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DRAFT Belgian National Allocation Plan for CO 2 -emission allowances
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1 DRAFT Belgian National Allocation Plan for CO 2 -emission allowances September 2006 plan submitted to the European Commission
2 Federal government contact: Peter Wittoeck, head of Climate Change division Federal Public Service of Public Health, Food Chain Safety and Environment Directorate General for Environment Place Victor Horta 40, box 10 B-1060 Brussels Tel: + 32 (0) Fax: + 32 (0) Flemish government contact Bob Nieuwejaers, head of Air and Climate Services Flemish government Environment, Nature and Energy Department Air, Nuisance, Risk Management, Environment and Health Division Air and Climate Services Koning Albert II-laan 20, bus 8 B-1000 Brussel Tel: + 32 (0) Fax: +32 (0) Walloon government contact Stéphane Cools, climate policy advisor Ministry of Walloon Region Directorate General for Natural Resources and for Environment Air Unit Avenue Prince de Liège 15 B-5100 Jambes Tel: +32 (0) Fax: +32 (0) Brussels government contact Sophie Vanhomwegen L administration de l environnement et de l énergie IBGE Gulledelle 100 B-1200 Bruxelles Tel : +32 (0) Fax : +32 (0)
3 Index INDEX INTRODUCTION FEDERAL CONTEXT NATIONAL CLIMATE PLAN AND COOPERATION AGREEMENT IMPLEMENTATION OF DIRECTIVE 2003/87/EC BELGIUM S REDUCTION TARGET AND NATIONAL BURDEN SHARING EXECUTIVE SUMMARY OF BELGIAN NATIONAL ALLOCATION PLAN RESULTS OF BELGIAN CLIMATE ACTION PLANS USE OF FLEXIBLE MECHANISMS TOTAL AMOUNT OF ALLOWANCES TO BE ALLOCATED FOR THE PERIOD IN BELGIUM RESERVE FOR NEW ENTRANTS IN BELGIUM AUCTIONING IMPLEMENTATION OF THE LINKING DIRECTIVE TREATMENT OF NEW ENTRANTS AND CLOSURES OPT-IN EXPLANATIONS TO MOST RELEVANT BELGIAN NAP-TABLES INTRODUCTION TARGET CALCULATION (TABLE I) EXPECTED EVOLUTION OF CARBON INTENSITY IN BELGIUM (TABLE IIA) RECENT AND PROJECTED GHG-EMISSIONS (TABLE III) RECENT AND PROJECTED CO 2 -EMISSIONS IN EU ETS SECTORS (TABLE IV) PROPOSED ALLOCATION IN RELATION TO FIRST PERIOD ALLOCATION IN EU ETS SECTORS (TABLE V) 18 LIST OF APPENDICES:
4 1. INTRODUCTION Belgium is firmly committed to combating global warming. This commitment was first put into practice with the signature (1992) and ratification (1996) of the United Nations Framework Convention on Climate Change, followed by ratification of the Kyoto Protocol (2002). Bound to its European Union partners by the agreement on joint fulfilment of the Kyoto commitments (1998), Belgium intends to implement all measures necessary to ensure that it achieves its commitments under the Kyoto Protocol. The country has taken several important steps in that direction in the past few years. A cooperation agreement adopted in 2002 formalised cooperation between the federal state and the three regions with a view to ensuring optimal integration of the policies of the different authorities and guaranteeing a coherent and ambitious National Climate Plan. The cooperation agreement also resulted in the setting up of the different structures such as the National Climate Change Commission needed for implementing the Kyoto Protocol and for sharing data and reporting information to European and international bodies. The internal burden sharing agreement (2004) between the federal and regional governments constituted an important step forward, establishing differentiated targets and a clear framework for the responsibilities of the different federated entities. Belgium moved further down the road to meeting its Kyoto target with the development of its National Allocation Plan in accordance with the European Emission Allowance Trading Directive (2003/87/EC). The emission trading system became operational in Belgium in 2005 with the creation of a national registry. It constitutes a key instrument that will be used to help energy-intensive sectors improve their energy efficiency while optimising costs. The climate policies implemented by the regional and federal authorities have also evolved appreciably in recent years. The structures necessary for the use of the Kyoto project-based mechanisms are being put into place. The federal state and the three regions have already set their objectives and have initiated and are financing Clean Development Mechanism and Joint Implementation projects. With these projects, complementing a range of policies and measures implemented recently by the regional and federal authorities, Belgium will enter confidently into the first commitment period of the Kyoto Protocol Federal context In the federal system of Belgium, climate policy is elaborated at different levels of government, in accordance with the division of power between the federal state and the regions. Each of these authorities defines its own priorities for environmental and climate policy, and implements the relevant actions. Another important driver of the Belgian climate policy is the relationship between domestic and European Union legislation in the field of climate change. In this regard, the different regulations, directives and decisions established within the framework of the European Climate Change Programme (ECCP) constitute the context of climate policy in Belgium. The coherence of the national climate policy is ensured through co-ordination bodies, which have been established in order to harmonise and create synergy between the federal and regional policies. 4
