COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on an EU strategy to reduce methane emissions
Date: 2020-10-14
Institutions: Directorate-General for Energy, European Commission
Subjects: EU energy policy, EU environmental policy, EU strategy, environmental cooperation, greenhouse gas, hydrocarbon, international cooperation, pollution from agricultural sources, reduction of gas emissions, waste management

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 14.10.2020  COM(2020) 663 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on an EU strategy to reduce methane emissions  
 
 
I. 

INTRODUCTION 

Methane  is  a  powerful  greenhouse  gas,  second  only  to  carbon  dioxide  in  its  overall 
contribution to climate change. On a molecular level, methane is more powerful than carbon 
dioxide. Although it remains for a shorter time in the atmosphere, it has a significant effect on 
the  climate1 and  contributes  to  tropospheric  ozone  formation,  a  potent  local  air  pollutant 
which  itself  causes  serious  health  problems 2 .  Reducing  methane  emissions therefore 
contributes to both slowing down climate change as well as improving air quality. Significant 
portions of methane emissions can be mitigated cost-effectively.  

The  Regulation  on  the  Governance  of  the  Energy  Union  and  Climate  Action3 calls  on  the 
Commission to deliver a strategic plan for reducing methane emissions. Furthermore, in the 
European  Green  Deal  Communication 4 ,  the  Commission  indicated  that  energy-related 
methane  emissions  needed  to  be  addressed  as  part  of  the  commitment  to  reach  climate 
neutrality by 2050. In this way, policy action to reduce methane emissions will contribute to 
both  the  EU’s  decarbonisation  efforts  towards  the  2030  Climate  Target  Plan  and  the  EU’s 
zero-pollution ambition for a toxic-free environment.  

Current policies for non-CO2 emissions are projected to reduce methane emissions in the EU 
by  29%  by  2030  compared  to  2005  levels5.  Nevertheless,  the  2030  climate  target  plan’s 
impact  assessment 6  found  methane  will  continue  to  be  the  EU’s  dominant  non-CO2 
greenhouse7. It concluded that stepping up the level of ambition for reductions in greenhouse-
gas  emissions to at least 55%  by 2030  compared to 1990 would also require an  accelerated 
effort  to  tackle  methane  emissions,  with  projections  indicating  a  step  up  needed  to  35%  to 
37%  methane  emission  reductions  by  2030  compared  to  2005.  At  a  global  level,  reducing 
methane emissions associated with human (anthropogenic) activity by 50% over the next 30 
years could reduce global temperature change by 0.18 degrees Celsius by 20508. 

The EU has reduction targets for 2030 for all greenhouse gases, with anthropogenic methane 
emissions  covered  by  binding  national  emission  reduction  targets  under  the  Effort  Sharing 
Regulation  (ESR) 9 .  However,  there  is  currently  no  policy  dedicated  to  the  reduction  of 
anthropogenic  methane  emissions.  Approximately  41%  of  global  methane  emissions  come 
from  natural  sources  (biogenic),  like  wetlands  or  wildfires 10 .  The  remaining  59%  are 

1 IPCC AR5, (2014). IPCC, 2013: Climate Change 2013: The Physical Science Basis. Contribution of Working 
Group I to the Fifth Assessment Report of the Intergovernmental Panel on Climate Change. 
2  European  Environment  Agency  (EEA),  (2016).  Premature  deaths  attributable  to  air  pollution  (EU  28). 
https://www.eea.europa.eu/media/newsreleases/many-europeans-still-exposed-to-air-pollution-2015/premature-
deaths-attributable-to-air-pollution. In the EU, premature deaths due to ozone exposure are estimated at between 
14,000 and 16,000 per year for the years 2015 to 2017. JRC modelling results estimate that by 2030, depending 
on levels of methane concentrations, the difference in associated premature deaths would be between 1,800 and 
4,000, annually. These results are likely under-estimates as they do not take into account recent re-evaluations of 
mortality risks associated with long-term ozone exposure, which suggest a factor 2.3 times higher. 
3 (EU) 2018/1999.  
4 COM(2019) 640 final. 
5 EU 2030 climate target plan Impact Assessment, https://eur-lex.europa.eu/resource.html?uri=cellar:749e04bb-
f8c5-11ea-991b-01aa75ed71a1.0001.02/DOC_2&format=PDF. 
6 EU 2030 climate target plan Impact Assessment, https://eur-lex.europa.eu/resource.html?uri=cellar:749e04bb-
f8c5-11ea-991b-01aa75ed71a1.0001.02/DOC_2&format=PDF.  
7 Significant quantities of non-CO2 greenhouse gases are still being emitted in the EU today, representing around 
20% of total emissions. In 2015, methane represented around 60% of total non-CO2 greenhouse gas emission, 
followed by nitrous oxides and F-gas emissions (EU 2030 climate target plan Impact Assessment). 
8 Climate and Clean Air Coalition Scientific Advisory Panel, (2020). 
9 Regulation, (EU) 2018/842. 
10 International Energy Agency (IEA), World Energy Outlook, (2018), 
https://edgar.jrc.ec.europa.eu/overview.php?v=50_GHG. 

1 

 
 
 
 
 
                                                 
anthropogenic, of which the largest sources are agriculture (40-53%) – in particular linked to 
intensive  production,  fossil  fuel  production  and  use  (19-30%),  and  waste  (20-26%).  In  the 
EU,  53%  of  anthropogenic  methane  emissions  come  from  agriculture,  26%  from  waste  and 
19% from energy11. The reported distribution of emissions per sector continues to evolve as 
reporting and data collection improve. Nevertheless, these three sectors account for up to 95% 
of global anthropogenic  methane emissions, and should therefore be  the focus of mitigating 
action12.  

The  EU  should  also  play  a  role  in  ensuring  methane  emission  reductions  at  global  level. 
While the EU contributes only to 5% of global methane emissions13, it can use its position as 
the  largest  global  importer  of  fossil  fuels  and  as  a  strong  player  in  the  agriculture  sector  to 
support  similar  action  from  global  partners.  The  EU  is  also  a  technical  leader  in  satellite 
imagery and methane emission leak detection through the Copernicus program and can lead 
international  collaboration  to  improve  the  monitoring  and  mitigation  of  global  methane 
emissions. 

The  Communication  sets  out  a  strategy  for  reducing  methane  emissions.  It  outlines  a 
comprehensive  policy  framework  combining  concrete  cross-sectoral  and  sector-specific 
actions within the EU, as well as promoting similar action internationally. While in the short-
term,  the  strategy  encourages  global  level  voluntary  and  business-led  initiatives  to 
immediately close the gap in terms of emissions monitoring verification and reporting, as well 
as reduce methane emissions in all sectors, it foresees EU level legislative proposals in 2021 
to ensure widespread and timely contributions towards the EU decarbonisation objectives.  

II. 

A NEW STRATEGY TO REDUCE METHANE EMISSIONS: COMBINING CROSS-SECTOR 
AND SECTOR-SPECIFIC ACTIONS 

The EU first addressed methane emissions with a strategy adopted in 199614. In the following 
years, the EU adopted regulatory initiatives that contributed to methane emission reductions 
in key sectors15. Relative to 1990 levels, energy-sector methane emissions have halved, while 
emissions from waste and agriculture have fallen by a third and just over a fifth respectively16. 
Nevertheless, methane emissions remain a significant challenge in each of these sectors. 

In  the  energy  sector,  methane  leaks  from  fossil  fuel  production  sites,  transmission  systems, 
ships  and  distribution  systems.  Methane  is  also  vented  (released  intentionally)  into  the 
atmosphere. Even when flared (burnt), carbon dioxide is released and methane can still escape 
during flaring as a result of incomplete combustion17. According to current estimates, 54% of 

11

- 

gas 

data 

(EEA), 

viewer. 

(2018).  EEA 

 European  Environment  Agency 

greenhouse 
https://www.eea.europa.eu/ds_resolveuid/f4269fac-662f-4ba0-a416-c25373823292.  
12 Climate and Clean Air Coalition (CCAC) Scientific Advisory Panel, (2020). 
13 Climate Watch Data, (2016). 
14 Strategy paper for reducing methane emissions. Communication from the Commission to the Council and to 
the European Parliament. COM (96) 557 final, 15 November 1996. 
15 Such as in the waste sector - to address site management, including landfill gas – but which also contributed to 
mitigating methane emissions. Also, methane emissions are covered by the binding national greenhouse gas 
targets set under the effort sharing legislation (Decision No. 406/2009/EC). 
16 In depth analysis in support of the Commission Communication COM(2018) 773 
17 Flaring and venting occurs at coal, oil and fossil gas production sites. It also occurs (to a much lesser extent) at 
landfill gas and biogas facilities. Flaring is the controlled burning of gases produced or released in association 
with:  fossil-fuel  extraction  and  transportation;  and  certain  agricultural  and  waste  practices.  Venting  is  the 
controlled  release  of  unburned  gases  directly  into  the  atmosphere.  Venting  is  arguably  more  harmful  to  the 
environment as the released gas typically contains high-levels of CH4, whereas flaring converts the CH4 into less 

2 

 
 
 
 
 
 
 
                                                 
 
methane  emissions  in  the  energy  sector  are  fugitive  emissions  from  the  oil  and  gas  sector, 
34%  fugitive  emissions  from  the  coal  sector  and  11%  from  residential  and  other  final 
sectors 18 .  The  EU’s  climate  target  plan  impact  assessment  indicates  that  the  most  cost-
effective  methane  emission  savings  can  be  achieved  in  the  energy  sector.  Upstream  oil  and 
gas operations generally have a variety of mitigation options that have no net costs19, or near 
zero costs20.  

