COMMISSION STAFF WORKING DOCUMENT Accompanying the document Report from the Commission to the European Parliament and the Council on the Functioning of the European carbon market in 2021 pursuant to Articles 10(5) and 21(2) of Directive 2003/87/EC (as amended by Directive 2009/29/EC and Directive (EU) 2018/410)
Date: 2022-12-14
Institutions: Directorate-General for Climate Action, European Commission
Subjects: EU Emissions Trading Scheme, EU emission allowance, air transport, carbon, energy efficiency, environmental monitoring, greenhouse gas, industrial pollution, reduction of gas emissions, tradeable emission permit

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   EUROPEAN COMMISSION  Brussels, 14.12.2022  SWD(2022) 407 final  COMMISSION STAFF WORKING DOCUMENT          Accompanying the document Report from the Commission to the European Parliament and the Council on the Functioning of the European carbon market in 2021 pursuant to Articles 10(5) and 21(2) of Directive 2003/87/EC (as amended by Directive 2009/29/EC and Directive (EU) 2018/410) {COM(2022) 516 final}  
 
 
 
 
Contents 

Appendix 1 – ETS scope ......................................................................................................................... 2 

Appendix 2 – Auction revenues .............................................................................................................. 3 

Appendix 3 – Balancing supply and demand .......................................................................................... 6 

Appendix 4 – Monitoring, reporting and verification ............................................................................. 8 

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Appendix 1 – ETS scope 

Figure 1.1. Number of installations per emissions category in 2021. 

Table 1.1. Countries reporting non-CO2 emissions from EU ETS activities in 2021. 

Gas 

Activity 

PFCs 

Primary aluminium 

Nitric acid  

N2O 

Adipic acid  

Glyoxal and glyoxylic 
acid 

Number of 
countries 

EU ETS country 

12 

19 

3 

3 

DE, ES, FR, GR, IS, IT, NL, NO, RO, SE, SI, SK 

AT, BE, BG, CZ, DE, ES, FI, FR, GR, HR, HU, 
IT, LT, NL, NO, PL, PT, RO, SK 

DE, FR, IT 

DE, FR, IT 

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Appendix 2 – Auction revenues 

Table 2.1. Revenues from the auctioning of general and aviation allowances in 2021 (EU27). 

EU ETS country 

Revenues in 2021 

[million EUR] 

General allowances 

Aviation allowances 

AT 

BE 

BG 

CY 

CZ 

DE 

DK 

EE 

EL 

ES 

FI 

FR 

HR 

HU 

IE 

IT 

LT 

LU 

LV 

MT 

NL 

PL 

PT 

RO 

SE 

SI 

SK 

306.6 

527.3 

830.9 

77.0 

601.9 

5 270.9 

287.6 

248.1 

1 003.9 

2 452.4 

404.6 

1 446.0 

110.7 

286.2 

145.3 

2 495.8 

85.3 

7.3 

61.3 

29.5 

885.2 

5 588.6 

505.9 

480.1 

214.5 

129.8 

275.8 

4.4 

5.9 

2.0 

1.4 

2.1 

35.3 

5.3 

0.6 

10.7 

30.5 

4.4 

23.1 

1.6 

2.0 

4.0 

25.2 

0.9 

0.7 

1.1 

1.2 

8.8 

5.0 

8.0 

3.8 

7.6 

0.3 

0.3 

Total 

24 758.6 

196.1 

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Table 2.2. Revenues from the auctioning of general and aviation allowances in 2021 (EFTA 
countries). 

EU ETS participating country 

Revenues in 2021 

[million EUR] 

General allowances  Aviation allowances 

Iceland 

Liechtenstein 

Norway 

Total 

3.9 

0.2 

174.5 

178.6 

1.9 

- 

8.6 

10.5 

Table 2.3. Revenues from the auctioning of allowances for the Innovation and Modernisation Funds. 

Fund 

Innovation Fund 

Modernisation Fund 

Total 

Revenues [million EUR] 

2020 

2021 

1 333.8 

- 

1 333.8 

2 163.2 

3 751.7 

5 915.0 

Table 2.4. Projects supported under the InnovFin EDP and CEF DI (through NER 300 funds), June 
2020 - June 2022. 