5 1.2. National climate plan and Cooperation agreement In its decision of 6 March 2002, the Interministerial Conference for the Environment approved the National Climate Plan This plan was developed jointly by the federal government and the regions. It is meant to enable Belgium to fulfil its commitments under the UNFCCC and the Kyoto Protocol. The plan is based on the integration of the policies and measures implemented by the different authorities, in relation with their respective competences, within the federal framework of Belgium. The 'Cooperation Agreement for the implementation of a National Climate Plan and reporting in the context of the UNFCCC and the Kyoto protocol', adopted on 14 November 2002, concerns implementation and follow-up of the National Climate Plan and the establishment of reports in the context of the UNFCCC, the KP and the decision for a Monitoring Mechanism (Decision 280/2004/EC), with the ultimate goal being to reduce emissions of CO 2 and other greenhouse gases. To implement this Cooperation Agreement, the 'National Climate Commission'was formally put into place on 5 December This Commission is an essential instrument for implementation of the Kyoto Protocol in Belgium. It has a key role in assessing and monitoring the national climate policy and the institutional setting-up of the flexible mechanisms. The National Climate Commission is composed of representatives of the federal and regional governments Implementation of Directive 2003/87/EC With regard to the transposition of Directive 2003/87/EC of the European Parliament and of the Council of 13 October 2003 establishing a scheme for greenhouse gas emission allowance trading within the Community and amending Council Directive 96/61/EC, and given the division of powers in Belgium, the regional authorities are competent for allocations to the installations under the ETS Directive and the drafting of an allocation plan for installations on their territories. Belgium has developed its first National Allocation Plan ( ), which was adopted by the European Commission on 20 October A cooperation agreement relating to the organisation and administrative management of the national registry for greenhouse gases, negotiated within the National Climate Commission, was adopted in September 2005 and resulted in the launching of a fully operational GHG emissions registry on 17 November For the first commitment period of the Kyoto Protocol each region has developed a new allocation plan. These plans can be found attached to this Belgian allocation plan. The Belgian plan gives a summary of the content of the regional allocation plans. It contains information on the Belgian Kyoto target and the way it will be achieved by internal measures, the EU ETS and the use of flexible mechanisms under the Kyoto protocol. The Belgian plan presents the total allocation for the period and how this total can be compared with the allocation for the period For a detailed description of the allocation methods and other technical details we refer to the regional allocation plans. 5
6 1.4. Belgium s reduction target and national burden sharing In perspective of the European burden sharing agreement 1, with regard to the fulfilment of the Kyoto Protocol, the Belgian reduction objective for the emissions of greenhouse gases was set at 7,5 % below the emissions of This reduction objective must be complied with in the period This means that Belgium has an average yearly Kyoto target of 135,874 Mt CO 2-eq in the period In the Consultation Committee between the community and regional governments of 8 March 2004, a burden sharing agreement was reached between the Federal Government and the Regions on this reduction objective. Table 1 shows the amount of allowances which must be submitted on average every year during this period. (Mton CO 2-eq.) 1990 emissions annual average quantity of allowances corresponds to x% compared to CO 2-eq. emissions in 1990 Flemish Region 88,013 83,436-5,2 % Walloon Region 54,793 50,683-7,5 % Brussels Capital Region 4,085 4,227 +3,375 % Federal government - -2,473 - Total BELGIUM 146, ,874-7,5 % Table 1: The national burden sharing agreement With this national burden sharing agreement, more allowances 3 are assigned to the three Regions than Belgium is assigned under the Kyoto Protocol. In order to compensate for the deficit (estimated, according to the figures in the inventory at the time that the agreement was concluded, at 2,46 Mton CO 2 -eq. per year for the period ) 4, it was agreed that the Federal Government shall obtain additional allowances as a result of the use of flexible mechanisms under the Kyoto Protocol (see chapter 2.2). Pursuant to this agreement, the federal Government will also take internal federal policy measures to support the reduction efforts of the Regions. The Council of Ministers of March 2004 approved a set of measures to reduce greenhouse gas emissions. As a whole, this set of measures should guarantee a reduction in national greenhouse gas emissions of 4,8 Mt CO 2 eq. per year for the period , which will benefit the Regions. Within the National Climate Commission there will be each year (starting from 2005) an evaluation whether the implementation of the measures from the federal government are in accordance with the ex ante estimation. The agreement also provides that the Regions can determine the Council Decision 2002/358/EC of 25 April 2002 concerning the approval, on behalf of the European Community, of the Kyoto Protocol to the United Nations Framework Convention on Climate Change and the joint fulfilment of commitments thereunder. The greenhouse gas emissions in Belgium in 1990 are multiplied by five for this purpose, after which a reduction percentage of 7,5% is applied. This calculation results in the Assigned Amount for Belgium for the first commitment period The Assigned Amount is the total amount of allowances which a country with a reduction objective is assigned under the Kyoto Protocol. By allowances we mean AAUs (= Assigned Amount Units). Later detailed to tons of CO 2-eq. 6
7 extent to which and the way in which they introduce flexible mechanisms in order to obtain additional allowances. 7
