into  account  in  public  procurement,  including  public  transport  operators.  Public 

procurement  of  clean  efficient  vehicles  is  expected  to  result  in  savings  of  up  to  1.9 Mt  CO2 

emissions per year in 2017 compared to the baseline scenario.  

The strategy for progressively including greenhouse gas emissions from maritime transport  

consists of the following consecutive steps (COM(2013) 479 final): (1) Establishing a system 

for monitoring, reporting and verifying (MRV) of CO2 emissions; (2) Setting reduction targets 

for  the  maritime  transport  sector;  (3) Applying  further  measures,  including  market-based 

MRV Shipping 

instruments, in the medium to long term. Relating to the first of these three steps, on 29 April 

2015 the Council and European Parliament adopted Regulation (EU) 2015/757 establishing an 

EU-wide  MRV  system  for  large  ships.  As  from  2018,  this  system  will  cover  all  ships  over 

5 000 gross tonnes that use EU ports, irrespective of where the ships are registered. Under an 

MRV system, CO2 emissions from the maritime transport sector are expected to be 2 % lower 

than the baseline in 2030.  

33 

 
 
 
Industry & non CO2 gases 

 ‘Industrial Processes 

Stage of implementation / timetable / comments 

Fluorinated gases (F-gases), in particular hydrofluorocarbons (HFCs), were introduced mostly as 

replacements for ozone depleting substances. The EU has been controlling the use of these gases 

since 2006 and has recently adopted a revised F-Gas Regulation (EU) No 517/2014 that will lead 

to  significant  emission  reductions  in  the  coming  years.  The  revised  Regulation  retains  many 

important and successful features of the previous F-Gas Regulation related to leak prevention, F-

gas  recovery  and  technical  training.  As  its  main  measure  to  reduce  the  use  of  HFCs,  the  new 

Regulation  prescribes  a  cap  and  subsequent  reduction  of  HFCs  that  can  be  placed  on  the  EU 

market (“phase-down”), thus eliminating79 % of the current consumption levels by 2030, leading 

to a two-thirds reduction of emissions. 

The new F-Gas Regulation also includes a number of bans. F-gases with high GWPs are restricted 

Fluorinated gases 

from  use  in  new  equipment  in  refrigeration,  small  air  conditioners,  fire  protection,  foams  and 

technical  aerosols. In  addition,  a  “service ban” requires  operators  of  existing  equipment  to  start 

using more climate-friendly alternatives from 2020 onwards.  

In addition, the EU proposed in April 2015 an amendment to the Montreal Protocol to include a 

phase-down of HFCs at global level.  

Mobile air conditioning (MAC) systems so far mostly used the hydrofluorocarbon R134a, which 

is a potent greenhouse gas. In order to phase out its use, Directive 2006/40/EC was put in place 

which covers MACs fitted to passenger cars and light commercial vehicles. It is being enforced 

over three phases, starting in 2008. Currently, air conditioning systems in new vehicle types have 

to be filled with gases with a GWP lower than 150. From 2017 onwards this applies to all new air 

conditioned vehicles put on the EU market. 

National  Emissions  Ceiling  (NEC)  Directive:  A  revised  NEC  Directive  –  presented  as  a 

Commission proposal in 2013 as part of the Clean Air Policy Package – will (when agreed by the 

co-legislators)  replace  the  existing  directive  from  2001  (Directive  2001/81/EC).  Its  overarching 

Clean Air Package 

aim is to reduce adverse health impacts of air pollution, including reducing the cases of premature 

deaths per year due to air pollution by more than half. To this end the proposal includes national 

emission  reduction  commitments  for  each Member  State  for  2030  (with  interim  targets  also  set 

for  2025)  for  six  specific  pollutants:  NOx,  SO2,  NMVOC,  NH3,  PM2.5  and  CH4.  The  European 

Parliament adopted its position on the proposal on 28 October 2015 as well as a mandate for first 

34 

 
 
 
 
 ‘Industrial Processes 

Stage of implementation / timetable / comments 

reading negotiations. The Council is currently preparing its position. 

http://ec.europa.eu/environment/air/clean_air_policy.htm  

Energy and manufacturing industries account for more than half of the EU’s total GHG emissions 

and  are  important  energy  consumers  and  emitters  of  atmospheric  pollutants.  The  Industrial 

Emissions  Directive  2010/75/EU  (IED)  sets  out  the  main  principles  for  the  permitting  and 

control  of  installations  based  on  an  integrated  approach  and  the  application  of  best  available 

techniques  (BAT).  BAT  means  the  most  effective  techniques  to  achieve  a  high  level  of 

environmental  protection  as  a  whole,  which  can  be  implemented  under  technically  and 

economically viable conditions and taking into consideration the costs and benefits. 