Project title 

Description 

Provence Grand Large Floating 
Offshore Wind Project 
(InnovFin EDP) 

The project concerns the design, installation, operation and maintenance of a 
floating offshore wind farm about off the coast of Marseille, France in 100m 
Water  Depth.  The  project  will  consist  of  three  8MW  turbines  which  will  be 
mounted  in  an  innovative  floating.  The  NER  300  contribution  in  form  of 
loans) amounts to EUR 50 million. 

CH New Charging and Energy 
Storage Solutions 
(InnovFin EDP) 

The proposed  technology platform allows the integration of electric vehicles 
(“EVs”) into the power grid by aggregating and leveraging the energy storage 
potential  of  end-user  EVs  batteries  as  stationary  storage  devices  in  order  to 
provide  power  system  services.  The  project’s  demonstration    is  located  in 
Germany, France and the Netherlands and the NER 300 contribution amounts 
to EUR 2.1 million. 

DK Everfuel Green Hydrogen 
Project 

The  project  comprises 
the  deployment  of  a  hydrogen  distribution 
infrastructure and a hydrogen production plant, to supply green hydrogen to a 
large-scale fleet of fuel cell electric buses in Denmark. The financing of EUR 
20.7  million  is  supported  under  the  Future  Mobility  product,  backed  by  the 
Connecting Europe Facility and the NER300 Programme. 

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ES Evervest 

The  project  consists  of  the  roll  out  of  an  electric  vehicle  charging  network 
involving  the  deployment of 476 charging points in 200 sites over a 3-year 
implementation period. Charging points will only sell electricity sourced from 
renewable sources backed by relevant certificates. This project requested the 
EIB loan of EUR 50 million, fully covered from NER300 unspent funds. 

Table 2.5. Total number of allowances in the Modernisation Fund per beneficiary Member State for 
phase 4 (2021-30).  

Member 
State 

Share as per  
Annex IIb of 
the EU ETS 
Directive 

Allowances as 
per  
Article 10(1) of 
the EU ETS 
Directive 

Transfers from  
Article 10(2)(b) 
of the EU ETS 
Directive 
(solidarity) 

Transfers 
from  
Article 10c of 
the EU ETS 
Directive 

Total transfers 
from  
Article 10(2)(b) 
(solidarity) and 
Article 10c 

Total 

BG 

CZ 

EE 

HR 

LV 

LT 

HU 

PL 

RO 

SK 

5.84% 

16 095 825 

0 

0 

0 

16 095 825 

15.59% 

42 968 135 

38 722 276 

111 462 281 

150 184 557 

193 152 692 

2.78% 

7 662 054 

3.14% 

8 654 262 

1.44% 

3 968 834 

2.57% 

7 083 265 

7.12% 

19 623 677 

43.41% 

119 643 793 

0 

0 

0 

0 

0 

0 

0 

0 

7 662 054 

5 978 852 

5 978 852 

14 633 114 

0 

0 

3 968 834 

8 696 818 

8 696 818 

15 780 083 

0 

0 

0 

0 

19 623 677 

119 643 793 

11.98% 

33 018 490 

81 673 875 

86 073 704 

167 747 579 

200 766 069 

6.13% 

16 895 104 

1 783 231 

33 228 414 

35 011 645 

51 906 749 

Total 

100.00% 

275 613 439 

122 179 383 

245 440 068 

367 619 451 

643 232 890 

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Appendix 3 – Balancing supply and demand 

Figure 3.1. TNAC methodology 

A  key  notion  for  the  functioning  of  the  Market  Stability  Reserve  (MSR)  is  the  total  number  of 
allowances in circulation (TNAC). Allowances are added to the reserve if the TNAC is above a 
predefined  upper  threshold  (833  million  allowances),  and  are  released  from  the  reserve  if  the 
TNAC is below a predefined lower threshold (below 400 million allowances)*. The MSR absorbs 
or releases allowances when the circulating volume is outside of a predefined range. Backloaded 
and  so-called  unallocated**  allowances  were  also  put  in  the  reserve.  From  2023  onwards, 
allowances held in the MSR exceeding the previous year's auction volume will no longer be valid.  