8 2. Executive summary of Belgian National Allocation Plan 2.1. Results of Belgian climate action plans Table 2 projects the results from the regional and federal climate action plans. For a detailed survey of the measures proposed in these action plans we refer to the regional allocation plans. The emissions with climate change policy ( ) take into account the allocation of emission allowances and the additional measures planned. (in Mton CO 2-eq) Average without climate policy Average with climate policy Average reduction Percentage of average emissions without climate policy Percentage of average reduction Electricity production 21,5 13,2 8,4 12,97% 33,87% Industry 67,8 61,4 6,4 40,89% 25,81% Buildings 33,7 29,7 4,0 20,33% 16,13% Transport 28,7 23,8 5,0 17,31% 20,16% Agriculture 14,1 13,1 1,1 8,50% 4,44% Total 165,8 141,0 24,8 100,00% 100,00% Table 2: The results of Belgian climate action plans Under the burden sharing agreement the Kyoto target for the Belgian regions equals to an average of 135,87 Mton CO 2 per annum in the period The projected average Belgian emissions for the period , including EU ETS allocation and additional policies and measures, will be 141 Mton CO 2 eq. This is a reduction of 4% with regard to the 1990 emissions (146,88 Mton CO 2 eq) and a reduction of 15% compared to average emissions without climate policy. To achieve the Kyoto target of 7,5% reduction compared to the 1990 emissions (i.e. a target of 135,87 Mton CO 2 ), 5,2 Mton CO 2 still has to be reduced. This deficit will be resolved by the use of flexible mechanisms. Figure 1 demonstrates how the reductions in each sector contribute to the Belgian Kyoto target. This shows clearly that the use of flexible mechanisms is supplementary to internal measures (83% of the Kyoto target will be achieved by internal reduction measures, 17% by using flexible mechanisms). 8
9 Sectoral contribution towards Kyoto target Electricity production 4% 17% 28% Industry (incl. waste) Residential, commercial & institutional Transport Agriculture (incl. energy use) Flexmech needed for Kyoto target 17% 13% 21% Figure 1: Sectoral contribution of efforts towards Kyoto target 2.2. Use of flexible mechanisms The Federal government and the regions will use the flexible mechanisms under the Kyoto protocol to achieve their separate and the overall Belgian Kyoto target. The Federal government and the regions will purchase a total of 35,21 Mton CO 2 eq CERs, ERU s or AAU s in period This means an average of 7,04 Mton CO 2 eq per annum. This amount will be more than sufficient to achieve the Belgian Kyoto target. By providing a larger amount of CERs, ERUs or AAUs than necessary for achieving the Kyoto target, the Federal government and the regions have built in a safety margin in case internal measures do not achieve the expected reductions by Another contingency measure to realise the planned purchases in time, is the use of a lower number than the maximum potential of Kyoto credits per project in the purchase agreements. Concerning the type of Kyoto units, the tenders and the participations in carbon funds are oriented to a sufficient flexible mix taking in consideration quality guarantees and price levels. In May 2005, the federal government launched its first JI/CDM tender for the purchase of emission reductions from JI and CDM projects, with an initial budget of 9.3 million. The Call for Expressions of Interest (first phase of the tender) was open from May until September 2005 and 36 projects were received from countries in Asia, Africa, South America, Europe and Russia. In November 2005, the candidates selected during the first phase were invited to submit a full proposal by March The projects selected during the second phase will be invited to engage in negotiations with the federal government and to sign an ERPA (Emission Reduction Purchase Agreement), which constitutes a formal undertaking by the project participants to sell the emission reductions to Belgium. Moreover, the federal government approved an additional budget of 50 million euros for new initiatives for acquiring Emission Reductions from JI and CDM projects. A second tender is planned for the autumn of The modalities of this second tender are expected to be approved soon. The federal government's objective is to buy 12.3 million worth of emission allowances for the period As a financing source, the Kyoto-fund has been established with a yearly structural cash flow injection of approximately 25 million euros, cumulating to 71,9 million euros until In the new second Flemish Climate Policy Plan , the remaining reduction effort towards the Kyoto target has been estimated at 21,4 Mton CO 2 -eq for the period
10 On July 20, 2006 the Flemish government decided that based on the above estimation and the timely execution of internal reduction measures, that amount of 21,4 Mton CO 2 eq external emission credits will be purchased. The government has also approved the principle to provide annually extra financial means in its budget to achieve a gradual purchase of the needed emission credits. This annual budgeting will take into account the price evolution of CERs, ERUs and AAUs. To maximise the positive side effects of internal measures, the purchase of external emission credits will be streamlined with the budgeted cost for those internal measures and the realised reductions. In 2005, the Government of Flanders allocated a first tranche of 22 million euros. In the budget control of 2006, an additional 15 million euros was provided. Investments are used for the first Flemish tender and for participations in international climate funds. Depending on the remaining gap for the emission reduction objective, extra funds will be provided for the necessary funding in accordance with the commitment of the Government of Flanders in the Flemish Allocation plan for CO 2 -emission allowances To fulfil the regional commitment, the Walloon Government has decided in December 2004 to participate to the Worldbank CDCF (Community Development Carbon Fund) for 5 millions of US$. A first tranche of 2 millions of US$ was already transfer to the Worldbank. A second tranche of 2 millions US$ will be paid by the end of 2006 and 1 millions euros is planned into the Regional budget for 2007 to totally finalize the payment. The Walloon Government considers that this participation will create +/ CER/a for this first commitment period. The Brussels Government has decided in November 2004 to participate to the World Bank CDCF for 9,5 millions of US$. The Brussels Government considers that this participation will