Agriculture  is  the  second  sector  with  the  highest  potential  in  overall  benefits  for  reducing 
methane emissions21. There are also potential synergies and trade-offs for mitigating the cost 
of emission reductions in agriculture through the reduction of nutrient losses in animal feed 
by  enteric  fermentation 22  and  by  producing  biogas 23 .  Methane  emissions  from  livestock 
originate mainly from ruminant species (enteric fermentation) (80.7%), manure management 
(17.4%),  and  rice  cultivation  (1.2%).  Sources  of  methane  emissions  are  often  diffuse  in  the 
agriculture sector, which can make measurement, reporting and verification challenging. They 
also  differ  noticeably  across  the  EU.  Nevertheless,  technologically  feasible  mitigation 
practices  do  exist,  and  their  deployment  should  be  facilitated,  along  with  reporting  on  their 
effects.  

In  the  waste  sector,  the  main  identified  sources  of  methane  are  uncontrolled  emissions  of 
landfill gas in landfill sites, the treatment of sewage sludge and leaks from biogas plants due 
to poor design or maintenance. Emissions from the landfilling of waste fell by 47% between 
1990 and 201724, following  better  compliance  with EU waste legislation on  emissions from 
landfill.  This  was  achieved  primarily  by  diverting  biodegradable  waste  to  other  waste-
treatment options higher in the waste hierarchy25 such as composting and anaerobic digestion, 
as well as ensuring the stabilisation of biodegradable waste before disposal. However, more 
stringent compliance practices are needed to further reduce methane emissions from waste. 

An  effective  EU  strategy  to  reduce  methane  emissions  must  therefore  provide  stronger 
measures  to  address  methane  emissions  in  each  sector,  but  also  take  greater  advantage  of 
synergies  across  sectors  and  policy  areas.  Adopting  a  holistic  approach  brings  clear 
advantages,  as  it  allows  for  more  cost-effective  and  evidence-based  mitigation  of  methane 
emissions.  It  also  makes  it  possible  to  build  an  enabling  framework  and  strengthen  the 
business case for capturing methane emissions. Given the high share of methane emissions in 
agriculture  that  result  from  livestock,  lifestyle  and  diet  changes  can  also  contribute 

harmful CO2. Nevertheless, the process of flaring can release other emissions such as SO2 and NO2 which, when 
combined with moisture in the atmosphere, can form acid rain. 
18 Climate and Clean Air Coalition (CCAC) Scientific Advisory Panel, (2020).  
19 International Energy Agency (IEA), (2020). Methane Tracker 2020,  
https://www.iea.org/reports/methane-tracker-2020/methane-abatement-options. 
20 EU 2030 climate target plan Impact Assessment, https://eur-lex.europa.eu/resource.html?uri=cellar:749e04bb-
f8c5-11ea-991b-01aa75ed71a1.0001.02/DOC_2&format=PDF.  
21 EU 2030 climate target plan Impact Assessment, https://eur-lex.europa.eu/resource.html?uri=cellar:749e04bb-
f8c5-11ea-991b-01aa75ed71a1.0001.02/DOC_2&format=PDF.  
22 Formation  of  methane  by  microbes  in  the  gut  of  animals.  Ruminant  animals  are  a  subset  of  mammals  that 
ferment  food  in  their  ‘rumen’  (first  stomach)  using  bacteria,  before  further  digestion  in  subsequent  stomachs. 
This  ‘enteric  fermentation’  generates  methane,  which  the  animal  releases.  The  largest  sources  of  methane 
emissions in the EU agricultural sector are from cows and sheep. 
23

 [EU 

2030 

climate 

target 

plan 

Impact 

Assessment, 

https://eur-

lex.europa.eu/resource.html?uri=cellar:749e04bb-f8c5-11ea-991b-
01aa75ed71a1.0001.02/DOC_2&format=PDF.  
24 https://www.eea.europa.eu/publications/european-union-greenhouse-gas-inventory-2020  
25 ‘The waste hierarchy generally lays down a priority order of what constitutes the best overall environmental 
option 
and 
https://ec.europa.eu/environment/waste/framework/ 

and  policy.  Further  details 

,  Directive  2008/98/EC 

in  waste 

legislation 

in 

3 

 
 
 
 
                                                                                                                                                         
significantly to reducing EU methane emissions. Beyond reducing emissions, the strategy will 
also  provide  for  opportunities  to  generate  additional  revenue  streams  and  development  and 
investment in rural areas. 

1. 

CROSS-SECTORAL ACTIONS WITHIN THE EU 

a. 

Reporting 

A  priority  objective  of  the  strategy  is  to  ensure  that  companies  apply  considerably  more 
accurate  measurement  and  reporting  methodologies  for  methane  emissions,  across  sectors, 
than is currently  the  case. This will  contribute to  a better understanding  of the  problem and 
better inform subsequent mitigation measures26. 

The United Nations Framework Convention on  Climate Change (UNFCCC) has a three-tier 
reporting framework for methane emissions, which is applicable across all relevant emitting 
sectors.  Tier  1  constitutes  the  most  basic  approach,  involving  simple  estimations  based  on 
activity data and emission factors. Tier 3 is the most demanding in terms of methodological 
complexity  and  data  requirements,  involving  complex  modelling  based  on  multiple  data 
sources  or  specific,  individual  measurement.  Tier  2  is  intermediate  in  complexity  and  may 
combine elements of both Tiers 1 and 3.  

Currently,  the  level  of  monitoring  and  reporting  varies  considerably  between  sectors  and 
Member States, with very few Member States consistently applying Tier 3 standards. One of 
the key objectives of  this strategy is to  make Tier 3 methane reporting by  energy,  chemical 
and agricultural companies more widespread across the EU, where possible. This would allow 
Member States to move  to  higher tier reporting  when  submitting national emissions data to 
the  United  Nations  Framework  Convention  on  Climate  Change  (UNFCCC),  for  example. 
Nevertheless, a certain level of flexibility in reporting is required to account for the different 
challenges  to  improving  monitoring  and  reporting  across  the  different  sectors,  as  well  as  to 
concentrate reporting efforts on key categories of sources, in line with the International Panel 
on Climate Change (IPCC) guidelines27. 

In the energy sector, Tier 3 reporting is achievable for industry and will therefore be the EU 
target standard. Widespread adoption of the measurement and reporting framework developed 
under  the  Climate  and  Clean  Air  Coalition  (CCAC)  Oil  and  Gas  Methane  Partnership 
(OGMP)28 will accelerate this transition (see more details under actions in the energy section). 
The  new  OGMP  standard  (OGMP  2.0)  commits  participating  companies  to  increase  the 
accuracy and granularity of their methane emissions reporting for operated and non-operated 
assets in 3 and 5 years respectively.  

In the agricultural sector, the challenges associated with a higher number of different actors 
involved  in  adjusting  to  new  targets  justifies  a  temporary  objective  of  applying  Tier  2 
approaches,  with  improving  disaggregation  of  emission  factors  and  a  final  objective  of 
achieving  Tier  3.  In  the  waste  sector,  the  quality  of  reporting  is  already  robust  for  waste 

26 Measurement, reporting, verification (MRV), integrity and validation (IV). 
27 Intergovernmental  Panel  on  Climate  Change  (IPCC),  2019  Refinement  to  the  2006  IPCC  Guidelines  for 
Inventories, 
Gas 
National 
https://www.ipcc.ch/site/assets/uploads/2019/12/19R_V0_01_Overview.pdf 
28 Climate and Clean Air Coalition (CCAC) Oil and Gas Methane Partnership (OGMP). 
https://ccacoalition.org/en/activity/ccac-oil-gas-methane-
partnership#:~:text=The%20Climate%20and%20Clean%20Air,New%20York%20in%20September%202014. 

Greenhouse 

4 

 
 
 
 
 
 
 
 
                                                 
disposal in landfills sites (under the scope of Directive 2010/75/EC29) through the European 
Pollutant  Release  and  Transfer  Register 30.  Conversely,  as  regards  the  wastewater  sector, 
improvements are needed.  

b.  Establishing an international methane emissions observatory 

Currently, there exists no independent, international body which collects and verifies methane 
emissions  data.  In  partnership  with  the  United  Nations  Environmental  Programme  (UNEP), 
the  Climate  and  Clean  Air  Coalition  (CCAC) 31 and  the  International  Energy  Agency,  the 
Commission  will  support  the  establishment  of  an  independent  international  methane 
emissions  observatory,  tasked  with  collecting,  reconciling,  verifying  and  publishing 
anthropogenic methane emissions data at a global level. The observatory would be anchored 
in a United Nations framework. The observatory would build on a number of work streams 
such  as  the  Oil  and  Gas  Methane  Partnership  (OGMP)  and  the  global  methane  science 
studies32 as part of the Climate and Clean Air Coalition. 