The  IED  affects  climate  change  by  regulating  greenhouse  gases  (CO2,  CH4,  N2O,  fluorinated 

The Industrial 

gases) to the extent they are not covered by the ETS or where this would be necessary to prevent 

Emmissions Directive 

significant local pollution, and by regulating indirect greenhouse gases such as NOx and SOx and 

short-lived  climate  forcers  such  as  black  carbon.  Furthermore,  the  IED  promotes  energy 

efficiency  and  makes  fuel  switching  more  attractive.  The  Directive  governs  various  types  of 

industrial installations, and thus affects the energy sector. It is complemented by other EU-wide 

policies,  such  as  the  National  Emission  Ceilings  (NEC)  Directive.  The  European  Pollutant 

Release  and  Transfer  Register  (E-PRTR)  provides  easily  accessible  key  environmental  data, 

including  GHG  emissions,  from  industrial  facilities  in  EU  Member  States.  This  register 

contributes to transparency and public participation in environmental decision-making. 

35 

 
 
 
 
 
 
Agriculture 

 Agriculture 

Stage of implementation /timetable /comments 

CAP reform post 2013 

The  agriculture  sector  has  the  specialty  that  it  is  mainly  driven  by  one  policy,  the 

Common Agricultural Policy (CAP), which determines a common way for all Member 

States of the European Union. For the period 2014 – 2020, three strategic objectives for 

rural  development  in  the  EU  have  been  set  in  line  with  the  Europe  2020  Strategy 

(COM(2010) 2020 final): Improving the competitiveness of agriculture, the sustainable 

management  of  natural  resources  and  climate  action,  and  a  balanced  territorial 

development of rural areas.  

Regulation  (EU)  No  1305/2013  on  support  for  rural  development  by  the  European 

Agricultural  Fund  for  Rural  Development  (EAFRD)  foresees  that  Member  States 

draw up and co-finance multiannual rural development programmes (RDPs), at national 

or  regional  level.  These  programmes  have  to  meet  the  three  strategic  objectives  for 

2014 – 2020, including sustainability and climate action. 

The “Horizontal Regulation” (EU) No 1306/2013 provides the financial management 

rules for the two CAP funds, the European Agricultural Guarantee Fund (EAGF) which 

finances market measures and direct payments, and the EAFRD which finances support 

to  rural  development.  It  brings  together  the  rules  on  cross  compliance,  farm  advisory 

systems and monitoring and evaluation of the CAP. The Regulation on Transitional 

Provisions  (EU)  No  1310/2013  is  designed  to  bridge  the  gap  between  the  two  rural 

development  programming  periods  – before  and  after  the  2013  reform.  Under  certain 

circumstances already existing national programmes are also eligible for support in the 

new programming period. 

In 2013, the EU has agreed that at least 20 % of the Union’s budget for 2014 – 2020 

should  be  spent  on  climate  related  action.  This  also  affects  the  CAP  and  its  specific 

funding  programs,  which  consequently  take  climate  mitigation  and  adaptation  as  an 

additional criterion for support.  

36 

 
 
 
Forests and soils 

 ‘Forests’ 

Stage of implementation /timetable /comments 

At  present  LULUCF  emissions  are  not  accounted  towards  the  “internal”  EU  targets  under  the 
2020 Climate and Energy Package. It is, however, covered under the EU's 2nd commitment period 

target in the Kyoto Protocol. For preparing the integration of LULUCF in the 2030 Framework, 

LULUCF reporting 

the LULUCF Decision has been put in place in order to obtain more robust data and to harmonize 

and accounting in the 

the  reporting  system  in  the  EU  for  agricultural  land.  In  the  second  commitment  period  of  the 

EU (LULUCF 

Kyoto  Protocol  it  has  become  mandatory  to  report  Forest  Management  (FM)  in  addition  to 

Decision) 

Afforestation, Reforestation and Deforestation (ARD). In addition, the EU Decision requires EU 

Member  States  to  establish  systems  for  estimating  emissions  and  removals  for  Cropland 

Management and Grazing Land Management, even if the activity has not been elected under the 

Kyoto Protocol. 