create +/ CER/a for the first commitment period. The above information is summarised in table 3. Belgian NAP table VII A Total ,21 Planned purchase B Annual average 7,04 C Quantity of units already paid for 0,20 D Quantity of units contracted, but yet unpaid 0,58 E Neither bought nor contracted by date of notification (A - C - D) 34,43 F Full budget appropriated to first commitment Currently available for 2006 (M EUR) 49,00 period ( ) G Committed for the future (M EUR) 90,58 H Implied future price M EUR/Mt CO 2-eq ((F+G)/E) 4,05 Table 3: Belgian NAP-table VII on Government s planned use of Kyoto units 2.3. Total amount of allowances to be allocated for the period in Belgium The total amount of emission allowances which will be allocated to Belgian ET-installations in the period is the sum of the emission allowances allocated to industrial ETinstallations, the emission allowances allocated to the ET-installations for energy production and the emission allowances provided for in the reserve for new entrants Total 10
11 The average allocation per year in the period for ET-installations is given in Table 3 below, as well as the total allocation for this period. As stated in tables 4, 5 and 6, the total Belgian allocation for the period equals 315,7 Mton CO 2. The reduction due to EU ETS in the Belgian EU ETS installations will account for 8,24 Mton CO 2 on average annually in the period towards the Belgian Kyoto target compared to a business as usual projection. This reduction contributes 27% to the total Belgian reduction effort for achieving the Kyoto target in the period (Mtons of CO 2 ) Average per year in the period Total for the whole period Total allocation for ET-installations 63,14 315,7 Table 4: Proposed average and total allocation to ET-installations in Belgium in the period Average emissions without climate policy (Mton CO 2 -eq) Percentage of total Belgian average emissions (%) ET-installations 71,38 43,05% Table 5: Average BAU annual emissions of ET-installations in the period Average annual allocation (Mton CO 2 -eq) Average annual reduction effort (Mton CO 2 -eq) Average annual reduction effort as percentage of total Belgian internal reduction measures (%) ET-installations 63,14 8,24 33,23% Table 6: Average annual allocation, reduction effort compared to total reduction measures and Belgian Kyoto target The total Belgian allocation in the period was 62,08 Mton CO 2 on average. However, this allocation cannot be compared with the allocation for the period In Flanders a significant expansion of the scope of the directive compared to the period, has been proposed. This extension of the scope implied an extra allocation of 5,28 Mton CO 2 annually. To correctly compare and 08-12, the allocation for the period is in Table 7 recalculated. In this way, the scope of application for the period corresponds to that in (Mtons of CO 2 ) Comparable total allocation to ETinstallations Average per year in the period Total for the whole period ,36 202,11 Table 7: Comparable average and total allocation to ET-installations in Belgium in the period Compared with the extended scope for the period the total Belgian cap for the period will be 4,22 Mton CO 2 less per annum. This significant reduction implies that there will be 6% less allowances allocated annually in the period than the comparable allocation for
12 2.4. Reserve for new entrants in Belgium The reserve for new entrants in the period will be an average of 5,00 Mton CO 2 annually. The reserve accounts for 7,9% of the average annual total allocation in the period This reserve not only takes into account new entrants for the period but also new entrants that will arise after the NAPII has been submitted to the Commission (i.e. new entrants between September 2006 and January 2008). This has a cumulating effect. The reserve therefore takes into account all new entrants for the coming 6 years and a half. The estimation of the reserve was based on a survey of planned investments within the industry and energy production. This survey aimed to identify the new entrants that were most likely to arise after december Several criteria were applied to identify these new entrants: -has there been a demand of (change in) permit; -was a new permit already allocated to the new entrant; -is the new installation being constructed; -the estimated start of operation at the new entrant; Based on these criteria the estimated reserve from this survey was corrected downwards to account for planned investments that will be delayed or cancelled at a later date. A significant part of these planned investments are already being built or contracted. Therefore the reserve represents a realistic image of the economic growth in the industrial sectors Auctioning The European regulations allow for the auction for part of the emission allowances for the trading period However, at least 90% of the total number of emission allowances to be allocated must be made available during this trading period free of charge. It is necessary to take into account the fact that the auction of emission allowances as a method of allocation can increase in importance during the trading periods after By organizing auctions now, the Flemish Region can acquire the necessary expertise in this. In Belgium only the Flemish region will use auctioning in the period Flanders will auction 922 kton of emission allowances during the trading period in one or several sessions. This corresponds to 0,29% of the total Belgian allocation for the period Emission allowances in the reserve for new entrants which were not allocated can also be auctioned. The income that is generated can be used as a lever in the context of the climate policy, particularly for the acquisition of additional emission allowances, by making use of the flexible mechanisms. This will also contribute to achieving the emission reduction target for greenhouse gases in in due time, without disrupting competition for those activities which are subject to international competition. 12