Initially,  the  observatory  would  cover  methane  from  the  oil  and  fossil  gas  sectors  as  robust 
methodologies  that  can  deliver  credible  data  are  already  well  defined,  for  example  through 
OGMP 2.0. The Commission envisages extending the scope of the observatory to cover coal, 
waste  and  agricultural  activities  once  comparably  reliable  monitoring  and  reporting 
methodologies are established for those sectors. Actions to define these methodologies should 
start immediately. 

For the purpose of data verification and reconciliation of energy related methane emissions, 
company reporting needs to be complemented with data from national emission inventories, 
scientific  research,  as  well  as  satellite  observations  and  other  remote  sensing  technologies 
verified by ground-level observations. The observatory would also be tasked with testing new 
monitoring  and  reporting  technologies  and  assessing  how  these  technologies  could  be  used 
within  existing  methodologies,  as  well  as  assessing  the  level  of  improvement  these 
technologies provide to the quality of data submitted by companies. The Commission expects 
that  the  observatory  would  help  to  improve  understanding  of  the  sources  of  emissions  also 
within  sectors,  for  example  regarding  differences  in  methane  emissions  from  intensively 
reared livestock versus pasture raised livestock33. 

The Commission is ready to mobilise funding from the Horizon 2020 programme to kick-start 
the establishment of such an international methane emissions observatory. In cooperation with 
the United Nations Environmental Programme and the Climate and Clean Air Coalition, the 

the  climate 

29 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32010L0075 
30 https://prtr.eea.europa.eu/#/home 
31 The Climate and Clean Air Coalition (CCAC) is a voluntary partnership of governments, intergovernmental 
organizations,  businesses,  scientific  institutions  and  civil  society  organizations  committed  to  improving  air 
quality  and  protecting 
short-lived  climate  pollutants. 
https://ccacoalition.org/en/content/who-we-are. The United Nations Environment Programme (UNEP) is the 
leading  global  environmental  authority  that  sets  the  global  environmental  agenda,  promotes  the  coherent 
implementation of the environmental dimension of sustainable development within the United Nations system, 
and  serves  as  an  authoritative  advocate  for  the  global  environment.  https://www.unenvironment.org/about-un-
environment.  
32 Climate and Clean Air Coalition (CCAC) methane science studies https://ccacoalition.org/en/activity/oil-and-
gas-methane-science-studies.  
33 Knapp, et al., (2014). Enteric methane in dairy cattle production: Quantifying the opportunities and impact of 
reducing emissions, https://www.sciencedirect.com/science/article/pii/S0022030214002896  

through  actions 

reduce 

to 

5 

 
 
 
 
 
 
                                                 
Commission envisages organising a donor conference to encourage national governments to 
contribute towards the financing of the observatory. 

c. 

Satellite detection, Copernicus and aerial monitoring 

The  EU’s  Copernicus  programme  for  earth  observation  is  contributing  to  improved  indirect 
air  surveillance  and  the  monitoring  of  methane  emissions.  In  particular,  Copernicus  can 
contribute  to  an  EU-coordinated  capability  for  detecting  and  monitoring  global  super-
emitters 34 ,  principally  via  its  Copernicus  Atmosphere  Monitoring  Service  (CAMS) 35 . 
Globally, 5% of methane leaks in the coal, oil and fossil gas sectors contribute to 50% of the 
energy  sector’s  emissions36 and  based  on  a  first  analysis  of  EU  emissions  data,  a  similar 
pattern  emerges  for  the  EU37.  Satellite  technology  is  key  to  identifying  these  hotspots  and 
guiding leak detection and repair  on the  ground  as well as reconciling  bottom-up data  from 
company reporting. 

When launched in 2025, the Copernicus CO2-monitoring (CO2M) mission, which involves a 
constellation of three satellites, will support the identification of smaller and more prevalent 
sources  of  emissions.  It  will  also  be  able  to  monitor  global  atmospheric  methane.  This  will 
represent  significant  additional  capacity  to  the  capabilities  of  the  Copernicus  Atmosphere 
Monitoring  Service  and  the  Tropospheric  Monitoring  Instrument  (TROPOMI),  two  existing 
Copernicus  capabilities  on  board  of  the  Sentinel  5P  satellite,  that  are  able  to  detect  larger 
emission sources. 

Improved  top-down  data  from  satellites  will  help  to  target  bottom-up  leak  detection  on  the 
ground as well as aerial monitoring. There have been significant technological advances made 
in these areas in recent years with improved accuracy and cost-effectiveness. For example, the 
use of drones makes it possible to survey large amounts of infrastructure and facilitates more 
widespread  use  of  aerial  monitoring  as  well  as  increased  frequency,  which  is  key  to 
addressing intermittent leaks. Sophisticated analytical programs allow for the reconciliation of 
data at different levels and can guide abatement efforts. The Commission intends to support 
the sharing of information and technology across stakeholders to enhance access and catalyse 
abatement efforts. 

d.  Review and possible revisions of relevant environmental and climate legislation 

In  the  European  Green  Deal,  the  Commission  announced  that  in  2021  it  would  review  EU 
legislation, with the overall aim of delivering increased climate ambition as contained in the 
2030 climate target plan impact assessment. A number of pieces of legislation are within the 
scope  of  this  review  which  have  a  bearing  on  methane  emissions.  This  includes  the  EU 
Emissions Trading System (ETS) and the Effort Sharing Regulation (ESR), the latter covering 
all  methane  emissions  in  the  EU  next  to  all  other  greenhouse  gases  not  covered  by  the 

34 The term ‘super-emitter’ in this general context refers to a specific site or facility with disproportionately high-
emissions for a site or facility of that kind. In specific sectors, there are individual definitions of super-emitters. 
For example, in the fossil gas supply chain the term can refer to sites with the highest proportional loss rates, i.e. 
the greatest loss of methane emitted for methane produced/processed (Zavala-Araiza, et al., 2015).  
35 CAMS analyses global fluctuations in methane emissions on a daily and monthly basis. It can also provide full 
emissions datasets with comparisons between the main global and regional inventories. To derive more accurate 
data,  CAMS  methane  products  are  reconciled  with  other  independent  measurement  sources,  such  as  surface-
monitoring stations, ships, and aircraft programmes. 
36 Brandt, Cooley, Heath, (2016) (DOI: 10.1021/acs.est.6b04303). 
37  10-20%  of  sites  are  responsible  for  60-90%  of  emissions.  Source:  ‘Tackling  energy-related  methane 
emissions’, 2020. Consortium led by Wood Environment & Infrastructure Solutions GmbH. 

6 

 
 
 
 
 
 
 
 
                                                 
emissions trading system. The assessment supporting the 2030 climate target plan underlined 
that also for these gases increased incentives will be required to reduce emissions further. The 
achievement  of  this  strengthening  of  ambition  will  benefit  from  the  sectoral  actions  in  this 
strategy. 

Revision  of  environmental  legislation  will  include  measures  to  address  pollution.  The 
Commission  will  for  instance  assess  whether  the  role  of  the  Industrial  Emissions  Directive 
(IED)38 in  preventing  and  controlling  methane  emissions  could  be  enhanced.  This  could  be 
both from expanding the scope of the IED to cover methane emitting sectors not yet included 
in its scope and a greater focus on methane during the reviews of Best Available Techniques 
(BAT)  Reference  Documents  (BREF).  This  would  mean  ensuring  that  techniques  to  reduce 
methane  emissions  are  identified  in  BREF  reviews  and  methane  BAT-associated  emission 
levels (BAT-AELs)  are included in  BAT conclusions. The  Commission will  also assess the 
potential  to  expand  the  sectoral  scope  of  the  European  Pollutant  Release  and  Transfer 
Register (E-PRTR) Regulation39 to report methane emissions. 

The Commission will consider including methane in the zero-pollution monitoring framework 
to  be  developed  under  the  Zero  Pollution  Action  Plan  announced  for  2021  and  the  third 
edition of the EU Clean Air Outlook in 2022. The Commission will also review the National 
Emission  Reduction  Commitments  (NEC)  Directive  by  2025  and,  as  part  of  this  review, 
explore the possible inclusion of methane among the regulated pollutants.  

e.  Opportunities in biogas production  

Non-recyclable human and agricultural waste (i.e. manure) and residue streams can be utilised 
in  anaerobic  digesters  to  produce  biogas  or  in  biorefineries  to  produce  bio-materials  and 
intermediate  bio-chemicals.  When  used  for  biogas  production,  such  raw  materials  can 
effectively  contribute  towards  reducing  methane  emissions  from  anaerobic  decomposition 
processes in nature. Simultaneously, biogas production can also  generate additional revenue 
streams for farmers and provide opportunities for development and investment in rural areas. 
To that end, cooperation with and amongst farmers and local communities is essential, with 
opportunities to improve local economies and promote circularity. This cooperative approach 
in promoting opportunities for rural areas will also be part of the Long Term Vision for Rural 
Areas the Commission will put forward in 2021. 