Waste 

Policies and measures  Stage of implementation / timetable / comments 

Limitation of 

landfilling 

The  objective  of  the  Landfill  Directive  1999/31/EC  is  to  prevent  or  reduce  as  far  as  possible 

negative effects on the environment resulting from the landfilling of waste – including emissions 

of  GHG  –  by  introducing  stringent  technical  requirements  for  waste  and  landfills.  By  2016, 

biodegradable waste going to landfills must be reduced to 35 % of the total amount (by weight) 

produced in 1995. In addition, the Directive requires collection of landfill gas from all landfills 

receiving  biodegradable  municipal  waste.  As  an  alternative  to  landfilling,  waste  is  incinerated 

with energy recovery, which is governed by the Industrial Emissions Directive (cf. section Error! 

Reference source not found.). It is estimated that a full implementation of the Landfill Directive 
will lead to a net reduction of 62 million tonnes CO2 eq in 2020 compared to 200817. 

Biodegradable  waste  is  of  interest  in  terms  of  GHG  emissions,  as  this  is  the  waste  fraction 

Management of 

biodegradable waste 

delivering  most  CH4  emissions  during  anaerobic  decomposition.  Several  EU  legal  instruments 

address the treatment of biodegradable waste: (1) The Landfill Directive requires Member States 

to  reduce  bio-waste  deposited  on  landfills;  (2)  the  Waste  Framework  Directive  2008/98/EC 

contains  specific  elements  related  to  bio-waste  and  (3)  the  Industrial  Emissions  Directive  lays 

17

European Environment Agency (EEA) (2011). Waste opportunities: past and future climate benefits from better municipal waste management 
in Europe. Report no. 3/2011. 

37 

 
 
 
                                                            
 
Policies and measures  Stage of implementation / timetable / comments 

Policies targeting 

waste streams 

down principles for controlling bio-waste treatment and incineration plants.  

Several EU Directives target waste streams. As an example, the Packaging and Packaging Waste 

Directive (PPWD) 94/62/EC provides for measures aimed at limiting the production of packaging 

waste and promoting recycling, re-use and other forms of waste recovery, hence, at reducing the 

final  disposal  of  such  waste.  On  28  April  2015,  the  European  Parliament  approved  of  an 

amendment to the Directive targeting lightweight plastic carrier bags. It will require EU Member 

States to either reduce annual average consumption of lightweight plastic bags per citizen, or to 

ban the handing-over of free bags (Directive (EU) 2015/720). 

Reduction of GHG 

Emissions from Urban 

Waste Water 

Treatment 

The Urban Waste Water Treatment Directive 91/271/EEC concerns the collection, treatment 

and discharge of urban waste water and the treatment and discharge of waste water from certain 

industrial sectors. The Directive requires, inter alia, total nitrogen reduction for discharges from 

treatment  plants  to  sensitive  areas.  As  increased  nitrogen  removal  has  been  found  to  lead  to  a 
decrease in N2O emissions in wastewater treatment plants18, this requirement can contribute to a 

reduction of N2O emissions. 

Climate Finance 

Policies and measures  Stage of implementation /timetable /comments 

Research and 

Innovation Framework 

Programme 

o  Horizon  2020:  Horizon  2020  is  the  largest  ever  EU  Research  and  Innovation 
programme,  with  nearly  €80  billion  of  funding  available  over  seven  years  (2014  to 
2020).  One  of  Horizon  2020’s  principle  objectives  is  to  provide  solutions  through  the 
means  of  science  and  innovation  to  European  and  global  societal  challenges.  The  EU 
aims to spend 35% of the overall Horizon 2020 budget on climate-related research and 
innovation  actions.  Particular  global  and/or  regional  societal  challenges  that  will  be 
addressed include: 