13 2.6. Implementation of the linking directive From the trading period , CERs and ERUs will be allowed as a valid submission by ET-installations in addition to the EUAs. The amendments to the ET-directive via the Linking Directive require that for the period and trading periods after this, the member states establish a limit for the submission of CERs and ERUs by ET-installations. According to point 12 of Appendix III of the ET-directive amended via the Linking Directive, this limit must have the form of a percentage of the total number of emission allowances which was allocated to the ET-installations for the trading period concerned and must be specified in the allocation plan. As there were no provisions on this in the amended ETdirective, this limit can be differentiated per business or per sector. Furthermore, the limit applies for the entire trading period, not per year. Therefore, if required a company can submit the entire number of CERs or ERUs specified for it in a single year up to the limit that was established. The Linking Directive contains virtually no guidelines for establishing this limit. It merely states that the limit must be in accordance with the supplementary principle. The Belgian regions use different caps on the amount of CERs and ERUs that can be used by EU ETS installations, taking in consideration the related elements of the specific regional climate and energy policies. Therefore we refer to the regional allocation plans for specific numbers and motivations on the implementation of the linking directive Treatment of new entrants and closures The treatment of new entrants and closures differentiates (slightly) between the regions. Therefore we refer to the regional allocation plans and NAP table VIII for a survey of the treatment of new entrants and closures in Belgium Opt-in Article 24 of the ET-directive allows for unilateral inclusion of additional activities, installations and gases into the scheme (opt in). The Flemish region and the Brussels region will not include additional activities or gases into the scheme as from The Walloon region is analysing the opportunity to include N2O-emissions of nitric acid production into the scheme. If this analysis would result in a formal Belgian request for an unilateral inclusion of N20- emissions, than this request will not apply to similar installations that participate in a voluntary agreement with a regional authority, which aims to achieve comparable reductions based on BAT. 13
14 3. Explanations to most relevant Belgian NAP-tables 3.1. Introduction Full NAP-tables can be found in Appendix II of this Belgian National Allocation Plan In the chapters below the most relevant tables are commented Target calculation (Table I) Row Data table no. Emissions (Mt CO 2 -eq) A Target under Kyoto Protocol or Burden Sharing Agreement (avg. annual GHG emissions ) 135,87 B III Total GHG emissions 2003 (excluding LULUCF emissions and removals) 147,28 C Difference (row A - row B) (negative means need to reduce) -11,40 D III Av. annual projected total GHG emissions ('with measures'projection) 151,15 E Difference (row A - row D) (negative means need to reduce) -15,28 Reduction measures (where relevant) F V EU emissions trading scheme [1], [2] -8,24 G VI Additional policies and measures (other than emissions trading), including LULUCF -1,55 H VII Government purchase of Kyoto mechanisms -7,04 I Total reduction measures (row F + row G + row H) -16,82 Table I demonstrates Belgium s intentions in achieving the Kyoto target of 135,87 Mton CO 2 - eq. This table proves that Belgian climate policy aiming at achieving the Kyoto target is a balanced mix of: 1. GHG-reductions by measures in non EU ETS-sectors, resulting in: a. average projected total GHG-emissions in the period of 151,15 Mton CO 2 - eq, due to ambitious climate policy measures aimed at reducing GHG in transport, households, agriculture, (see chapter 2.1); b. Without taking into account the reductions by the EU ETS, additional policies and measures and government purchase of Kyoto mechanisms, 15,28 Mtons of CO 2 -eq. remains to be reduced. 2. GHG-reductions by an ambitious allocation of allowances for the period , resulting in: a. a reduction of 4,22 Mton CO 2 or 6% annually compared to the comparable cap for the period (see chapter 2.3); b. a reduction of 8,24 Mton CO 2 annually compared to projected CO 2 -emissions in EU ETS sectors; 3. the government purchase of Kyoto mechanisms, resulting in an intended purchase of Kyoto mechanisms by governments of 7,04 Mtons of CO 2 -eq. With all climate policy in place and the proposed allocation approved, Belgium will thus reduce 16,82 Mton CO 2 -eq via EU ETS, additional measures and government purchase 14
15 of Kyoto-mechanisms, leaving a safety margin of 1,54 Mton. By providing this margin via a larger amount of government purchase of CER s, ERU s or AAU s than necessary for achieving the Kyoto target, the Federal government and the regions have built in a margin of error in case internal measures do not achieve the expected reductions by Expected evolution of carbon intensity in Belgium (Table IIa) Real GDP CO 2 -emissions Carbon intensity Absolute (in billion 2000) Trend (2003=100) Absolute (in Mt of CO 2) Trend (2003=100) Absolute (in Mt of CO 2/billion 2000) Trend (2003=100) ,8 96,6 100,0 102,6 121, ,8 97,6 100,0 99,9 97,8 0,60 0,49 0,49 0,47 0,39 122,1 101,1 100,0 97,4 80,7 Evolution of carbon intensity in Belgium Index Real GDP CO2 emissions Carbon intensity Year Between 1990 and 2003 there was a 6,2% rise in CO 2 emissions. Between 2003 and 2012 the CO 2 emissions will descend to 97,8 Mtons, a reduction of 2,2% compared to The Belgian GDP rose 23,2 points between 1990 and The projections for the GDP between 2003 and 2012 indicate a growth of 16,1%. In 1990 the Belgian carbon intensity was 122,1 compared tot the 2003 index of 100. Resulting from existing and planned climate policy measures in Belgium, the carbon intensity will continue to descend to an index of 80,7 in