The  biogas  resulting  from  such  feedstocks  is  a  source  of  highly  sustainable  and  useful 
renewable energy with multiple applications, while the material that remains after anaerobic 
digestion  (digestate)  can,  after  further  processing,  be  used  as  a  soil  improver.  This  in  turn 
reduces the requirement for alternative soil improving products, such as synthetic fertilisers of 
fossil origin. Moreover, in line with the waste hierarchy, the waste-based biodegradable input 
into biorefineries and biogas plants can count towards municipal waste recycling targets as set 
out in Directive 2018/98/EC. The role of sustainable biogas production in contributing to the 
EU’s decarbonisation objectives has been recognised in the recently published EU strategies 
for energy-system integration and hydrogen40.  

According  to  the  EU’s  long-term  decarbonisation  strategy 41 ,  by  2050,  the  EU’s  annual 
consumption of biogases (biogas and biomethane) is projected to grow to between 54 and 72 
Mtoe, from around 17 Mtoe in 2017.  This  growth in production  will  contribute  towards the 

38 Directive 2010/75/EU.  
39 Regulation (EC) No 166/2006 on the establishment of a European Pollutant Release and Transfer Register.  
40 COM(2020) 299 and 301; https://ec.europa.eu/commission/presscorner/detail/en/ip_20_1259.  
41 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52018DC0773  

7 

 
 
 
 
 
 
 
                                                 
EU’s renewable energy  and climate targets modelled in the long-term strategy. Biogas from 
agricultural  waste  or  residues  can  also  cost-effectively  mitigate  methane  emissions  in  the 
agriculture  and  the  waste  sectors.  Conversely,  biogas  derived  from  food  or  feed  crops 
increases methane emissions, and thus can undermine the mitigation benefits of biogas. It is 
therefore essential for biogas developments to be based primarily on waste or residues. 

The collection and use of high methane emitting organic wastes or residues from farming as 
biogas substrates should be further incentivised. This can be achieved, for example, through 
identifying best practices for collection and/or harvesting of sustainable wastes and residues 
or  by  incentivising  the  use  of  digestate  as  a  sustainable  soil  improver  in  lieu  of  mined 
fertilisers. Sequential cropping can also be used in combination with manure as feedstock for 
sustainable  biogas  production,  while  contributing  to  sustainable  farming  practices,  and  as 
such  could  also  be  further  incentivised 42 .  National  strategic  plans  for  the  Common 
Agricultural Policy (CAP), among other instruments and in line with the objectives set out in 
the national energy and  climate plans, should encourage an integrated intervention that may 
encompass  support  for  suitable  agricultural  practices,  sustainable  use  of  digestate  and 
nutrients therein, investments in efficient installations, and services such as advisers, training 
and innovation. To that end the Commission will address this issue in specific Member State 
recommendations by the end of 2020. 

As  announced  in  the  EU  strategy  for  energy-system  integration27,  the  Commission  will  re-
examine  the  gas  market  regulatory  framework  to  facilitate  the  uptake  of  renewable  gases, 
including by considering issues such as the connection to infrastructure and the market access 
for  distributed  and  locally  connected  production  of  renewable  gases.  In  addition,  the 
upcoming  revision  of  the  Renewable  Energy  Directive  in  June  2021,  will  present 
opportunities  for  further  targeted  support  to  accelerate  the  development  of  the  market  for 
biogas. 

Any  measures  to  support  biogas  production  must  be  carefully  assessed  to  avoid  perverse 
incentives  that  could  lead  to  an  overall  increase  in  emissions  from  the  waste,  land  and 
agricultural sectors, as well as to avoid an increase in the landfilling of unutilised digestate as 
soil  improvers.  Actions  promoted  under  the  methane  strategy  should  be  in  line  with  the 
general  sustainability  criteria  for  bioenergy  developed  in  the  context  of  renewable  energy 
legislation and with the taxonomy regulation43. 

Cross-sectoral actions 

1.  The Commission will support improvements in measurement and reporting of 
methane emissions by companies across all relevant sectors, including through 
sector-specific initiatives. 

2.  The  Commission  will  support 

independent 
international  methane  emissions  observatory anchored in the United Nations 
framework, in cooperation with international partners. The observatory would be 
tasked  with  collecting,  reconciling,  verifying  and  publishing  anthropogenic 
methane emissions data at a global level. 

the  establishment  of  an 

3.  The  Commission  will  strengthen  satellite-based  detection  and  monitoring  of 
methane  emissions  through  the  EU’s  Copernicus  programme,  with  a  view  to 

42  These  and  other  recommendations  were  conveyed  by  stakeholders  at  a  workshop  organised  by  the 
Commission on 17 July 2020 entitled ‘The opportunities and barriers to achieving methane emission reductions 
in waste and agriculture through biogas production’.  
43  Regulation  (EU)  2020/852  of  the  European  Parliament  and  of  the  Council  of  18  June  2020  on  the 
establishment of a framework to facilitate sustainable investment, and amending Regulation (EU) 2019/2088. 

8 

 
 
 
 
 
                                                 
contribute  to  an  EU-coordinated  capability  for  detecting  and  monitoring  global 
super-emitters. 

4.  In order to deliver on the increased climate ambition of the 2030 climate target 
plan impact assessment, the Commission will review relevant EU climate and 
environmental 
to  more  effectively  address  methane-related 
emissions notably the Industrial Emissions Directive and the European Pollutant 
Release and Transfer Register. 

legislation 

5.  The Commission will provide targeted support to accelerate the development of 
the  market  for  biogas  from  sustainable  sources  such  as  manure  or  organic 
waste and  residues via upcoming policy initiatives. This  will  include the future 
gas  market  regulatory  framework  and  the  upcoming  revision  of  the  Renewable 
Energy Directive. The Commission will propose a pilot project to support rural 
areas and farming communities in building biogas projects and accessing funds 
for biogas production from agricultural waste.  

2. 

ACTIONS IN THE ENERGY SECTOR 

The  scope  of  actions  for  energy-related  methane  covers  the  entire  oil,  gas  and  coal  supply 
chains.  It includes liquefied  natural  gas  (LNG),  gas storage and  biomethane introduced into 
gas systems. Achieving emissions savings in this sector is feasible, with at least one third of 
reductions  possible  at  no  net  cost  to  industry 44 .  The  greatest  benefits  in  net  economic, 
environmental and social terms would be achieved by reducing venting and flaring, reducing 
leaks  in  fossil  gas  and  oil  production,  transmission  and  combustion,  and  reducing  methane 
emissions from coalmines45. Venting and routine flaring should be restricted to unavoidable 
circumstances, for example for safety reasons, and recorded for verification purposes. 

Supporting voluntary initiatives 

In the energy sector, the approach of the Commission is to support voluntary initiatives while 
simultaneously  preparing  legislation  to  build  on  and  consolidate  the  progress  made  through 
voluntary actions. 

this  approach, 

the  Commission 

is  actively  promoting 

As  part  of 
the  widespread 
implementation  of  the  measurement  and  reporting  framework  devised  by  the  Oil  and  Gas 
Methane  Partnership  (OGMP)  measurement  and  reporting  framework.  The  OGMP  is  a 
voluntary initiative that currently covers oil and gas upstream companies. In cooperation with 
the  United  Nations  Environment  Programme  (UNEP)  and  the  Climate  and  Clean  Air 
Coalition, the Commission is working to extend the OGMP framework to more companies in 
the  gas  upstream,  midstream  and  downstream,  as  well  as  to  the  coal  sector  and  closed  or 
abandoned  sites 46 .  The  OGMP  framework  is  the  best  existing  vehicle  for  improving 
measurement, reporting and verification capability in the energy sector.  

In addition, the Commission calls on companies in the oil, gas and coal sectors to set up more 
robust leak detection and repair (LDAR) programmes to prepare for upcoming proposals for 
legislation that would make such programmes mandatory (more details in the next section). 

Legislative action 

44 International Energy Agency (IEA), Methane Tracker, (2020).  
45 Unintended leaks from all equipment. 
46  Ongoing  coordination  with  relevant  stakeholders  is  supporting  the  development  of  revised  MRV 
methodologies, adapted for these sectors and sections of supply chains. 

9 

 
 
 
 
 
 
 
                                                 
The  Commission  will  table  in  2021  a  legislative  proposal  on  compulsory  measurement, 
reporting and verification  for all  energy-related  methane  emissions, building on the  Oil  and 
Gas  Methane  Partnership  (OGMP)  methodology.  Improving  the  quality  of  emissions  data 
through  mandatory  higher-tier  reporting  by  companies  will  also  help  Member  States  to 
improve  their  reporting  to  the  United  Nations  Framework  Convention  on  Climate  Change 
(UNFCCC).  It  may therefore also  lead to an increased share of  higher-tier reporting  for the 
concerned key categories in the EU inventory.  