The TNAC relevant for determining the MSR feeds and releases is calculated on the basis of the 
following formula: 

TNAC = Supply – (Demand + allowances in the MSR) 

The components of supply and demand used in the formula are described in the Communication 
from the European Commission on the TNAC, published annually in May.*** 

* Or where measures are adopted under Article 29a of the EU ETS Directive. 

**Unallocated  allowances  are  allowances  not  allocated  pursuant  to  Article  10a(7)  of  the  EU  ETS  Directive,  i.e. 
allowances remaining in the new entrants' reserve, and resulting from the application of Article 10a(19) and (20), i.e. 
allowances  foreseen  for  free  allocation  to  installations  but  remaining  unallocated  because  of  (partial)  cessation  of 
operations or significant capacity reductions. De facto "unallocated" allowances stemming  from the application of the 
relevant carbon leakage factor to sectors not included in the carbon leakage list during the current period, as well as any 
allowances that are not allocated under Article 10c of the ETS Directive, are not foreseen to be placed in the MSR under 
Article 1(3) of Decision (EU) 2015/1814. Such allowances are therefore not covered (please refer to p. 225 of the Impact 
Assessment (SWD(2015)135 final) accompanying the 2015 proposal for revision of the EU ETS Directive). 

***See the latest TNAC Communication, published in May 2022: C/2022/4874.  

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Table 3.1. Annual contributions to the Market Stability Reserve by EU ETS country. 

EU ETS country 

2021 

2022 

AT 

BE 

BG 

CY 

CZ 

DE 

DK 

EE 

EL 

ES 

FI 

FR 

HR 

HU 

IE 

IS 

IT 

LI 

LT 

LU 

LV 

MT 

NL 

NO 

PL 

PT 

RO 

SE 

SI 

SK 

5 563 187 

6 345 090 

9 228 856 

10 525 966 

6 531 499 

7 449 497 

874 285 

997 166 

14 108 876 

16 091 870 

80 029 579 

91 277 689 

5 005 490 

5 709 009 

2 225 742 

2 538 569 

11 888 232 

13 559 116 

30 610 010 

34 912 228 

6 682 443 

7 621 657 

21 881 211 

24 956 603 

1 513 604 

1 726 341 

4 381 023 

4 996 772 

3 740 851 

4 266 625 

156 001 

177 927 

37 775 362 

43 084 666 

3 492 

3 982 

1 100 842 

1 255 564 

438 053 

480 330 

332 525 

499 621 

547 840 

379 262 

13 394 277 

15 276 835 

3 106 500 

3 543 117 

34 583 085 

39 443 717 

6 072 075 

6 925 501 

11 604 041 

13 234 982 

3 246 409 

3 702 690 

1 478 674 

1 686 501 

4 206 047 

4 797 204 

NI (Northern Ireland) 

883 013 

1 007 119 

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Appendix 4 – Monitoring, reporting and verification 

Table 4.1. Accreditation and verification in the EU ETS in 20211.  

Aspect 

Countries 

Number 

Differences per country compared to 2020 

Number of verifiers 
accredited by the National 
Accreditation Body of a 
Member States – for 
installations 

Number of verifiers 
accredited by the National 
Accreditation Body of a 
Member State- for aviation 

Number of verifiers 
accredited by another 
Member State - for 
installations 

Number of verifiers 
accredited by a national 
accreditation body in another 
Member State - for aviation 

Number of complaints made 
about verifiers  

Number of resolved 
complaints  

Number of complaints from 
prior reports, not reported as 
resolved earlier and 
meanwhile resolved 

Number of non-conformities 
for verifiers reported in the 
information exchange  

Number of non-conformities 
above resolved 

Number of non-conformities 
from prior reports, not 
reported as resolved earlier 
and meanwhile resolved 

Verifiers suspended  

Withdrawal of accreditation 
certificate 

Scope of accreditation 
reduced 

23 

6 

5 

1 

8 

8 

3 

1 

1 

6 

23 

106 

AT(2), BE(2), BG(3), CZ(5), DE(16), DK(3), 
EE(1), EL(5), ES(6), FI(4), FR(6), HR(2), 
HU(5), IT(10), LV(3), NL(3), NO(3), PL(8), 
PT(3), RO(6), SE(4), SI(2), SK(4) 