16 Annual GDP change (%) Annual carbon intensity improvement (%) Combined net effect on annual emissions trend (%) Actual development 1990 to 2000 (1 st phase) Belgium 2,32 1,87 0,45 Estimated development 2000 to 2010 (2 nd phase) Belgium 1,84 1,74 0,10 The combined net effect on annual emissions trend in the first phase (1990 to 2000) was 0,45%. To respect the Kyoto target, Belgium will lower its annual emissions trend as demanded by criterion 1 of the EC Directive and due to a balanced mix of lowering the allocation for the second phase , implementation of measures in the non-trading sector to 0,10% in the second phase (2000 to 2010). Belgium and Flanders have a relatively high carbon intensity per unit of GDP compared to the European average. This high intensity cannot be explained by structural differences at the level of main economic sectors (i.e. services, agriculture and industry). Instead, the main explanation for the high carbon intensity can be found in the structure of the industrial sector, i.e. the mix of industrial activities (production and export) in Flanders has a high share of specifically energy and carbon intensive industries. The energy and carbon intensive industries (iron and steel, chemicals, pulp and paper and refineries) in Belgium have a much higher share in industrial value added (40% compared to 30% for the EU-15 average), industrial energy use (75% compared to 65% in the EU-15) and industrial CO2 emissions (80% compared to 65% in the EU-15). Moreover, within the chemical industry, activities concentrate in the energy-intensive segments (e.g. petrochemicals, fertilizers) Recent and projected GHG-emissions (table III) (emissions in Mton CO 2-eq) Avg. annual projected emissions A GHG 18,23 18,53 20,96 Energy generation B CO2 in ETS 17,91 18,18 20,38 C Transport GHG 25,73 26,47 23,87 D Commercial and institutional, Residential, GHG 32,70 32,16 31,53 E and Agricultural energy use CO2 in ETS 0,04 0,04 0,02 F GHG 57,18 56,51 62,99 Industrial processes G CO2 in ETS 40,31 39,95 50,98 I Agriculture GHG 11,49 11,36 10,35 J Land-Use Change and Forestry GHG 0,00 0,00 0,00 K Waste GHG 1,60 1,51 1,10 L GHG 0,35 0,35 0,34 All other sectors M CO2 in ETS 0,00 0,00 0,00 N Total (A+C+D+F+I+J+K+L) GHG 147,28 146,88 151,15 O Total in ETS (B+E+G+M) CO2 in ETS 58,26 58,16 71,38 In this table (derived from the full NAP-table III in Appendix II), the average annual projected GHG-emissions are indicated. The table takes into account all climate policy 5 Report: International comparison Flemish industry, Ecofys-3 E,
17 measures for non-ets sectors, and stipulates projected emissions without ETS for ETSsectors. This table proves that considerable absolute reduction efforts are being made for reducing GHG-emissions in non-ets sectors: GHG-emissions from transport, commercial and institutional/residential, agriculture and waste will be significantly lower in than in Emissions of energy generation and industry are in this table higher than because the table does not take into account reductions generated from EU ETS Recent and projected CO 2 -emissions in EU ETS sectors (table IV) (emissions in Mt CO 2eq) combustion installations total (excluding installations covered under rows B-J) 2005 (extended scope) Average annual projected emissions ,09 25,20 24,18 28,62 34,69 A Electricity (with CHP if permitholder = electricity company) 17,61 17,87 17,30 17,30 20,11 Chemical (incl. crackers) 4,68 4,50 4,36 8,19 10,34 Others 2,81 2,83 2,52 3,13 4,24 B mineral oil refineries 6,31 5,94 5,58 6,34 7,73 C coke ovens (included in D) 0,00 0,00 0,00 0,00 0,00 D metal ore roasting, sintering, pig iron and steel producing installations (incl. integrated steelworks, steel autoproduction) 16,30 16,31 14,89 14,89 16,23 E cement producing installations 4,65 4,57 4,86 4,86 5,59 F lime producing installations 3,22 3,40 3,11 3,11 3,52 G glass and glass fibre producing installations 1,31 1,31 1,36 1,36 1,66 H ceramics producing installations 0,58 0,61 0,64 0,69 0,88 I pulp, paper and board producing installations 0,81 0,80 0,74 0,74 1,09 J Total (Rows A and B to I) 58,26 58,15 55,35 60,61 71,38 K Share of EU ETS CO 2 in total GHG emissions (%) (Row J / Row N in table III ) 39,5% 39, 6% n.a. n.a. 47,2% In this table (derived from the full NAP-Table IV in Appendix II), the average annual projected GHG-emissions are indicated for installations falling under the ETS. The apparent rise in emissions compared to actual emissions is not unexpected, since it has several reasons: 1. as requested by the EC, for the years only CO 2 -emissions from companies falling under the scope of the Belgian National Allocation Plan CO 2 - emission allowances are taken into consideration; 2. the emissions (thus contrary to the emissions ) take into account the very relevant extension of the scope of the EU ETS in the Flemish region (explaining app. 5 Mton of the difference between 2005 and ). The estimated corrected emissions for the extended scope in 2005 are represented in the table above; 3. the emissions are projected emissions, not taking into account climate policy measures (such as EU ETS); 17
18 3.6. Proposed allocation in relation to first period allocation in EU ETS sectors (table V) (emissions in Mt CO 2eq) combustion installations total (excluding installations covered under rows B-J) Comparable annual allocation Proposed average annual allocation in Proposed ETS allocation as a % of comparable first period ETS allocation 25,09 25,20 26,32 23,08 88% A Electricity (with CHP if permitholder = electricity company) 17,61 17,87 13,90 10,73 77% Chemical (incl. crackers) 4,68 4,50 8,90 8,62 97% Others 2,81 2,83 3,51 3,73 106% B mineral oil refineries 6,31 5,94 7,35 6,99 95% C coke ovens (included in D) 0,00 0,00 0,00 0,00 n.a. D metal ore roasting, sintering, pig iron and steel producing installations (incl. integrated steelworks, steel autoproduction) 16,30 16,31 18,78 15,84 84% E cement producing installations 4,65 4,57 5,52 5,45 99% F lime producing installations 3,22 3,40 3,68 3,51 96% G glass and glass fibre producing installations 1,31 1,31 1,40 1,58 113% H ceramics producing installations 0,58 0,61 0,77 0,85 110% I pulp, paper and board