(cid:131)  Food  security,  sustainable  agriculture  and  forestry,  marine  and  maritime  and 

inland water research and the bio-economy; 

(cid:131)  Secure, clean and efficient energy 
(cid:131)  Smart, green and integrated transport 

Climate action, environment, resource efficiency and raw materials, as well as earth observation 

http://ec.europa.eu/programmes/horizon2020/en/what-horizon-2020 

18 http://www.bmlfuw.gv.at/publikationen/wasser/abwasser/Lachgasemissionen---Kl-ranlagen.html 

38 

 
 
 
                                                            
Policies and measures  Stage of implementation /timetable /comments 

The  budget  and  investment  priorities  of  the  ESIF  for  the  2014-2020  programming  period  are 

designed  to  ensure  the  implementation  of  the  Europe  2020  strategy  for  smart,  sustainable  and 

inclusive growth. Regional policy targets all regions and cities in the European Union in order to 

support job creation, business competitiveness, economic  growth, sustainable development, and 

improve  citizens’  quality  of  life.  In  order  to  reach  these  goals  and  address  the  diverse 

development needs in all EU regions, almost one third of the total EU budget has been set aside 

for Cohesion Policy for 2014-2020. 

European Structural 

and Investment Funds 

(EISF) 

http://europa.eu/legislation_summaries/glossary/structural_cohesion_fund_en.htm 

http://ec.europa.eu/regional_policy/sources/docgener/informat/basic/basic_2014_en.pdf  

Under  the  NER  300  programme,  38  renewable  energy  projects  and  one  carbon  capture  and 

NER 300 

storage project were selected for funding in 20 Member States. The cumulative NER 300 funding 

will be €2.1bn, which is expected to leverage €2.7bn of private investments.  

39 

 
 
 
INFORMATION ON EX-POST EVALUATION OF CLIMATE POLICIES 

7. 
The objective of the studies19 briefly described below is to identify the main drivers behind 
the changes in greenhouse gas (GHG) emissions using several complementary approaches.  

The  ex-post  evaluation  of  climate  policies  helps  strengthening  the  understanding  on  the 
effects  of  various  policies  on  the  changes  in  emissions  in  view  of  further  climate  policy 
developments.  

Three Factors Decomposition analysis  

This section presents the results from the Index Decomposition Analysis aimed at evaluating 
the  impact  over  time  of  the  evolution  of  the  European  economy  on  emissions,  and  in 
particular (i) the impact of economic growth, (ii) the changes in the structure of the economy 
(i.e.  the  shift  between  economic  sectors)  and  (iii)  the  technological  improvements  allowing 
progress in terms of carbon intensity.  

Methodology 

The empirical analysis has been performed for the EU-2720 and uses the World Input-Output 
Database which allows for a sectorally disaggregated decomposition. 

In  this  three-factor  decomposition  analysis,  an  index  (the  one  for  CO2  emissions)  is 
decomposed  into  its  underlying  parts.  The  following  variables  for  a  given  country  and 
i=1,…N  (where  there  are  35  sectors  in  total  for  each  country)  sectors  in  years  t=0,..,T  are 
being considered. 

Table 15: Variables of three factor decomposition analysis 

Variables 

Description 

Yt 

Yt,i 

Et 

Et,i 

Output in volume of the country in year t 

Output of sector i in year t 

Total CO2 emissions of a country in year t (Et= ∑

i

S

,
it

⋅

I

,
it

⋅

Y
t

) 

Emissions of sector i in year t 

It =Et / Yt 

Emission intensity of the country in year t 

It,i =Et,i / Yt,i 

Emission intensity of sector i in year t  

St,i =Yt,i / Yt 

Share of sector i in the country’s output  

Source: European Commission. 

19 

20  

The study presented in this section is conducted by ICF, UBA and ZEW for DG CLIMA. It will be 
published on DG CLIMA website. It builds upon and further develops the analysis carried out by the 
European Environment Agency ('EEA') in its report 'Why did greenhouse gas emissions decrease in the 
EU between 1990 and 2012?'Report available at http://www.eea.europa.eu/publications/why-are-
greenhouse-gases-decreasing - see section 6 "Snapshot of key emission drivers in the EU, 2005-2012". 
As data for Croatia are not available 

40 

 
 
 
 
 
 
                                                            
The impact of economic growth on the index is called the "activity effect". It describes how 
the index would have changed had there been no change in the other factors, meaning if they 
were held fixed. 

