European Commission DG Environment. National Emission Ceilings Directive Review. Task 3 - Summary. Final Report. May 2005.

Transcription

1 European Commission DG Environment National Emission Ceilings Directive Review Task 3 - Summary Final Report Entec UK Limited

2

3 Report for Michel Sponar DG ENV-C.1 European Commission Avenue de Beaulieu 5 6/103B-1160 Brussels Belgium Main Contributors Katherine Wilson Ben Grebot Andriana Stavrakaki Alistair Ritchie Alun McIntyre European Commission DG Environment National Emission Ceilings Directive Review Task 3 - Summary Final Report Issued by Katherine Wilson Entec UK Limited Approved by Alistair Ritchie Entec UK Limited Windsor House Gadbrook Business Centre Gadbrook Road Northwich Cheshire CW9 7TN England Tel: +44 (0) Fax: +44 (0) h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3 Certificate No. EMS Certificate No. FS In accordance with an environmentally responsible approach, this document is printed on recycled paper produced from 100% post-consumer waste, or on ECF (elemental chlorine free) paper

4

5 i Executive Summary Entec UK has undertaken a project for the European Commission (Contract No /2004/383810/MAR/C1) to support the review of Directive 2001/81/EC, referred to as the National Emission Ceilings Directive (NECD). This report serves as the final report for the additional analysis conducted under Task 3 of the contract: provision of the first draft of the NEC review report and recommendations for further legislation, and for the thematic strategy. This report should be read alongside the first draft review report, which is the main output under Task 3. Under this project, Entec has produced a first draft of the review report as required by the NECD. As agreed with the Commission, the requirements outlined in Article 10, paragraph 5 (a) and (b) 1 of the Directive are not to be included within the scope of the work. Given the range of additional projects commissioned by the EC as well as the UN ECE, in addition to EEA reports and national programmes, this task has been mainly to gather and summarise the relevant information sources that contribute to the review of the Directive. Work undertaken within Tasks 1 and 2 also contribute to the review report. The review report has been submitted to the Commission separately. The text of the NECD details the requirements of the review report under Articles 9, 10 and 12. A review of the data sources has not identified any significant data gaps, beyond those outlined in the Technical Annex of the Tender Specification. These are: a review of the limitations of the regional scope of the NEC Directive as defined in article 2 for what concerns Spain, France and Portugal ; and measures to ensure compliance with the ceilings. This report presents the supporting analysis conducted by Entec to fill these data gaps for the purposes of inclusion in the review report. Drafting the review report The following tables identify the requirements of Articles 9, 10 and 12 in the Directive and indicate the sections of the Review Report under which these requirements are fulfilled. 1 Relating to modifications of the national ceilings and/or for modifications to interim environmental objectives as well as possible further emission reductions with the aim of meeting, preferably by 2020, the long-term objectives of the Directive. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

6 ii Table A Location of response to specific elements detailed in Article 9, paragraph (1) Requirement Section of the review report progress on implementation of the national emission ceilings laid down in Annex I extent to which the interim environmental objectives set out in Article 5 are likely to be met by 2010 and on the extent to which the long-term objectives set out in Article 1 could be met by 2020 economic assessment, including cost-effectiveness, benefits, an assessment of marginal costs and benefits and the socioeconomic impact of the implementation of the national emission ceilings on particular Member States and sectors 3. BAU emissions projections 4. Consequences for IEOs / LTOs 5. Meeting the NECs limitations of the scope of this Directive as defined in Article 2 6. Meeting IEOs / LTOs protecting human health and the environment an evaluation of the extent to which further emission reductions might be necessary in order to meet the interim environmental objectives set out in Article 5 4. Consequences for IEOs / LTOs Table B Location of response to specific elements detailed in Article 9, paragraph (1) (a)-(n) Requirement Section of the review report (a) any new Community legislation which may have been adopted setting emission limits and product standards for relevant sources of emissions; (b) developments of best available techniques in the framework of the exchange of information under Article 16 of Directive 96/61/EC; (c) emission reduction objectives for 2008 for emissions of sulphur dioxide and nitrogen oxides from existing large combustion plants, reported by Member States pursuant to Directive 2001/80/EC of the European Parliament and of the Council of 23 October 2001 on the limitation of emissions of certain pollutants into the air from large combustion plants; (d) emission reductions and reduction commitments by third countries, with particular focus on measures to be taken in the accession candidate countries, and the possibility for further emission reductions in regions in the vicinity of the Community; (e) any new Community legislation and any international regulations concerning ship and aircraft emissions; 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources (f) the development of transport and any further action to control transport emissions; 2. Policy drivers affecting NEC sources (g) developments in the field of agriculture, new livestock projections and improvements in emission reduction methods in the agricultural sector; (h) any major changes in the energy supply market within a Member State and new forecasts reflecting the actions taken by Member States to comply with their international obligations in relation to climate change; 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources (i) (j) assessment of the current and projected exceedences of critical loads and the WHO's guideline values for ground-level ozone; the possibility of identification of a proposed interim objective for reducing soil eutrophication; 4. Consequences for IEOs / LTOs Not to be included within this project, as identified in the Technical Annex. (k) New technical and scientific data including an assessment of the uncertainties in: h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