producing installations 0,81 0,80 0,95 0,84 88% J reserve for new entrants 2,61 5,00 192% K Total 58,26 58,15 67,37 63,14 94% In this table (derived from the full NAP-Table V in Appendix II), the proposed average annual allocation in is compared to the average annual allocation This comparison generates meaningless data when the extension of scope in the Flemish Region is not taken into account. Therefore the annual allocation was recalculated, to make sure that the same companies/installations can be compared. This table shows that: 1. compared to emissions without ETS (see Table IV), Belgium will reduce 8,24 Mton of CO 2 -eq. (71,38 Mton 63,14 Mton) (this figure is also shown in Table I); 2. compared to the average comparable annual allocation , Belgium will reduce 4,23 Mton of CO 2 -eq. (67,37 Mton 63,14 Mton), which is a 6% lower comparable allocation The growth in the reserve is due to the fact that the reserve not only takes into account new entrants for the period but also new entrants that will arise after the NAPII has been submitted to the Commission (i.e. new entrants between September 2006 and January 2008). This has a cumulating effect on the reserve. The reserve therefore takes into account all new entrants for the coming 6 years and a half. 18
20 List of Appendices: Appendix I: allocation Plan CO 2 -emission allowances of the Flemish Region Appendix II: allocation Plan CO 2 -emission allowances of the Brussels Capital Region Appendix III: allocation Plan CO 2 -emission allowances of the Walloon Region Appendix IV: list of installations and provisional allocation per installation for the period Appendix V: Belgian NAP-tables 20
21 APPENDIX I: Flemish allocation plan
22 ONTWERP VAN VLAAMS TOEWIJZINGSPLAN CO 2 -EMISSIERECHTEN goedgekeurd door de Vlaamse regering op do. 20 juli
23 Inhoudstafel INHOUDSTAFEL INLEIDING DE EUROPESE RICHTLIJN INZAKE DE HANDEL IN EMISSIERECHTEN DE PROCEDURE TOT GOEDKEURING VAN HET VLAAMS TOEWIJZINGSPLAN RELEVANTE VLAAMSE REGELGEVING HET REG-DECREET HET BESLUIT INZAKE DE VERHANDELBARE EMISSIERECHTEN VOOR BROEIKASGASSEN EN DE WIJZIGINGEN AAN VLAREM I EN II HET VLAAMSE BENCHMARKINGCONVENANT EN HET BESLUIT ENERGIEPLANNING VOOR ENERGIE- INTENSIEVE INRICHTINGEN Het benchmarkingconvenant Het besluit energieplanning voor energie-intensieve inrichtingen DE VERGUNNING VOOR HET UITSTOTEN VAN CO 2 -EMISSIES HET VLAAMS KLIMAATBELEID KYOTODOELSTELLING RESULTATEN VLAAMS KLIMAATBELEIDSPLAN Inleiding Maatregelen uit het Vlaams klimaatbeleidsplan Resultaten Vlaams Klimaatbeleidsplan INZET VAN FLEXIBILITEITSMECHANISMEN DOOR HET VLAAMSE GEWEST Beleidskader Doelstelling en budget Diverse kanalen DE BEPALING VAN VAN HET TOTAAL AANTAL TOE TE WIJZEN EMISSIERECHTEN VOOR DE PERIODE INLEIDING HET TOEPASSINGSGEBIED VAN DE VER-RICHTLIJN IN HET VLAAMSE GEWEST BEPALING VAN HET TOTAAL AANTAL TOEGEWEZEN EMISSIERECHTEN AAN INDUSTRIËLE BKG- INRICHTINGEN Inleiding Evolutie van de CO 2 -emissies in de industriële BKG-inrichtingen zonder beleid Totaal aantal toegewezen emissierechten voor industriële BKG-inrichtingen BEPALING VAN HET TOTAAL AANTAL TOEGEWEZEN EMISSIERECHTEN AAN BKG-INRICHTINGEN VOOR ENERGIEPRODUCTIE Inleiding Evolutiescenario voor de energieproductie Totaal aantal toegewezen emissierechten voor BKG-inrichtingen uit de energieproductie VERGELIJKING MET DE TOTALE TOEWIJZING VOOR DE PERIODE INZET VAN FLEXIBILITEITSMECHANISMEN DOOR DE VLAAMSE BKG-INRICHTINGEN: HET LIMIETPERCENTAGE UIT DE LINKING DIRECTIVE BEPALING VAN DE TOEWIJZING VAN EMISSIERECHTEN OP INSTALLATIENIVEAU INLEIDING TOEWIJZINGSREGELS VOOR INDUSTRIËLE BKG-INRICHTINGEN Inleiding De rekenregels voor bedrijven die toegetreden zijn tot het benchmarking-convenant De toewijzing voor industriële BKG-inrichtingen die niet tot het benchmarkingconvenant zijn toegetreden Correctie van referentie-emissies op basis van gerapporteerde emissies De toewijzing voor bedrijven uit de tertiaire sector De toewijzing voor elektriciteitsproductie uit afgassen
24 Verrekeningsmechanisme in het toewijzingsplan TOEWIJZINGSREGELS VOOR BKG-INRICHTINGEN IN DE ENERGIEPRODUCTIESECTOR Inleiding De toewijzing voor klassieke elektriciteitsproductietechnologieën De toewijzing voor WKK-installaties NIEUWKOMERS DEFINITIE VAN NIEUWKOMERS VOOR DE PERIODE VERBAND TUSSEN NIEUWKOMERS EN BESTAANDE BKG-INRICHTINGEN TIJDSTIP VAN TOEWIJZING EN VERLENING VAN EMISSIERECHTEN TOEWIJZINGSMETHODE VOOR NIEUWKOMERS RESERVATIE VAN EMISSIERECHTEN BINNEN DE TOEWIJZINGSRESERVE SLUITINGEN INLEIDING VERSCHILLENDE VORMEN VAN SLUITINGEN MELDINGSPLICHT INZAKE SLUITINGEN VAN EEN BKG-INRICHTING GEVOLGEN VAN SLUITINGEN OP HET VERLENEN VAN EMISSIERECHTEN GEVOLGEN VAN SLUITINGEN OP HET CO 2 -EMISSIEJAARRAPPORT EN HET INLEVEREN VAN EMISSIERECHTEN VEILEN VAN EMISSIERECHTEN DE OPNAME VAN NIET CO 2 -GASSEN EN/OF NIET VER-SECTOREN IN DE EMISSIEHANDEL (OPT-IN) BANKING EN BORROWING VAN EMISSIERECHTEN INLEIDING BANKING VAN EMISSIERECHTEN BORROWING VAN EMISSIERECHTEN PUBLIEKSCONSULTATIES DOELGROEPENOVERLEG MET INDUSTRIE, MILIEUBEWEGING EN VAKBONDEN EERSTE PUBLIEKSCONSULTATIE TWEEDE PUBLIEKSCONSULTATIE BIJLAGE I: LIJST VAN BEDRIJVEN ALSMEDE HET VOORSTEL WAT BETREFT JAARLIJKS TE VERLENEN EMISSIERECHTEN BIJLAGE II: BEDRIJVEN DIE VIA HANTEREN VAN AGGREGATIEREGEL NIET ONDER CO 2 - EMISSIEHANDEL VALLEN IN DE HANDELSPERIODE