In addition, such legislation should include an obligation to improve leak detection and repair 
(LDAR)  of  leaks  on  all  fossil  gas  infrastructure,  as  well  as  any  other  infrastructure  that 
produces,  transports  or  uses  fossil  gas,  including  as  a  feedstock.  In  an  effort  to  tackle 
emissions  from  venting  and  flaring,  LDAR  obligations  will  address  flaring  efficiency  as  a 
priority.  Furthermore,  the  Commission  will  examine  options  as  regards  possible  methane 
emission  reduction  targets  or  standards  or  other  incentives  on  fossil  energy  consumed  and 
imported in the EU.  

Upstream  gas companies have  a certain but limited financial incentive  to implement LDAR 
programmes, as they can sell the gas that they prevent from leaking47. Transmission, storage, 
and distribution systems operators (including many LNG terminals) are regulated businesses 
and  do  not  own  the  gas.  For  this  reason,  the  Commission  will  promote  the  recognition  by 
National  Regulatory  Authorities  (NRAs)  of  LDAR  and  methane  reduction  investments  as 
allowed  costs  for  regulated  entities  in  transmission,  storage  and  distribution,  including 
through possible guidance to regulators.  

The  proposed  revision  of  the  Non-Financial  Reporting  Directive  (NFRD)  could  lead  to  the 
development of European non-financial-reporting standards. To ensure appropriate alignment, 
the  development  of  such  standards  could  take  account  of  the  pre-existing  Oil  and  Gas 
Methane  Partnership  (OGMP)  standards  for  supply  chains  in  oil,  fossil gas  and  coal  supply 
chains. 

The  Commission  will  examine  the  options  available  in  view  of  proposing  legislation  on 
eliminating routine venting and flaring in the energy sector covering the full supply chain, up 
to  the  point  of  production. 48.  This  would  complement  the  2030  objectives  of  the  World 
Bank’s Zero Routine Flaring initiative49, which the Commission intends to support alongside 
its  support  for  the  World  Bank’s  Global  Gas  Flaring  Reduction  Partnership 50 .  The 
Commission  will  also  make  it  a  priority  to  explore  a  more  precise  standard  for  flaring 
efficiency, with the objective of further reducing both fugitive emissions and emissions from 
incomplete combustion of fuels. These mitigation options are generally cost-effective, and a 
key  component  of  methane-emission  mitigation  in  the  energy  sector,  with  combustion 
accounting for a significant portion of EU emissions51.  

Address coalmines and abandoned production sites 

47 However,  this  would  only  reduce  leakage  if  (and  to  the  extent  that)  the  cost  of  abatement  is  lower  than  the 
additional sale price achievable. However, as these companies do not own the resource they are using (those are 
generally owned by the country of production) and not accountable for losses, they often have little interest in 
reducing  them.  Also,  oil  producers  often  have  little  or  no  incentive  (other  than  regulatory)  to  reduce  their 
emissions of methane or other gases that are not in their core business. 
48 This would exclude flaring that is necessary, for example for safety reasons. 
49 https://www.worldbank.org/en/programs/zero-routine-flaring-by-2030#1  
50 https://www.worldbank.org/en/programs/gasflaringreduction  
51 EU 2030 climate target plan Impact Assessment, https://eur-lex.europa.eu/resource.html?uri=cellar:749e04bb-
f8c5-11ea-991b-01aa75ed71a1.0001.02/DOC_1&format=PDF.  

10 

 
  
 
 
 
 
 
                                                 
The  Commission  encourages  remedial  work  to  eliminate  methane  emissions  from  the  EU’s 
active or unused coalmines and abandoned oil and gas sites. Experience in non-EU countries 
and certain Member States shows that these sites can have significant levels of  emissions52. 
However, at present, there are no EU-wide rules on checking, measuring or utilising methane 
leakage or emissions from coalmines or oil and gas wells after their closure. The forthcoming 
Commission proposal to reform the Research Fund for Coal and Steel also supports research 
in  this  field.  The  initiative  for  Coal  Regions  in  Transition,  now  part  of  the  Just  Transition 
Platform, can serve as a forum for discussing good practices and best available techniques. 

The  Commission  will  support  either  the  effective  closure  and  sealing  of  coalmines  or  their 
utilisation for residual energy production (collecting methane for local use). Technologies to 
achieve this are available and already operational in certain parts of Europe. This will require 
the  local  workforce  to  be  trained  in  these  areas,  funds  to  be  allocated  to  underpin  non-
commercial definitive closure and opportunities to be developed for commercial companies to 
collect methane from abandoned sites. The Commission will bring forward recommendations 
for best practices and/or enabling legislation if necessary. 

Actions in the energy sector 

6.  The Commission will deliver legislative proposals in 2021 on: 

•  Compulsory measurement,  reporting, and verification (MRV) for all energy-
related  methane  emissions,  building  on  the  Oil  and  Gas  Methane  Partnership 
(OGMP 2.0) methodology. 

•  Obligation to improve leak detection and repair (LDAR) of leaks on all fossil 
gas infrastructure, as well as any other infrastructure that produces, transports or 
uses fossil gas, including as a feedstock. 

7.  The  Commission  will  consider  legislation  on  eliminating  routine  venting  and 
flaring  in  the  energy  sector  covering  the  full  supply  chain,  up  to  the  point  of 
production. 

8.  The  Commission  will  work  to  extend  the  OGMP  framework  to  more 
companies in the gas and oil upstream, midstream and downstream as well 
as to the coal sector and closed as well as abandoned sites.  

9.  The  Commission  will  promote  remedial  work  under  the  initiative  for  Coal 
in  Transition.  Best-practice  recommendations  and/or  enabling 

Regions 
legislation will be brought forward if necessary. 

3. 

ACTIONS IN THE AGRICULTURAL SECTOR 

Overall, methane emissions from EU agriculture have decreased by approximately 22% since 
1990, mainly due to a reduction in ruminant livestock numbers. However, in the past 5 years, 
herd sizes have increased again, leading to a slight upturn in methane emissions in that period. 
The methane emissions intensity of meat and milk (in terms of methane emissions per weight 
of meat or milk) has also decreased over time as a result of changes in production methods. 
Further  decreases  can  be  achieved  by  more  sustainable  production  through  innovation  and 
technology  on  the  one  hand  and  by  more  sustainable  diets  on  the  other  hand.  Therefore  a 
strategic vision needs to be based on a balance of technologies, markets and dietary changes, 
reduced  fossil  hydrocarbon  inputs  and  that  ensure  a  livelihood  and  sustainable  business 

52 Kholod, et al., (2020). (https://doi.org/10.1016/j.jclepro.2020.120489).  

11 

 
 
 
 
 
 
                                                 
opportunities  for  farmers  while  upholding  the  fundamentals  of  the  EU’s  food  policy,  as 
described in the Farm to Fork strategy53. 

There  are  inherent  complexities  involved  in  achieving  methane  emissions  reductions  in 
agriculture as well as in accurately monitoring, verifying and reporting these emissions in that 
sector. Trade-offs in mitigation actions must be minimised. For example, increasing the use of 
confinement housing for livestock typically leads to reduced methane emissions. However, it 
could  increase  carbon  dioxide  emissions  through  increased  energy  use  inside  the  housing. 
Other  questions  to  be  taken  into  account  include  that  benefits  from  grazing  ruminants 
especially in terms of carbon sequestration and biodiversity in grassland and pastures would 
be lost. 

A  range  of  mitigation  technologies  and  practices  are  available  that  have  the  potential  to 
deliver  emission  reductions  decoupled  from  production.  These  are  mainly  related  to 
improvement  of  animal  diets,  herd  management,  manure  management  (notably  its  use  in 
fertilisers and biogas generation), breeding, herd health and animal welfare. 

The most-effective ways of reducing emissions from enteric fermentation54 include improving 
the  health  and  fertility  of  the  herds,  improving  animal  diets  (mix  of  feed  materials),  feed 
additives,  and  feeding  techniques.  Approximately  7-10%  of  the  energy  in  the  feed  of 
ruminants is metabolised into methane. The biggest potential for reducing emission intensity 
is  in  novel  approaches  to  feeding,  as  mentioned  in  the  Farm  to  Fork  Strategy,  which  can 
achieve  very  substantial  methane  reductions 55 .  In  addition  to  reducing  emissions,  these 
actions could also benefit farmers and animals by contributing to reduced costs and improved 
animal welfare. 

Actions  that  lead  to  reduced  emissions  from  manure  provide  additional  income  to  farmers. 
Through  cooperation  among  farmers  as  well  as  within  communities,  waste  and  residue 
streams from agriculture and waste sectors through anaerobic digestion should be valorised. 
Barriers such as insufficient knowledge and expertise that prevent their wider uptake should 
be addressed56. This underlines the need for the systemic promotion of the related expertise 
and enabling frameworks, taking into account the specificities of different Member States and 
production systems.  