7 iii Requirement Section of the review report (i) national emission inventories; (ii) input reference data; (iii) knowledge of the transboundary transport and deposition of pollutants; (iv) critical loads and levels; (v) the model used; and an assessment of the resulting uncertainty in the national emission ceilings required to meet the interim environmental objectives mentioned in Article BAU emissions projections 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs (l) whether there is a need to avoid excessive costs for any individual Member State; 5. Meeting the NECs (m) a comparison of model calculations with observations of acidification, eutrophication and ground-level ozone with a view to improving models; (n) the possible use, where appropriate, of relevant economic instruments. 4. Consequences for IEOs / LTOs 5. Meeting the NECs Table C Location of response to specific elements detailed in Article 10 Requirement Section of the review report evaluation will be carried out of the indicative emission ceilings for the Community as a whole set out in Annex II with the aim of attaining the interim environmental objectives set out in Article 5, for the Community as a whole by 2010 investigation of the estimated costs and benefits of national emission ceilings, computed with state-of-the-art models and making use of the best available data with the aim of avoiding distortion of competition, and taking into account the balance between benefits and costs of action examine further the need to develop harmonised Community measures, for the most relevant economic sectors and products contributing to acidification, eutrophication and formation of ground-level ozone 4. Consequences for IEOs / LTOs 5. Meeting the NECs 6. Meeting IEOs / LTOs protecting human health and the environment measures to ensure compliance with the ceilings 6. Meeting IEOs / LTOs protecting human health and the environment Table D Location of response to specific elements detailed in Article 12 Requirement Section of the review report extent to which emissions from international maritime traffic contribute to acidification, eutrophication and the formation of ground-level ozone within the Community extent to which emissions from aircraft beyond the landing and take-off cycle contribute to acidification, eutrophication and the formation of ground-level ozone within the Community 6. Meeting IEOs / LTOs protecting human health and the environment 6. Meeting IEOs / LTOs protecting human health and the environment h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

8 iv Requirement Section of the review report specify a programme of actions which could be taken at international and Community level as appropriate to reduce emissions from the sector concerned 6. Meeting IEOs / LTOs protecting human health and the environment Additional Analysis Limitations of regional scope for what concerns Spain, France and Portugal The current NECD does not apply to the Spanish Canary Islands, French overseas departments (Guadeloupe, Martinique, French Guiana and La Réunion) or the Portuguese Islands of Madeira and the Azores. The information collated demonstrates that available information on emissions varies across the remote regions. As such, the capacity for building emission inventories would have to be improved to be equivalent to those submitted by Member States under the requirements of the NECD. The distance at which the remote regions are located from Europe, coupled with the apparent relatively low emissions of NECD pollutants, indicates that these areas do not have a significant impact on acidification, eutrophication and ground level ozone in Europe. Furthermore, emissions from the remote regions are already controlled by a number of EU directives. The benefits arising from potential additional emission reductions by including these areas within the NECD are therefore expected to be relatively limited. It is also possible that, given the special status afforded by the European Union to these regions 2 and their geographical location beside emerging regional and sub-regional blocs, the imposition of additional emission reduction requirements may create local market distortions for the outermost regions, depending on which other countries they mainly trade with. Nevertheless, as indicated by the EC 3, it will be important to consider the environmental impacts of emissions on the geographical regions in which these areas are located, in view of their natural fragility and also because the environment is the essential physical basis for tourism, which constitutes one of the pillars for the development of the outermost regions. However, as the objectives of the NECD are to reduce transboundary pollution, these issues may be best dealt with outside of the structure of the NECD, in collaboration with France, Spain and Portugal or through regional agreements within their localities. Such considerations should be incorporated within a sustainable development strategy, managing emission reductions where necessary, but taking account of the socio-economic circumstances of the regions. A first step would be to encourage the development of NECD consistent emission inventories. These emissions could then be reviewed to determine their 2 which have previously been the subject of measures designed to reduce the costs for energy production and transport to avoid hampering their competitiveness 3 European Commission (EC) (2000) COMMISSION REPORT ON THE MEASURES TO IMPLEMENT ARTICLE 299(2) THE OUTERMOST REGIONS OF THE EUROPEAN UNION Brussels, COM(2000) 147 final. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