The "structural effect" is often also referred to as the “composition effect” as it addresses the 
effect on emissions due to a change in the composition of the countries’ sectors that differ in 
their CO2 emission intensity. Some sectors such as the manufacturing or basic metal sectors 
need more energy and thus emit more CO2 per Euro of output while other sectors such as the 
financial  or  insurance  sector  need  much  less  energy.  The  structural  effect  thus  reflects  the 
impact  of  a  change  in  the  economic  weight  of  these  sectors  in  a  country’s  total  output  on 
emissions holding all other factors or effects fixed at their initial values in 1995. Or to put it in 
another  way,  the  structural  effect  would  increase  if  emission-intensive  sectors  such  as  the 
non-metallic  minerals  sectors  (cement)  would  produce  relatively  more  compared  to  other 
sectors. This means their share in total output of the country increases and thus emissions. As 
seen below, a distinction between 'in country' structural effect and 'within country' structural 
effects has also be drawn. 

Finally,  the  "intensity  effect"  or  “technological  effect”  measures  the  change  in  emissions 
assuming that the structure of the economy (share of sectors in total output) and the scale of 
the economy remain at their initial levels.  

The decomposition relies on the use of a (logarithmic mean) weighting function of the CO2 
emitted used, using the following formula:  

Total = Activity . Structure . Intensity 

The index values have to be calculated for all countries and for all years. 

Results Figure 8 below shows the results from the Index Decomposition Analysis for the EU-
27:  

Figure 8: 1995-2012 CO2 decomposition analysis 

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

1995 1997 1999 2001 2003 2005 2007 2009 2011

CO2 Emission.
Total effect [1995-2012]:
-9%

Economic activity (GDP).
Total effect [1995-2012]:
+41%

Intensity effect [1995-
2012]: -35%

Between countries
stuctural effect [1995-
2012]: +7%

Within countries
stuctural effect [1995-
2012]: -6%

Source: European Commission 

Note: (1) Up until 2008, data from WIOD has been used to conduct the Index Decomposition Analysis. From 2009 onwards, 
data has been taken from Eurostat. WIOD data has been compiled using the NACE 1.1 industry classification. The Eurostat 
data is based upon NACE 2.0. NACE 2.0 is a completely new classification and not just a revision of its predecessor. There is 
no unique correspondence between the NACE 1.1 and NACE 2.0. Therefore, data are not directly comparable.. 

41 

 
 
 
 
  
(2) Bulgaria, the UK, Ireland, and Portugal are excluded due to a lack of Eurostat data. Note, however, that the non-inclusion 
of these countries appeared to have only marginal impacts on the results when directly comparing the full EU27 results from 
1995 – 2009 with those results for the same period when Bulgaria, the UK, Ireland, and Portugal have been excluded from 
the analysis. 

The blue line represents the total effect, i.e. the CO2 emissions relative to 1995. A value of 
0.91 in case of the total effect in 2012, for instance, means that carbon dioxide emissions fell 
to 91% of the 1995 level.  

The red line presents the contribution of the activity effect to total emissions. Growing output 
was the most important driver of CO2 emissions in the EU-27. The activity effect was 1.41 in 
2012. If all other factors had remained on their 1995’s levels, CO2 emissions would have been 
41% bigger in 2012 than in 1995 due to the increase in economic output. 

The  between-country  structural  effect  (purple  line)  measures  the  impact  of  changes  in  the 
composition of the different countries in the whole EU-27’s total output on CO2 emissions. In 
the  present  case,  as  the  index  value  of  this  effect  is  greater  than  one,  there  has  been  a  shift 
towards countries with higher carbon intensity. In other words, the contribution of relatively 
more carbon-intensive countries to the total output produced in the EU has been increasing. 
Thus,  more  carbon-intensive  countries  (such  as  the  Central  and  Eastern  European  Member 
States) have been growing faster than the old European member states that have on average a 
lower  carbon  intensity.  In  2012,  this  shift  of  the  economy  towards  more  carbon-intensive 
Member States increased CO2 emissions by 7% compared to 1995. 