Methane  emissions  from  rice  fields  can  be  reduced  by  rewetting,  drying,  and  other 
appropriate agricultural practices. The high costs of these practices, and the reorganisation of 
farm management they require, need to be addressed. 

To promote wider uptake of methane-reducing approaches in agriculture, by the end of 2021 
the  Commission  will  develop  an  inventory  of  best  practices,  available  technologies  and 
innovative  technologies.  The  Commission  will  update  this  inventory  with  technologies 
gradually  coming  onto  the  market.  The  development  and  updating  of  the  inventory  will  be 
carried out in cooperation with sectoral experts, key stakeholders and Member States. 

53 COM(2020) 381. 
54  https://ec.europa.eu/jrc/en/publication/eur-scientific-and-technical-research-reports/economic-assessment-ghg-
mitigation-policy-options-eu-agriculture-ecampa-2  
55 One novel approach to feeding that holds great promise is incorporating seaweed into cattle feed. One in vitro 
study  found  that  seaweed  could  powerfully  inhibit  methane  production  even  at  very  low  levels.  See 
https://www.publish.csiro.au/an/AN15576.  
56 https://ec.europa.eu/eip/agriculture/sites/agri-eip/files/eip-
agri_fg_livestock_emissions_final_report_2017_en.pdf 

12 

 
 
 
  
 
 
 
 
                                                 
In the first half of 2021, the Commission will support setting up an expert group to analyse 
life-cycle  methane  emissions  metrics.  This  group  will  look  at  livestock,  manure  and  feed 
management, feed characteristics, new technologies and practices and other issues, based on 
relevant international work57. This life cycle analysis will seek to distinguish to what extent 
(1) specific livestock management and animal welfare choices; (2) imported or domestic feeds 
and (3) intensive or pastoral farming choices affect methane emissions. The Commission will 
also  introduce  this  topic  into  the  CCAC  Agriculture  programme  as  a  work  stream  and  will 
consult  the  CCAC  Scientific  Advisory  Board  for  its  appreciation.  Moreover,  to  help  data 
collection and measurement, by 2022 the Commission will propose a digital carbon-navigator 
template  and  will  encourage  the  development  and  use  of  such  templates at  farm  level.  This 
will  also  improve  farmers’  awareness  of  greenhouse  gas  emissions  and  of  the  effects  of 
mitigation technologies on their farms. 

Other initiatives stemming from the Green Deal and a reformed Common Agricultural Policy 
(CAP)  will  further  contribute  to  an  effective  and  steady  decrease  in  the  overall  methane 
emissions from the EU livestock sector. In line with the 2030 Climate Target Plan the Effort 
Sharing  Regulation  (ESR)  (which  covers  methane  emissions  from  agriculture),  will  now  be 
reviewed to reflect the increased carbon reduction target providing for increased incentives to 
reduce methane emissions.  

The  Commission  will  encourage  Member  States  to  include  methane  reduction  schemes  in 
their strategic plans for the CAP such as carbon farming initiatives. These can help to develop 
a new green business model by rewarding farmers for applying farming practices that remove 
CO2 from the atmosphere and contribute to the climate neutrality objective (including in the 
animal sector), as mentioned in the Farm to Fork strategy58. Strategic plans for the CAP and 
the  national  recovery  and  resilience  plans  can  also  support  investments  in  biogas  plants,  as 
well  as  cooperation  among  farmers  and  local  communities  to  maximise  added  value.  Such 
investments can contribute to the EU’s economic recovery and increase quality of life in rural 
areas.  

Technical mitigation measures will complement other important developments for the sector 
and rural areas, in particular an expected societal shift to more balanced diets, with less red 
and processed meat, more fruits, vegetables and plant-based protein sources, in line with the 
EU  Farm  to  Fork  Strategy.  These  lifestyle  changes  can  ‘not  only  reduce  the  risks  of  life-
threatening  diseases,  they  can  also  reduce  the  environmental  impact  of  the  food  system’59. 
Finally,  the  Commission  will  advance  its  research  agenda  in  this  area,  and  in  particular 
through targeted research in its Strategic Plan 2021-2024 for Horizon Europe. 

Actions in the agricultural sector 

10. In the first half of 2021, the Commission will support setting up an expert group to 
analyse  life-cycle  methane  emissions  metrics.  This  group  will  look  at  livestock, 
manure and feed management, feed characteristics, new technologies and practices 
and  other  issues.  It  will  also  work  in  setting  up  a  life  cycle  methodology  on  the 
overall emissions for livestocks. 

11. By  the  end  of  2021,  the  Commission  –  in  cooperation  with  sectoral  experts  and 
Member  States  –  will  develop  an  inventory  of  best  practices  and  available 

57 The LEAP Partnership (Livestock Environmental Assessment and Performance) under the auspice of FAO 
58 Farm to Fork Strategy (COM(2020) 381). 
59 Farm to Fork Strategy (COM(2020) 381). 

13 

 
 
 
 
 
                                                 
technologies  to  explore  and  promote  the  wider  uptake  of  innovative  mitigating 
actions.  These  actions  will  have  a  special  focus  on  methane  from  enteric 
fermentation.  

12. To  encourage  carbon-balance  calculations  at  farm  level,  the  Commission  will  by 
2022  provide  a  digital  carbon  navigator  template  and  guidelines  on  common 
pathways  for  the  quantitative  calculation  of  greenhouse  gas  emissions  and 
removals.  

13. The  Commission  will  promote  the  uptake  of  mitigation  technologies  through  the 
wider  deployment  of  ‘carbon  farming’  in  Member  States  and  their  Common 
Agricultural Policy Strategic Plans, as from 2021.  

14. In  the  Horizon  Europe  strategic  plan  2021-2024,  the  Commission  will  consider 
proposing  targeted  research  on  the  different  factors  that  effectively  lead  to 
methane emission reductions, focusing on technology and nature based solutions as 
well as on the factors leading to dietary shift. 

4. 

ACTIONS IN THE WASTE AND WASTEWATER SECTOR 

In waste management, the Landfill Directive60 adopted in 1999, requires landfill operators to 
manage landfill gas by either using it to generate energy or flaring it. Flaring still generates 
pollutants and CO2. According to the waste hierarchy, landfilling is the least preferable option 
and  should  be  limited  to  the  necessary  minimum.  In  2018,  24%  of  all  municipal  waste 
generated in the EU was landfilled61, with significantly higher shares in a number of Member 
States due to legal and investment shortcomings. Biodegradable waste is responsible for the 
generation of landfill gas.  

Recent  changes  to  EU  waste  legislation  (2018)  introduced  an  obligation  to  collect 
biodegradable waste separately by 2024, and set a new target of a maximum 10% landfilling 
of  waste  by  2035.  As  a  result  of  these  changes,  it  is  expected  that  methane  emissions  from 
landfills will decrease further. Minimising the disposal of biodegradable waste in landfills and 
its utilisation for climate-neutral circular bio-based materials and chemicals is critical to avoid 
the  formation  of  methane,  whilst  providing  a  substitute  for  fossil  and  carbon  intensive 
products.  For  these  reasons,  Member  States  should  more  strictly  enforce  existing  legal 
requirements such as the landfill diversion targets for biodegradable waste and the treatment 
of  biodegradable  waste  prior  to  disposal  to  neutralise  its  degradability 62.  Member  States 
should  also  clamp  down  on  the  operation  of  illegal  landfill  sites.  Enhanced  monitoring, 
reporting and verification in this field is also necessary to forecast the impacts these measures 
will have on the climate ambitions for 2030 and beyond. 

More data and information is necessary to ascertain the need for and scope of further action. 
Ideally, all landfill sites should use the gas they produce until the energy content drops below 

60 Directive 1999/31/EC. 
61 Eurostat, env_wasmun. 
62 As 
http://curia.europa.eu/juris/liste.jsf?language=en&num=C-323/13.  

interpreted  by 

the  EUCJ  ruling  Case  C-323/13,  European  Commission  v.  Italian  Republic. 

14 

 
 
 
 
 
 
                                                 
a useful value. Once it is no longer viable to utilise landfill gas, it may be recommended to 
use  bio-oxidation  technology 63  in  ‘hot  spots’  identified  across  the  site  to  neutralise  the 
remaining methane. 

With  respect  to  the  treatment  and  use  of  wastewater  and  sewage  sludge  under  the  current 
regulatory framework, namely  the Urban Waste Water Treatment Directive and the  Sewage 
Sludge Directive, emissions of greenhouse gases are not specifically tackled. Over the past 29 
years,  the  implementation  of  the  Urban  Waste  Water  Treatment  Directive  has  helped  to 
prevent  significant  methane  emissions  due  to  the  collection  and  treatment  of  wastewater  in 
efficient  centralised  facilities.  These  facilities  emit  significantly  less  methane  and  other 
greenhouse gases than alternative treatment approaches.  