9 v significance, in relative terms, to the rest of the EU25. The impact of their emissions could then be compared with the cost-effectiveness of abatement. Potential measures to ensure compliance with the ceilings Within this report, consideration has been given to potential administrative and policy measures to facilitate the implementation of the NECD and achieve compliance with the ceilings. These include: monitoring progress: improving consistency with other Member States and other submissions; development of indicators; Commission report and inventories each year; reporting requirements: potential submission with other inventories; tools for knowledge exchange: database of policies and measures; annual workshops; setting ceilings; and the use of economic instruments. Recommendations The recommendations of this task are presented in the separate summary report, which combines the summaries and recommendations of all three tasks together. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

10 vi h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

11 vii Contents 1 Introduction This Report Task 3 Scope and Objectives Structure of the Report 1 2 Drafting the NEC review report Introduction Contents of the review report Structure of the report Information sources Signposting to potential updates 6 3 Additional Analysis Introduction Limitations of regional scope for what concerns Spain, France and Portugal Overview - the Remote Regions France Portugal Spain Summary Potential measures to ensure compliance with the ceilings Monitoring progress Reporting requirements Tools for knowledge exchange Setting ceilings The use of economic instruments 19 4 References 20 h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

12 viii Table 1 Location of response to specific elements detailed in Article 9, paragraph (1) 3 Table 2 Location of response to specific elements detailed in Article 9, paragraph (1) (a)-(n) 4 Table 3 Location of response to specific elements detailed in Article 10 5 Table 4 Location of response to specific elements detailed in Article 12 5 Table 5 Contact made with other EC contractors 6 Table 6 Socio-economic characteristics of the remote regions (EC, 2004) 7 Table 7 Sectoral breakdown of air emissions in the French overseas departments in 1998 (CITEPA, 2000) 10 Table 8 Atmospheric emissions in the French overseas departments in 1998 (CITEPA, 2000) 1 11 Figure 1 Locations of the French Overseas Departments 9 Figure 2 Locations of Madeira and Azores 12 Figure 3 Locations of the Canary Islands 14 h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

13 1 1 Introduction 1.1 This Report Entec UK has undertaken a project for the European Commission (Contract No /2004/383810/MAR/C1) to support the review of Directive 2001/81/EC, referred to as the National Emission Ceilings Directive (NECD). This report serves as the draft final report for the additional analysis conducted under Task 3 of the contract: provision of the first draft of the NEC review report and recommendations for further legislation, and for the thematic strategy. This report should be read alongside the draft final review report, which is the main output under Task Task 3 Scope and Objectives Under this project, Entec has produced a first draft of the review report as required by the NECD. As agreed with the Commission, the requirements outlined in Article 10, paragraph 5 (a) and (b) 4 of the Directive are not to be included within the scope of the work. Given the range of additional projects commissioned by the EC as well as the UN ECE, in addition to EEA reports and national programmes, this task has been mainly to gather and summarise the relevant information sources that contribute to the review of the Directive. Work undertaken within Tasks 1 and 2 also contributes to the review report. This report has been submitted to the Commission separately. The text of the NECD details the requirements of the review report under Articles 9, 10 and 12. A review of the data sources has not identified any significant data gaps, beyond those outlined in the Technical Annex of the Tender Specification. These are: a review of the limitations of the regional scope of the NEC Directive as defined in article 2 for what concerns Spain, France and Portugal ; and measures to ensure compliance with the ceilings. This report presents the supporting analysis conducted by Entec to fill these data gaps for the purposes of inclusion in the review report. 1.3 Structure of the Report The structure of this report is as follows: Section 2 summarises the mechanism for drafting the NEC review report; 4 Relating to modifications of the national ceilings and/or for modifications to interim environmental objectives as well as possible further emission reductions with the aim of meeting, preferably by 2020, the long-term objectives of the Directive. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