12 

23 

AT(1), CZ(1), DE(4), EL(3), ES(2), FR(2), 
IT(3), LV(1), PT(2), RO(2), SI(1), SK(1) 

24 

57 

AT(1), BE(4), BG(4), CY(2), CZ(1), DK(1), 
EE(3), ES(3), FR(1), HR(1), HU(3), IE(6), 
IS(2), LT(3), LU(4), MT(1), NL(2), NO(2), 
PL(3), PT(1), RO(2), SE(4), SK(1), XI(2) 

AT(2), BE(3), BG(1), CY(1), DK(1), EE(1), 
ES(1), FI(1), HR(1), HU(1), IE(2), IS(1), IT(3), 
LT(2), LU(2), MT(3), NL(2), NO(3), PL(3), 
PT(1), RO(1), SE(2), SK(1) 

DE(4), ES(16), FR(4), LV(1), RO(2), SE(1) 

DE(4), ES(16), FR(3), RO(2), SE(1) 

39 

28 

26 

11 

DE(11) 

64 

46 

AT(10), BG(10), FI(18), FR(3), HR(10), 
HU(5), IE(3), NO(5) 

AT(10), BG(5), FI(9), FR(3), HR(10), HU(5), 
IE(3), NO(1) 

24 

BG(4), DE(11), FI(9) 

2 

1 

7 

NO(2) 

FR(1) 

DE(2), DK(1), FI(1), FR(1), NO(1), SE(1) 

1 The maximum number of countries is 30 because Liechtenstein did not have any active operators in 2021.  

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Table 4.2. EU ETS coordination between competent authorities in 20212. 

Aspect 

Does a central competent authority review monitoring plans, annual 
emission reports and improvement reports in addition to local and 
regional authorities on a regular basis? 

Number of countries and list of 
relevant countries 

11 

AT, BG, ES, HR, HU, LT, NL, 
PL, SE, SI, XI 

Does a central competent authority steer local and/or regional competent 
authorities by giving binding instructions and guidance? 

5 

BG, FR, NL, SK, XI 

Does a central competent authority steer local and/or regional competent 
authorities by giving non- binding instructions and guidance? 

5 

AT, FI, LT, PL, PT 

Are regular meetings organised with the competent authorities? 

Is common training organised for all competent authorities to ensure 
harmonised implementation of requirements? 

9 

BE, BG, EL, ES, FR, NL, PT, SE, 
XI 

8 

AT, BG, FR, NL, PT, SE, SK, XI 

Is a structured working or coordination group established, where 
competent authority staff, discusses monitoring and reporting issues and 
develops common approaches? 

10 

BG, EL, ES, FR, HR, HU, NL, 
PT, SE, XI 

2 The maximum number of countries is 30 because Liechtenstein did not have any active operators in 2021. 

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Table 4.3. Administrative charges in the EU ETS in 20213. 

Aspect 

Number of countries and list of relevant countries (values in EUR) 

Are fees charged to 
operators? 

Permit issuance/monitoring 
plan approval 

Permit update 

Permit transfer 

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Permit surrender 

New entrant reserve 
application 

Annual subsistence charge 
amount 

Are fees charged to 
aircraft operators? 

Approval of monitoring plan 
for emissions 

Approval of change to 
monitoring plan for 
emissions 

Approval of monitoring plan 
for tonne-kilometre data 

Approval of change to 
monitoring plan for tonne-
kilometre data 

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16  AT, BG, CZ, DK, ES, FI, HR, HU, IS, IT, NO, PL, PT, RO, SI, XI 

14 

13 

8 

3 

8 

BG(250), CZ(400), ES(985.35), FI(500), HR(5), HU(257), 
IS(3500), IT(250), NO(3356), PL(17.52), PT(207.96), RO(360), 
SI(22.6), XI(7729.2) 

BG(100), ES(393.33), FI(400), HR(5), HU(143), IS(780), IT(62), 
NO(1007), PL(2.13), PT(103.97), RO(360), SI(22.6), XI(546.92) 