The Sewage Sludge Directive, adopted more than 30 years ago, regulates the use of sewage 
sludge  to  protect  the  environment,  and  in  particular  soil,  against  the  harmful  effects  of 
contaminated sludge when used in agriculture. The Urban Waste Water Treatment Directive 
is currently being reviewed64. In parallel to the impact assessment on the Urban Waste Water 
Treatment  Directive,  starting  in  the  third  quarter  of  2020,  the  Commission  will  carry  out  a 
study  to  support  the  evaluation  of  the  Sewage  Sludge  Directive.  It  will  also  carry  out  an 
additional  study  that  will  assess  the  scope  for  further  action  on  greenhouse-gas  emissions, 
including  methane  from  sewage  sludge.  Based  on  the  outcomes  of  the  evaluation  of  the 
Sewage Sludge Directive and further  research and the impact assessment for the revision of 
the Urban Waste Water Treatment Directive, the Commission will consider taking measures 
to limit the emission of greenhouse gases from sewage sludge. 

In  the  review  of  the  Landfill  Directive  required  for  2024,  the  Commission  will  consider 
several actions related to landfill gas management. Firstly, it will consider new techniques to 
reduce methane emissions. This may include aeration of landfill mass to inhibit the generation 
of  methane,  increasing  the  use  of  landfill  gas  to  generate  energy,  or  when  neither  option  is 
possible, the use of techniques that effectively oxidise the methane such  as bio-oxidation or 
flaring.  Secondly,  the  Commission  will  consider  enhanced  monitoring,  reporting  and 
verification, which is key to gauge impacts and improve performance in this field over time. 
Following on from the above actions and where necessary, the existing guidance document on 
the  implementation  of  the  Landfill  Directive  on  gas  control  requirements65 will  be  updated 
accordingly. 

New  technologies  for  better  conversion  of  waste  to  biomethane  can  be  effective  in  further 
reducing  methane  emissions  in  the  sector.  In  this  respect,  the  Commission  will  support 
targeted  research  on  technology-based  solutions  in  its  Strategic  Plan  2021-2024  of  Horizon 
Europe. 

63  LIFE  Project  RE  MIDA  -  Innovative  Methods  for  Residual  Landfill  Gas  Emissions  Mitigation  in 
Mediterranean Regions LIFE14 CCM/IT/000464. The project demonstrated the technical and economic viability 
of two technologies (biofiltration and biowindows) implemented to biologically oxidise landfill biogas with low 
calorific  value.  The  technologies  resulted  in  gains  related  to:  oxidation  efficiency,  abatement  of  odorous 
compounds, minimisation of the risk associated with emissions of carcinogenic compounds and reductions in the 
cost of landfill post treatment when compared to a conventional combustion system. 
64 https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12405-Revision-of-the-Urban-
Wastewater-Treatment-Directive.  
65 https://ec.europa.eu/environment/waste/landfill/pdf/guidance%20on%20landfill%20gas.pdf.  

15 

 
 
 
 
 
 
                                                 
Actions in the waste and wastewater sector 

15. The Commission will continue to tackle unlawful practices and provide technical 
assistance to Member States and regions. This assistance will address issues such as 
sub-standard landfills. The Commission will also help Member States and regions to 
stabilise  biodegradable  waste  prior  to  disposal  and  its  increasing  use  for  the 
production of climate-neutral, circular bio-based materials and chemicals, and divert 
this waste to biogas production. 

16. In  the  review  of  the  Landfill  Directive  in  2024,  the  Commission  will  consider 
further  action  to  improve  the  management  of  landfill  gas,  minimise  its  harmful 
climate effects, and harness any of its potential energy gains. 

17. In the Strategic Plan 2021-2024 of Horizon Europe, the Commission will consider 

proposing targeted research on waste to biomethane technologies. 

III. 

INTERNATIONAL ACTION 

The EU will seek to tackle methane emissions in the energy, agriculture and waste sectors in 
cooperation  with  partner  countries  and  international  organisations.  This  work  will  build  on 
existing  partnerships  in  international  fora,  such  as  through  the  Climate  and  Clean  Air 
Coalition  (CCAC),  the  Arctic  Council  and  the  Association  of  Southeast  Asian  Nations 
(ASEAN). The EU will also engage with international organisations.  

As  the  largest  importer  of  oil  and  gas,  the  EU  has  the  leverage  to  promote  energy-related 
methane  emission  reductions  globally.  Estimates  show  that  the  external  carbon  or  methane 
emissions associated with EU fossil gas consumption (i.e. the emissions released outside the 
EU to produce and deliver fossil gas to the EU) are between three to eight times the quantity 
of  emissions  occurring  within  the  EU66.  The  Commission  therefore  intends  to  mobilise  a 
coalition of key import countries to coordinate efforts on energy sector methane emissions.  

Moreover,  the  EU  will  leverage  its  leadership  in  the  circular  economy  and  its  advanced 
agricultural practices that balance animal welfare with productivity to accelerate international 
action.  The  Commission  will  also  support  international  data  sharing  on  methane  emissions 
through the foreseen  international methane emissions  observatory  as well as by making EU 
satellite  data  available  to  global  partners.  In  this  way,  the  EU  will  lead  by  example  in 
international  collaboration  on  data  sharing.  These  cross-sectoral  actions  will  be 
complemented by specific actions in each sector, as described below. 

1.  ENERGY 

a.  Reach  out  to  international  energy  supplier  and  buyer  countries  and  support 

multilateral cooperation 

The  EU  will  lead  a  diplomatic  outreach  campaign  to  fossil  fuel  producer  countries  and 
companies,  and  encourage  them  to  become  active  in  the  Oil  and  Gas  Methane  Partnership 
(OGMP)67.  The  EU  will  also  pursue  closer  cooperation  with  the  US,  Canada  and  Mexico 

66 Environmental Defense Fund (EDF), (2019). 
67 Current  members are: BP, Ecopetrol, Eni, Equinor, Neptune Energy International SA,  Pemex, PTT, Repsol, 
Shell, and Total. 

16 

 
 
 
 
 
 
 
 
 
                                                 
(countries  with  existing  methane-regulation  and  country-level  methane-reduction  targets)  to 
share  experiences  and  identify  joint  actions.  Through  its  bilateral  dialogues,  the  EU  will 
advocate for the need to properly measure and reduce methane emissions at a global level. 

The  Commission  will  explore  the  possibility  of  providing  partner  countries  with  technical 
assistance in gas and oil production so these countries can improve their methane regulatory 
frameworks and their capacity in monitoring, reporting and verification. 

The scope for coordinated international action among fossil fuel buyer countries in reducing 
methane  emissions in the fossil  gas  sector  is  particularly  significant. The EU, together  with 
China, South Korea and Japan account for more than 75% of the global trade in fossil gas68. 
The EU will reach out to these partners to create a coalition among buyer countries to support 
an ambitious international monitoring, reporting and verification standard, thus promoting the 
global uptake of emission-reduction technologies.  

Moreover, the international methane  emissions observatory would be tasked with compiling 
and  publishing  a  methane-supply  index  (MSI)  at  EU  and  international  level.  Initially,  the 
index  could  be  composed  using  existing  and  reported  data  from  countries’  emissions 
inventories  as  submitted  to  the  UNFCCC,  empowering  buyers  to  make  informed  choices 
when purchasing fuels.  With time, the index could  benefit from  global data supplied by the 
international methane emissions observatory.  

In order to incentivise accurate measurement, reporting and verification (MRV) on fossil gas 
(including imports), the Commission will propose to use a default value for volumes that do 
not have adequate MRV systems in place. The default value will be applied where necessary 
until a compulsory MRV framework for all energy-related methane emissions building on the 
OGMP  2.0  methodology  is  implemented.  These  steps  will  increase  transparency  in 
international gas trade flows. 

Minimum  methane  emission  standards,  targets  or  other  such  incentives  based  on  robust 
scientific analysis can play an effective role to ensure methane emission reductions in the EU 
and globally. The Commission will examine all the options available, informed by the work 
of  the  foreseen  independent  international  methane  emissions  observatory  -  building  on  the 
methane  supply  index.  In  the  absence  of  significant  commitments  from  international 
partners  on  methane  emissions  reductions,  the  Commission  will  consider  proposing 
legislation on targets, standards or other incentives to reduce methane emissions from fossil 
energy consumed and imported in the EU. This will be based on an impact assessment which 
will comprehensively assess the implications of putting such an instrument in place, including 
in  terms  of  the  independent  verification  and  compliance  checks  that  will  be  required  to 
effectively  enforce  it,  and  in  terms  of  potential  contributions  towards  overall  reductions  in 
global  methane  emissions.  This  impact  assessment  will  be  conducted  in  close  consultation 
with international partners, civil society and key stakeholders. 

The  EU  will  also  join  and  actively  support  initiatives,  including  the  international  public-
private Global Methane Initiative, the World Bank’s Global Gas Flaring Reduction initiative, 
and the World Bank’s initiative on Zero Routine Flaring by 2030. EU collaboration with the 
United  Nations  Environment  Programme  (UNEP),  the  IEA  and  the  Climate  and  Clean  Air 
Coalition  (CCAC)  on  the  international  emissions  observatory  is  a  core  component  of 
multilateral efforts across these organisations to tackle global methane emissions in the short-
term.  