14 2 Section 3 describes the additional analysis required to fill the data gaps within the review report; and Section 4 lists the references. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

15 3 2 Drafting the NEC review report 2.1 Introduction This section presents the approach to the drafting of the NEC review report. The review report has been submitted as a separate report. 2.2 Contents of the review report Structure of the report The various requirements of the review report are set out in the Directive under articles 9, 10 and 12. The report is structured as follows: Section 1 introduces the report; Section 2 provides background on the policy drivers affecting NEC pollutant sources; Section 3 presents the business as usual (BAU) emissions projections for Member States; Section 4 demonstrates the consequences of these emissions on human health and the environment, by comparing modelled outputs with the interim environmental objectives (IEOs) and long term objectives (LTOs); Section 5 goes on to discuss how the NECs can be met in a cost-effective manner and issues surrounding the associated marginal costs and benefits; Section 6 discusses wider issues of whether meeting NECs will achieve the IEOs and LTOs and thereby protect human health and the environment; and Section 7 lists the references. The following tables identify the requirements of Articles 9, 10 and 12 in the Directive and indicate the sections of the report under which these requirements are fulfilled. Table 1 Location of response to specific elements detailed in Article 9, paragraph (1) Requirement Section of the review report progress on implementation of the national emission ceilings laid down in Annex I extent to which the interim environmental objectives set out in Article 5 are likely to be met by 2010 and on the extent to which the long-term objectives set out in Article 1 could be met by 2020 economic assessment, including cost-effectiveness, benefits, an assessment of marginal costs and benefits and the socioeconomic impact of the implementation of the national emission ceilings on particular Member States and sectors 3. BAU emissions projections 4. Consequences for IEOs / LTOs 5. Meeting the NECs h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

16 4 Requirement Section of the review report limitations of the scope of this Directive as defined in Article 2 6. Meeting IEOs / LTOs protecting human health and the environment an evaluation of the extent to which further emission reductions might be necessary in order to meet the interim environmental objectives set out in Article 5 4. Consequences for IEOs / LTOs Table 2 Location of response to specific elements detailed in Article 9, paragraph (1) (a)-(n) Requirement Section of the review report (a) any new Community legislation which may have been adopted setting emission limits and product standards for relevant sources of emissions; (b) developments of best available techniques in the framework of the exchange of information under Article 16 of Directive 96/61/EC; (c) emission reduction objectives for 2008 for emissions of sulphur dioxide and nitrogen oxides from existing large combustion plants, reported by Member States pursuant to Directive 2001/80/EC of the European Parliament and of the Council of 23 October 2001 on the limitation of emissions of certain pollutants into the air from large combustion plants; (d) emission reductions and reduction commitments by third countries, with particular focus on measures to be taken in the accession candidate countries, and the possibility for further emission reductions in regions in the vicinity of the Community; (e) any new Community legislation and any international regulations concerning ship and aircraft emissions; 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources (f) the development of transport and any further action to control transport emissions; 2. Policy drivers affecting NEC sources (g) developments in the field of agriculture, new livestock projections and improvements in emission reduction methods in the agricultural sector; (h) any major changes in the energy supply market within a Member State and new forecasts reflecting the actions taken by Member States to comply with their international obligations in relation to climate change; 2. Policy drivers affecting NEC sources 2. Policy drivers affecting NEC sources (i) (j) assessment of the current and projected exceedences of critical loads and the WHO's guideline values for ground-level ozone; the possibility of identification of a proposed interim objective for reducing soil eutrophication; 4. Consequences for IEOs / LTOs Not to be included within this project, as identified in the Technical Annex. (k) New technical and scientific data including an assessment of the uncertainties in: (i) national emission inventories; (ii) input reference data; (iii) knowledge of the transboundary transport and deposition of pollutants; (iv) critical loads and levels; (v) the model used; 3. BAU emissions projections 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs 4. Consequences for IEOs / LTOs h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