FI(500), HR(5), HU(143), IS(780), IT(62), PL(2.13), SI(22.6), 
XI(546.92) 

IT(62), PL(2.13), XI(870.1) 

BG(500), HR(5), HU(652.5), IS(2600), IT(62), PT(1455.69), 
SI(22.6), XI(1447.53) 

3  DK(4854), IT(250), XI(5277) 

13  AT, BG, DK, FI, HR, HU, IS, IT, NO, PL, PT, RO, SI 

11 

11 

8 

8 

BG(500), FI(700), HR(5), HU(540), IS(3100), IT(250), NO(3000), 
PL(2.13), PT(279.14), RO(2000), SI(22.6) 

BG(50), FI(250), HR(5), HU(540), IS(1080), IT(62), NO(800), 
PL(2.13), PT(139.57), RO(500), SI(22.6) 

BG(500), HU(540), IS(3100), IT(62), PL(2.13), PT(279.14), 
RO(2500), SI(22.6) 

BG(50), HU(540), IS(1080), IT(62), PL(2.13), PT(139.57), 
RO(500), SI(22.6) 

Transfer of monitoring plan 

5  HR(5), HU(540), IS(1080), IT(62), SI(22.6) 

Surrender of monitoring 
plan 

1 

IT(62) 

3 The maximum number of countries is 30 because Liechtenstein did not have any active operators in 2021. 

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Table 4.4. Compliance checks in the EU ETS in 20214. 

Type of check 

Number of EU ETS countries (% or number per relevant country) 

Share of the emissions 
reports checked for 
completeness and internal 
consistency (%) 

Share of the emissions 
reports checked for 
consistency with the 
monitoring plan (%) 

Share of the emissions 
reports that were cross-
checked with allocation 
data (%) 

Share of the emissions 
reports that were cross-
checked with other data 
(%).  

Share of the emissions 
reports that were analysed 
in detail (%).  

Number of verified 
emissions reports that 
were rejected because of 
non-compliance  

Number of verified 
emissions reports that 
were rejected because of 
other reasons.  

Share of the emissions 
reports checked for 
completeness and internal 
consistency (%) 

Share of the emissions 
reports checked for 
consistency with the 
monitoring plan (%) 

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a
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a
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s
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30 

29 

23 

21 

25 

AT(100%), BE(100%), BG(100%), CY(100%), CZ(100%), 
DE(100%), DK(100%), EE(100%), EL(100%), ES(100%), 
FI(100%), FR(100%), HR(100%), HU(100%), IE(90%), IS(100%), 
IT(100%), LT(100%), LU(100%), LV(100%), MT(100%), 
NL(100%), NO(100%), PL(100%), PT(100%), RO(100%), 
SE(100%), SI(100%), SK(100%), XI(100%) 

AT(20%), BE(70%), BG(100%), CY(100%), CZ(30%), DE(100%), 
DK(100%), EE(100%), EL(100%), ES(90%), FI(100%), FR(70%), 
HR(100%), HU(100%), IE(90%), IS(100%), LT(80%), LU(100%), 
LV(100%), MT(100%), NL(100%), NO(100%), PL(100%), 
PT(100%), RO(100%), SE(3%), SI(100%), SK(100%), XI(100%) 

AT(20%), BE(100%), BG(100%), CY(100%), CZ(10%), 
DK(100%), EE(100%), EL(100%), ES(43%), FI(100%), FR(100%), 
HU(100%), IE(1%), IS(100%), LT(80%), LU(100%), LV(100%), 
PL(100%), PT(100%), RO(100%), SI(100%), SK(100%), XI(100%) 

AT(20%), BE(100%), BG(100%), CY(100%), CZ(30%), DK(79%), 
EE(100%), EL(100%), ES(34%), FR(100%), HR(100%), LT(80%), 
LU(100%), NL(100%), NO(100%), PT(100%), RO(100%), 
SE(100%), SI(100%), SK(100%), XI(100%) 