The within-structural effect accounts for changes in the EU-27 CO2 emissions due to changes 
in the composition of the different sectors of all EU-27 Member States altogether. The results 
show  that,  on  average  over  all  the  Member-States  and  without  considering  the  between-
country structural effect described above, the sectoral composition of the European economy 
changed towards less CO2 intensive industries. There has consequently been a shift towards 
sectors with a lower carbon intensity such as service sectors while relatively carbon-intensive 
sectors  such  as  manufacturing  and  basic  metals  contributed  less  to  total  emissions  and, 
because all other factors are held fixed, also less to total production. Considering the between 
and within country effects, the shift of economic sectors in the EU as a whole had a marginal 
effect on emission during the period concerned (an increase of less than 1% between 1995 and 
2012). 

In  2012,  the  intensity  effect  (green)  was  0.65.  It  accounts  for  the  change  in  total  CO2 
emissions that is due to improvements in the carbon intensity of production only holding fix 
the  level  activity(or  GDP)  and  the  structure  of  the  economy.  The  reduction  of  the  intensity 
effect  thus  clearly  shows  that  there  had  been  significant  technical  improvements  in  the 
European Union during the period of time considered.  

The  decomposition  model  identifies  technological  improvements  as  the  main  driving  force 
behind  emission  reductions  but  it  does  not  identify  the  policies  and  measures  which 
contributed the most to these improvements. The implementation of EU and national policies 
played  a  role  but  other  factors,  such  as  the  price  of  energy  also  contributed  to  stimulate 
innovation in low carbon technologies. The intensity effect also accounts for changes in the 
fuel-mix  of  the  different  sectors  in  the  different  member  states.  Hence,  part  of  the  intensity 
improvement could be the result of a switch from more carbon-intensive fuel such as oil or 
coal to less intensive ones such as gas.  

Sectorial Decomposition analysis  

To understand why the technological changes is the main driver behind emission reductions, 
the  analysis  above  has  been  completed  with  an  economy  wide  and  detailed  sector  specific 

42 

 
 
 
 
decomposition analyses. These analyses rely on standard methods which will not be described 
here. Due to the availability of data, different timelines have been considered for every sector 
considered.  

For all these sectors, namely electricity generation, inland passenger transport and household, 
the output increased over the recent years but the impact of the technological changes offset 
the growths of the sectors concerned.  

1. 

Economy-wide decomposition 

Figure 9: Economy-wide decomposition analysis- EU28 

Source: European Commission 

As  can  be  seen  from  the  graph,  population  increased  over  the  period  2004-2012.  All  other 
factors constant, it contributed towards higher emissions. GDP is among the most important 
drivers towards increasing emissions between 2004 and 2008. Between 2008 and 2012, GDP 
decreased  thus  contributing  to  decreasing  emissions.  The  improvements  in  terms  of  gross 
inland energy intensity and the increase in the share of renewable are the main drivers behind 
emission reductions.   

43 

 
 
 
 
 
 
 
2. 

Electricity generation 

Figure 10: electricity generation decomposition analysis – EU 28 

Source: European Commission 

Electricity  consumption  increased  by  more  than  27%  between  1990-2012,  while  emissions 
decreased by 15%. The factors contributing to decreasing emissions, including the increasing 
production  of  renewable  electricity  from  wind,  solar  and  biomass  and  the  increasing 
efficiency  of  thermal  power  plants,  outweighed  the  impact  of  increasing  the  demand  for 
electricity  over  the  period  concerned.  They  are  themselves  driven  by  technological 
improvements.  The  carbon  intensity  of  energy  use  was  also  a  factor  contributing  to  lower 
emissions  between  1990  and  2008.  However,  carbon  intensity  increased  between  2008  and 
2012, mainly due to a switch from gas to coal.   

44 

 
 
 
 
 
 
 
 
3. 