68 International Energy Agency (IEA), (2019).  

17 

 
 
 
 
 
 
                                                 
The Commission will contribute to a series of key international events in the build up to the 
UN General Assembly in New York in September 2021, with the objective of securing at that 
meeting a UN-based pathway to reduce methane emissions in the years 2021-2031. The goal 
will be to provide support for the coordination of international actions to rapidly reduce global 
atmospheric  methane  and  promote  longer-term  action,  notably  through  the  creation  of  a 
legally-binding framework at international level for methane emission reduction. 

b.  Satellite data sharing on super-emitters 

Addressing super-emitters both in the EU and internationally is a cost-effective action that is 
feasible with currently available data and with established leak-detection and repair (LDAR) 
measures. Methane leakages from coalmines are often also very significant and more data is 
required to understand this area in detail69.  

The EU will promote the worldwide extension of the capability to detect and monitor super-
emitters in the foreseen international methane emissions observatory. The EU will offer this 
capability to international partners and take energy-diplomacy action to monitor and work to 
achieve reductions in emissions from super-emitters globally. This information will be based 
on satellite data reconciled with bottom-up detection processes. As of 2021, this detection and 
monitoring capability will form the basis for the establishment of a procedure that alerts the 
EU  and  national  governments  both  within  the  EU  and  internationally  about  major  emission 
sources. Further improvements in detection capability will be available starting in 202370.  

The EU is a technical leader in satellite imagery and methane emission leak detection through 
Copernicus,  in  particular  the  global  and  freely  available  CAMS  and  Sentinel  5P  products. 
Other  satellites  will  be  launched  by  the  EU  and  by  the  US  and  Japan  in  the  coming  years 
covering the same spectrum as Sentinel 5P. Data sharing among international actors will set 
an  example  of  international  collaboration  to  improve  the  monitoring  of  global  methane 
emissions. 

2.  AGRICULTURE 

A significant share of global methane emissions in the agricultural sector originates outside of 
the EU, and this share is projected to increase. An international vision and the promotion of 
mitigation  actions  is  therefore  paramount.  The  Commission  and  Member  States  have  been, 
and will continue to be, very active in various international fora for reducing emissions from 
agricultural and agro-food systems.  

The  EU  will  intensify  collaboration  with  non-EU  countries  as  part  of  the  Koronivia  Joint 
Work on Agriculture71 (KJWA) under the United Nations Framework Convention on Climate 
Change  (UNFCCC).  This  framework  covers  a  range  of  interrelated  topics  such  as  soil, 
livestock,  nutrient  and  water  management,  food  security,  the  socioeconomic  impacts  of 
climate change across agriculture and methods for assessing climate change. At COP 26, the 
EU will work to extract  best practices  and knowledge from the  KJWA work  programme to 
help make the global food system more sustainable.  

69 Saunois et al. (2019) 
70 The launch of satellites Sentinel 4 and 5 will provide higher-frequency observations, increasing the likelihood 
of capturing intermittent sources. 
71 https://unfccc.int/topics/land-use/workstreams/agriculture  

18 

 
 
 
 
 
 
 
                                                 
The EU is an active member of the Thematic Working Group on Agriculture72, which is led 
by the UN’s Food and Agriculture Organization. In this role, the EU will help to foster both 
collaboration and the exchange of knowledge and best practices to improve implementation of 
climate  action  in  agriculture.  This  work  will  cover  livestock  and  focus  on  improving  the 
implementation of Nationally Determined Contributions (NDCs) pledged by countries as part 
of the Paris Agreement. 

The Climate and Clean Air Coalition (CCAC) agriculture initiative73 also aims to increase the 
ambition of NDCs. It focuses on reducing emissions of methane from livestock (from enteric 
fermentation and manure management) and paddy rice production. As a main partner in this 
initiative,  the  Commission  will  ensure  that  it  continues  to  help  non-EU  countries  with 
knowledge exchange, best practices, and the setting up of pilot projects to better manage and 
mitigate  methane  emissions  from  agriculture.  Future  work  will  focus  on  best  practices  and 
technologies to reduce enteric fermentation globally. 

The  EU’s-international  partnerships  on  research  and  cooperation  will  continue  to  support 
climate action in agriculture-related projects. These projects will cover livestock management, 
grazing  land  management  and  forestry 74 .  Forestry-based  actions  relevant  to  methane 
abatement  include  initiatives  to  reduce  the  conversion,  draining  and  burning  of  peatland 
forests75, managing and restoring forests in a way that reduces the incidence and severity of 
uncontrolled forest fires76, and reducing firewood and charcoal use (switching to non-biomass 
fuels for cooking)77. Other target areas are cropland manure management as well as other land 
uses and ecosystems (managing prescribed/controlled fires, agricultural development in urban 
and peri-urban areas, and drying of wetlands).  

The  Commission  will  also  promote  the  mitigation  potential  in  the  rice-cultivation  sector  in 
Asia through cooperation projects. These projects will be set up and monitored according to 
EU climate-tracking procedures and in line with NDCs and national adaptation plans. 

3.  WASTE 

The  Commission  is  actively  participating  in  the  revision  of  guidance  on  the  landfilling  of 
waste  (including  landfill-gas  management)  under  the  Basel  Convention78.  The  guidance  has 
been aligned with existing EU waste legislation 

International actions 

18. The  EU  will  step-up  its  contribution  to  the  work  of  international  fora,  such  as 
through  the  Climate  and  Clean  Air  Coalition  (CCAC),  the  Arctic  Council  and  the 
Association of Southeast Asian Nations (ASEAN). 

19. As part of the EU’s diplomatic and external relations action, the Commission will 
address  methane  emission  reductions  in  all  relevant  sectors  with  partner  countries 

72 http://www.fao.org/climate-change/our-work/what-we-do/ndcs/twg/en/  
73 https://ccacoalition.org/en/resources/ccac-agriculture-initiative-infosheet  
74 EU Communication on Stepping up EU Action to Protect and Restore the World’s Forests; 23 July 2019 
75 IPCC, (2019). 
76 Forest  conservation  and  sustainable  management  also  reduce  flood  risks,  and  thereby  reduce  the  methane 
emissions associated with flooding.  
77 From  the  perspective  of  methane  emissions,  a  switch  to  other  biomass  fuels,  even  if  they  are  sustainably 
produced, is not ideal as all biomass burning generates methane. 
78 Basel  Convention  on  the  Control  of  Transboundary  Movements  of  Hazardous  Wastes  and  their  Disposal 
https://www.basel.int/Portals/4/Basel%20Convention/docs/text/BaselConventionText-e.pdf.  

19 

 
 
 
 
 
 
  
                                                 
and  promote  global  coordination  of  efforts  to  address  energy-sector  methane 
emissions.  

20. The  Commission  will  seek  increased  transparency  in  the  energy  sector  by 
working  with  international  partners  to  develop  a  Methane  Supply  Index  in  the 
foreseen international methane emissions observatory.  

21. The Commission will consider  methane emission  reduction targets,  standards  or 
other incentives for fossil energy consumed and imported in the EU in the absence 
of significant commitments from international partners. 

22. The  Commission  will  support  the  establishment  of  a  detection-and-alert  process 
for  methane  super-emitters  using  EU  satellite  capability,  and  share  this 
information  internationally  through  the  foreseen  international  methane  emissions 
observatory.  

23. The Commission will support cooperation with international partners, including the 
Global  Methane  Initiative,  the  World  Bank’s  Global  Gas  Flaring  Reduction 
initiative, and the World Bank’s initiative on Zero Routine Flaring by 2030, as well 
as the International Energy Agency.  

24. The Commission will contribute to a series of key international events in the build 
up to the UN General Assembly in New York in September 2021, with the objective 
of  securing  a  UN  based  pathway  on  coordinated  actions  at  international  level  to 
reduce methane emissions. 

IV. 

CONCLUSIONS 

This  strategy  identifies  a  set  of  actions  that  will  achieve  significant  reductions  in  methane 
emissions  across  the  energy,  agriculture  and  waste  management  sectors  at  EU  and 
international level. These measures will help to deliver on the EU’s commitments under the 
European Green Deal and the Paris Agreement towards climate neutrality, as well as reducing 
air pollution. Effective emission reductions will require resolute action by EU Member States, 
non-EU countries and stakeholders.  

The Commission will continue to monitor progress in relation to methane emission reductions 
in the EU greenhouse gas inventories, while reporting under the United Nations Framework 
Convention  on  Climate  Change  (UNFCCC)  and  United  Nations  Environment  Programme 
(UNEP) frameworks will monitor progress at international level. 

The  Commission  invites  the  European  Parliament,  Council,  Committee  of  the  Regions, 
European Economic and Social Committee, Member States, non-EU countries, international 
organisations and stakeholders at EU and international level to support and cooperate on the 
further development of this strategy to urgently address methane emissions across the energy, 
agriculture and waste management sectors. 

20