AT(20%), BE(11%), BG(8%), CY(100%), CZ(30%), DK(54%), 
EE(100%), EL(50%), ES(23%), FI(100%), FR(30%), HR(100%), 
IE(90%), IS(100%), LT(100%), LU(100%), MT(100%), NL(25%), 
NO(100%), PL(100%), PT(100%), RO(100%), SE(3%), SK(100%), 
XI(100%) 

2 

FR(1), RO(1) 

5 

ES(5), FR(4), LT(16), NO(3), PT(26) 

26 

24 

AT(100%), BE(50%), BG(100%), CY(100%), CZ(100%), 
DE(100%), DK(100%), EE(100%), EL(100%), ES(100%), 
FI(100%), FR(100%), HR(100%), IE(100%), IS(100%), IT(100%), 
LT(100%), LU(100%), MT(100%), NL(100%), NO(100%), 
PL(100%), PT(100%), RO(100%), SE(100%), SK(100%) 

AT(100%), BE(50%), BG(100%), CY(100%), CZ(50%), 
DE(100%), DK(100%), EE(100%), EL(100%), ES(100%), 
FI(100%), HR(100%), IS(100%), IT(60%), LT(100%), LU(100%), 
MT(100%), NL(14%), NO(100%), PL(100%), PT(100%), 
RO(100%), SE(100%), SK(100%) 

Share of the emissions 
reports that were cross-

23  AT(100%), BE(100%), BG(100%), CY(100%), DE(100%), 

DK(100%), EE(100%), EL(100%), ES(100%), FI(100%), 

4 The maximum number of countries is 30 because Liechtenstein did not have any active operators in 2021. 

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checked with other data 
(%) 

FR(100%), HR(100%), IS(67%), IT(100%), LT(100%), LU(100%), 
MT(100%), NL(100%), NO(100%), PT(100%), RO(100%), 
SE(100%), SK(100%) 

Share of the emissions 
reports that were analysed 
in detail (%). 

23 

AT(100%), BG(100%), CY(100%), DE(100%), DK(30%), 
EE(100%), EL(100%), ES(100%), FI(100%), FR(80%), HR(100%), 
IS(100%), IT(50%), LT(100%), LU(100%), MT(100%), NL(14%), 
NO(50%), PL(100%), PT(100%), RO(100%), SE(45%), SK(100%) 

Number of verified 
emissions reports that 
were rejected because of 
non-compliance  

Number of verified 
emissions reports that 
were rejected because of 
other reasons.  

0 

- 

1 

PT(3) 

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Table 4.5. EU ETS compliance measures in 20215. 

Compliance measures 

Countries 

Onsite inspections 

Have preventive measures been taken to ensure 
operator’s compliance? 

Ensuring that selling of emission allowances is 
prohibited in the case of irregularities 

Imprisonment possible? 

Onsite inspections 

Have preventive measures been taken to ensure 
aircraft operator’s compliance? 

17 

17 

7 

8 

0 

4 

AT, BE, BG, CY, EL, ES, FR, HR, HU, 
IS, LT, NL, NO, PL, RO, SE, SI 

AT, BG, CZ, DE, DK, EE, ES, FI, FR, 
HR, HU, LU, NL, NO, PL, SE, SI 

AT, BG, CZ, DE, FR, SI, SK 

BE, CY, DK, EE, IE, LU, NO, SE 

 - 

AT, CZ, DE, RO 

Ensuring that selling of emission allowances is 
prohibited in the case of irregularities 

12 

AT, CY, CZ, DE, EE, FI, HR, IS, LU, 
NO, RO, SE 

Imprisonment possible? 

6 

CY, DK, IE, LU, NO, SE 

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Table 4.6. Excess emissions penalties in the EU ETS in 20216. 

Penalty 

Countries 

Number of operators and country 

Imposition of excess 
emission penalties to 
installation 

Imposition of excess 
emission penalties to 
aircraft operators 

8 

4 

29 

CZ(2), DE(1), DK(1), ES(4), HR(1), HU(9), PL(1), RO(10) 

9 

BE(1), DE(3), ES(4), IE(1) 

5 The maximum number of countries is 30 because Liechtenstein did not have any active operators in 2021. 
6 The maximum number of countries is 30 because Liechtenstein did not have any active operators in 2021. 

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