Inland passenger transport  

Figure 11: Inland Passenger transport sector decomposition analysis – EU 28 

Source: European Commission 

Regarding passenger transport, emissions peaked in 2007 (see section 3.1) and decreased by 
1.7% during the 1995-2012 period. During this period of time, transport demand increased by 
15% but this increase of demand was outweighed by the progress of fuel intensity of cars and 
by the increasing the use of biofuel. The Car and Van Regulation and the Renewable Energy 
Directive contributed to these improvements.  

45 

 
 
 
 
 
 
Households 

Figure 12: Household sector decomposition analysis – EU28 

Source: European Commission 

Increase  in  population,  average  household  size  and  average  heating  temperature  increased 
during the 2004-2012 period and contributed to an increase in emissions. However, during the 
same  period  of  time,  the  share  of  biofuels  increased  and  the  housing  stock  became 
significantly more energy efficient, contributing to a total decrease of emissions by 15% over 
the period. The Renewable and Energy Efficiency Directives as well as the implementation of 
the national targets under the Effort Sharing Decision contributed to these developments.  

46 

 
 
 
 
 
 
8. 

ADAPTATION TO CLIMATE CHANGE 

The 2013 EU strategy on adaptation to climate change aims at making Europe more climate-
resilient. It promotes adaptation action across the EU, ensuring that adaptation considerations 
are  addressed  in  all  relevant  EU  policies  (mainstreaming),  promoting  greater  coordination, 
coherence and information-sharing. 

In  2017,  the  European  Commission  will  report  to  the  EU  Parliament  and  Council  on  the 
implementation of the Adaptation Strategy. This report will also include an assessment of the 
progress  made  by  Member  States  in  terms  of  adaptation  action  and  hence  preparedness. 
Progress will be assessed, inter alia, on the basis of the reports provided this year by Member 
States within the framework of the Monitoring Mechanism Regulation. Some general trends 
are described below:  

Adaptation planning and the identification of general risks and vulnerabilities are developed 
in  many  Member  States.  National  adaptation  strategies/actions  plans  have  been  adopted  in 
2021 Member States and most of those who do not yet have a strategy are preparing one. In 
addition, several Member  States  are  in the process  reviewing their adaptation strategies and 
action plans. Effective horizontal coordination between relevant Ministries was beneficial in 
many cases: for example, in Austria, Belgium, and Hungary it has facilitated the planning for 
adaptation. Coordination between different levels of governance (local, regional, national) is 
on  the  contrary  still  weak  in  the  majority  of  Member  States.  Stakeholder  involvement  is 
considered key to have a transparent, inclusive and well-informed planning process. However, 
some  countries  have  yet  to  explore  in-depth  involvement  and  increase  the  commitment  to 
adaptation of private sector and civil society stakeholders. Progress, in this direction, has been 
achieved  in  some  Member  States,  for  example  the  UK,  the  Netherlands,  Luxembourg  and 
France. 

In the Member States, earmarked financing for adaptation is still more the exception than the 
rule. While over half of the MS have financial resources available for preliminary adaptation 
action  (e.g.  climate  services,  vulnerability  assessments  and  climate  research),  only  few  (for 
instance  Denmark,  Germany  and  Malta)  have  a  dedicated  budget  to  implement  adaptation 
action in vulnerable sectors.  Public funding for adaption often focuses on water, agriculture, 
forestry and human health.   

The  definition  of  solid  adaptation  actions  and  their  strategic  implementation  is  still  an 
outstanding  issue  for  many  Member  States.  Further  comprehensive  sector  vulnerability 
assessments  should  be  carried  out.  Only  few  countries  have  specific  projects/programs  to 
implement adaptation measures as such. Due to insufficient technical capacity and resources, 
measures are often implemented ad hoc. Providing information to relevant stakeholders (e.g. 
on  adaptation  tools,  education,  guidelines)  and  integrating  adaptation  concerns  into  priority 
policies are the main instruments in this regard. Priority sectors for adaptation implementation 
cover  a  broad  spectrum  and  include:  agriculture,  water,  forests,  energy,  coastal  areas, 
transport, and health.  

Monitoring and Evaluation systems of adaptation have been developed only in few MS, for 
example  Spain  and  Finland.  This  is  partly  explained  by  the  relatively  early  stage  in 

21  (April  2015),  Austria,  Belgium,  Denmark,  Finland,  France,  Germany,  Hungary,  Italy,  Ireland,  Lithuania, 
Luxemburg, Malta, the Netherlands, Poland, Portugal, Romania, Slovakia, Spain, Sweden and the UK. 