25 1. Inleiding 1.1. De Europese richtlijn inzake de handel in emissierechten In uitvoering van het ECCP (European Climate Change Program) stelde de Europese Commissie in oktober 2001 een ontwerprichtlijn met betrekking tot verhandelbare broeikasgas emissierechten voor. De Raad Leefmilieu keurde de richtlijn 1 op 13 oktober 2003 definitief goed. Deze richtlijn (hierna de VER-richtlijn genoemd) heeft ertoe geleid dat er binnen de EU vanaf 1 januari 2005 een interne markt voor de verhandeling van emissierechten is ontstaan. Het systeem is verwant met de verhandelbare emissierechten die onder het Kyoto-protocol werden ingevoerd. Er bestaan echter belangrijke verschillen. Ten eerste betreft het Europese systeem een verhandeling van emissierechten tussen bedrijven en niet onmiddellijk tussen de partijen (landen) bij het Kyoto-protocol. Ten tweede startte het Europese systeem reeds vanaf 2005, dus voor de verbintenisperiode onder het Protocol van Kyoto ( ). Er is sprake van een gefaseerde aanpak m.b.v. zogenaamde handelsperiodes. De eerste handelsperiode (de startperiode) begon op 1 januari 2005 en loopt tot 31 december Daarop volgen er periodes van telkens 5 jaar. 2 De eerste periode had als voornaamste doelstelling het systeem verder op punt te stellen alvorens de verbintenisperiode onder het Kyoto-protocol begint. De richtlijn stelt dat elke inrichting onder haar toepassingsgebied (hierna een BKG-inrichting genoemd) over een vergunning voor de uitstoot van broeikasgassen moet beschikken 3. Deze vergunning is belangrijk omdat zij de voorschriften met betrekking tot de bewaking en rapportering van broeikasgassen zal bevatten. De Europese wetgever heeft tevens voor een kosteloze verdeling van emissierechten gekozen. Toch mochten lidstaten voor de toewijzing van emissierechten in de periode tot maximaal 5% van de te verdelen emissierechten verkopen door middel van een veiling 4. In de periode bedraagt deze hoeveelheid maximaal 10%. De Vlaamse overheid heeft voor de startperiode ( ) alle rechten kosteloos toegewezen. Het kosteloos toewijzen van emissierechten veronderstelt uiteraard objectieve regels voor de toewijzing van het aantal emissierechten. Daarom moeten de lidstaten een nationaal toewijzingsplan opstellen waarin deze regels zijn opgenomen 5. De VER-richtlijn legt de regels vast aan dewelke het toewijzingsplan moet voldoen. De Europese Commissie moet de toewijzingsplannen van de lidstaten goedkeuren. De lidstaten dienden het toewijzingsplan voor de startperiode voor 31 maart 2004 aan de Europese Commissie te bezorgen 6. De toewijzingsplannen voor de volgende handelsperiodes moeten ten laatste achttien maanden voor de start van de betrokken handelsperiodes aan de Europese Commissie bezorgd worden Richtlijn 2003/87/EG van het Europees Parlement en de Raad van 13 oktober 2003 tot vaststelling van een regeling voor de handel in broeikasgasemissierechten binnen de Gemeenschap en tot wijziging van Richtlijn 96/61/EG van de Raad. Art. 11, 1 en 2 van de VER-richtlijn. Art. 4, 5, 6 en 7 van de VER-richtlijn. Art. 10 van de VER-richtlijn. Art. 9 van de VER-richtlijn. De Nieuwe lidstaten kregen tijd tot 31 mei
26 De Europese Unie amendeerde de VER-richtlijn op 27 oktober 2004 door middel van de zogenaamde linking directive (2004/101/EG) 7. Deze beoogt een brug te vormen tussen enerzijds het Europese systeem van verhandelbare emissierechten en anderzijds de projectgebonden flexibiliteitsmechanismen van het Protocol van Kyoto. Deze mechanismen creëren de mogelijkheid voor bedrijven en landen om meer broeikasgassen uit te stoten dan de hen toegewezen emissierechten. Door het realiseren van milieuvriendelijke investeringen in het buitenland kunnen landen en bedrijven emissiekredieten opbouwen. Het Protocol van Kyoto voorziet 2 projectgebonden flexibiliteitsmechanismen JI (Joint Implementation) en CDM (Clean Development Mechanism). De koppeling tussen het Europees emissiehandelssysteem en de emissiekredieten opgebouwd via CDM en JI houdt in dat exploitanten van BKG-inrichtingen gebruik mogen maken van CDM/JI-emissiekredieten om te voldoen aan hun verplichtingen onder de richtlijn. De linking directive geeft tevens aan onder welke voorwaarden dit kan gebeuren De procedure tot goedkeuring van het Vlaams Toewijzingsplan Het besluit inzake de verhandelbare emissierechten voor broeikasgassen (hierna VERbesluit genoemd, cfr. infra) legt de procedure vast volgens dewelke de Vlaamse overheid voor iedere handelsperiode een toewijzingsplan dient op te stellen 8. Dit bleek nodig omdat volgens de richtlijn het toewijzingsplan enkele stappen dient te doorlopen alvorens de overheid de elementen uit dit plan effectief kan en mag toepassen. Ten eerste dient het plan tot tweemaal toe aan een publieksconsultatie onderworpen te worden. Daarenboven moet de Europese Commissie de toewijzingsplannen van alle Europese lidstaten goedkeuren. Na de eerste principiële goedkeuring van het toewijzingsplan (het plan wordt in deze fase een voorstel van plan genoemd) start een eerste publieksconsultatie. Iedereen kan, vanaf de dag van de publieke bekendmaking gedurende dertig dagen opmerkingen over het betreffende voorstel van toewijzingsplan indienen bij de Vlaamse overheid. Tegelijkertijd worden de Milieu- en Natuurraad van Vlaanderen en de Sociaal-Economische Raad van Vlaanderen verzocht om op het voorstel van toewijzingsplan, een advies uit te brengen binnen een termijn van dertig dagen. Na het beëindigen van de eerste publieksconsultatie wordt het toewijzingsplan een tweede maal voorgelegd aan de Vlaamse Regering (het plan wordt na goedkeuring een ontwerp van plan genoemd). Deze versie van het toewijzingsplan vermeldt in hoeverre er rekening gehouden werd met opmerkingen en adviezen uit de eerste publieksconsultatie. Dit ontwerp van toewijzingsplan wordt vervolgens bezorgd aan de voorzitter van de Nationale Klimaatcommissie, die het ontwerp (na integratie ervan met de andere gewestelijke plannen en het federaal plan) meedeelt aan de Europese Commissie. Na ontvangst van de bijkomende vragen van de Europese Commissie maakt de overheid het toewijzingsplan opnieuw publiek bekend. Iedereen kan vervolgens, vanaf de dag van de publieke bekendmaking van zowel de bijkomende vragen als het plan zelf, gedurende dertig dagen opmerkingen over het ontwerp van toewijzingsplan indienen bij de Vlaamse overheid. Na de tweede publieksconsultatie wordt een definitief ontwerp van toewijzingsplan aan de Vlaamse Regering voorgelegd. Dit toewijzingsplan bevat, in voorkomend geval, 7 8 RICHTLIJN 2004/101/EG VAN HET EUROPEES PARLEMENT EN DE RAAD van 27 oktober 2004 houdende wijziging van Richtlijn 2003/87/EG tot vaststelling van een regeling voor de handel in broeikasgasemissierechten binnen de Gemeenschap, met betrekking tot de projectgebonden mechanismen van het Protocol van Kyoto. Art. 2, 3, 4, 5, 6 en 7 VER-besluit 5