47 

 
 
 
 
 
                                                            
 
implementation of adaptation actions. The few MS that are more advanced with M&E focus 
more  on  processes  than  outcomes  (e.g.  reductions  in  vulnerability  to  climate  change). 
Challenges  in  this  regard  include  developing  outcome  indicators  and  addressing  knowledge 
gaps, such as on cost and benefits of adaptation and vulnerability at local level. 

48 

 
 
 
 
 
9. 

MEMBER STATES CLIMATE FINANCE 

In  2014,  EU  Member  States  submitted  to  the  European  Commission  their  second  annual 
reports  on  financial  and  technology  support  provided  to  developing  countries  pursuant  to 
Article  16  of  the  Monitoring  Mechanism  Regulation  (MMR)  with  information  for  the  year 
2013.  The  information  submitted  by  EU  Member  States  is  in  accordance  with  the  relevant 
provisions  of  the  UNFCCC,  including  the  common  formats  agreed  under  UNFCCC  for  the 
biennial reports.  

The  information  in  Table  20  provides  an  overview  based  on  this  reporting.  The  figures 
include  climate  finance  sources  from  public  budgets  and  other  development  financial 
institutions; they do not cover all multilateral contributions by the EU and its Member States.  

Following discussions with the Member States, the European Commission proposed a set of 
recommendations as technical guidance for reporting under Article 16. After the first cycle of 
reporting in 2013, the guidance was updated to further enhance transparency. Differences in 
reporting methodologies and in the scope of the data still exist, despite efforts by the EU and 
its Member States to harmonise reporting methodologies. 

Table 16: Climate finance provided to developing countries (2013).  

EU and Member States  

Climate specific finance € (2013) 

EU 
Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czech Republic 
Denmark 
Estonia 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 

49 

964,262,105
94,505,000
63,220,259
na
1,797
na
5,044,000
249,000,000
120,921
91,791,554
2,621,804,411
3,441,089,820 
na
582
34,145,338
43,487,195
na
114,500
39,330,988
29,637
286,563,739
2,548,801
15,975,760
na
290,800

 
 
 
 
 
 
 
EU and Member States  

Climate specific finance € (2013) 

Slovenia 
Spain 
Sweden 
United Kingdom 
Total 
Source: Reporting submitted by MS under Monitoring Mechanism Regulation (EU) n 525/2013 

1,960,525
254,575,047
314,531,463
985,543,000
9,509,937,241

Types of activities 

The EU and its Member States supported both activities that reduce greenhouse gas emissions 
(mitigation)  and  adaptation  to  the  consequences  of  climate  change.  Of  all  climate  funding, 
approximately  43%  was  devoted  to  mitigation  and  23%  to  adaptation.  The  remaining  34% 
was multi-purpose climate finance with both adaptation and mitigation objectives, including 
the fight against deforestation and forest degradation in developing countries (REDD+). 

Types of support instrument 

Support  instruments  are  divided  into  four  main  categories:  "grants",  "loans",  "equity"  and 
"others". Around € 3.8 billion was identified as  grants and around € 4.4 billion as loans 22.  

Support provided in 2014 

As  the  deadline  for  reporting  under  Article  16  is  30  September  each  year,  only  the  EU 
aggregate figure is available for 2014.  

In  2014,  the  EU  and  its  Member  States  collectively  committed  €  14.5  billion  to  support 
developing countries in tackling climate change. This figure includes climate finance sources 
from public budgets and other development financial institutions. 

In  2013  and  2014,  the  European  Institutions  alone  provided  €  1  641  million  to  developing 
countries,  50%  to  mitigation  and  50%  to  adaptation.  In  2014,  this  support  was  provided 
entirely in the form of grants. Moreover, for the first time in 2014, the European Commission 
also  reports  climate  finance  provided  by  the  European  Investment  Bank.  This  contribution 
amounted to € 2.1bn in 2014, mostly in the form  of loans dedicated to mitigation activities. 

22 Please note that these results are incomplete, as several MS donors did not provide a complete breakdown of 
the type of support instrument  

50