17 5 Requirement Section of the review report and an assessment of the resulting uncertainty in the national emission ceilings required to meet the interim environmental objectives mentioned in Article Consequences for IEOs / LTOs (l) whether there is a need to avoid excessive costs for any individual Member State; 5. Meeting the NECs (m) a comparison of model calculations with observations of acidification, eutrophication and ground-level ozone with a view to improving models; (n) the possible use, where appropriate, of relevant economic instruments. 4. Consequences for IEOs / LTOs 5. Meeting the NECs Table 3 Location of response to specific elements detailed in Article 10 Requirement Section of the review report evaluation will be carried out of the indicative emission ceilings for the Community as a whole set out in Annex II with the aim of attaining the interim environmental objectives set out in Article 5, for the Community as a whole by 2010 investigation of the estimated costs and benefits of national emission ceilings, computed with state-of-the-art models and making use of the best available data with the aim of avoiding distortion of competition, and taking into account the balance between benefits and costs of action examine further the need to develop harmonised Community measures, for the most relevant economic sectors and products contributing to acidification, eutrophication and formation of ground-level ozone 4. Consequences for IEOs / LTOs 5. Meeting the NECs 6. Meeting IEOs / LTOs protecting human health and the environment measures to ensure compliance with the ceilings 6. Meeting IEOs / LTOs protecting human health and the environment Table 4 Location of response to specific elements detailed in Article 12 Requirement Section of the review report extent to which emissions from international maritime traffic contribute to acidification, eutrophication and the formation of ground-level ozone within the Community extent to which emissions from aircraft beyond the landing and take-off cycle contribute to acidification, eutrophication and the formation of ground-level ozone within the Community specify a programme of actions which could be taken at international and Community level as appropriate to reduce emissions from the sector concerned 6. Meeting IEOs / LTOs protecting human health and the environment 6. Meeting IEOs / LTOs protecting human health and the environment 6. Meeting IEOs / LTOs protecting human health and the environment Information sources The data sources required to complete this task include outputs from other EC contracts, information from Task 1 of this project and from wider literature reviews. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

18 6 As agreed at the project kick-off meeting, Entec has been liaising between contractors in order to obtain the most up-to-date information (Table 5). The ongoing nature of the CAFE work has meant that some results have not been available for inclusion within this report, e.g. the AEA T cost benefit analysis. Table 5 Contact made with other EC contractors Organisation EC project Notes IIASA EMEP AEA Technology AEA Technology Clean Air Policy, Milieu Consortium Ongoing RAINS web data and CAFE baseline Supporting modelling under CAFE Ex-post Evaluation of Short-term and Local Measures in the CAFE Context Cost Benefit Analysis of the CAFE programme Comparison of EU and US approaches towards acidification, eutrophication and ground level ozone Information has been obtained from the organisation s website Information has been obtained from the organisation s website Entec has been provided with the final report Entec has been provided with a final methodology report. Whilst it is understood that baseline analyses were due to be completed in January, this information had not been received prior to submission of this report. Entec has been provided with the final reports and the accompanying case studies. IFARE Emerging technologies Entec has been provided with a copy of the final report Signposting to potential updates Given the ongoing nature of work conducted under the CAFE programme, the draft review report has included notes to indicate where further information is expected. These notes are entered in the review report in green italics. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

19 7 3 Additional Analysis 3.1 Introduction Additional analysis has been required under Task 3, beyond that which is covered by existing contracts and studies, in order to fulfil the requirements of the directive. These data gaps were identified by the EC within the Technical Annex and are as follows: a review of the limitations of the regional scope of the NEC Directive as defined in Article 2 for what concerns Spain, France and Portugal (Article 9, Paragraph 1 of the NEC Directive); and measures to ensure compliance with the ceilings (Article 10, Paragraph 5 (c) of the NEC Directive) The findings of our analysis for these data gaps is described in the following sections. 3.2 Limitations of regional scope for what concerns Spain, France and Portugal Overview - the Remote Regions The current NECD does not apply to the Spanish Canary Islands, French overseas departments (Guadeloupe, Martinique, French Guiana and La Réunion) or the Portuguese Islands of Madeira and the Azores. Article 299(2) of the Treaty of Amsterdam constituted the legal basis for the concept of these most remote regions : taking account of the structural social and economic situation of the French overseas departments, the Azores, Madeira and the Canary Islands, which is compounded by their remoteness, insularity, small size, difficult topography and climate, economic dependence on a few products, the permanence and combination of which severely restrain their development, the Council, acting by a qualified majority on a proposal from the Commission and after consulting the European Parliament, shall adopt specific measures aimed, in particular, at laying down the conditions of application of the present Treaty to those regions, including common policies. Table 6 Socio-economic characteristics of the remote regions (EC, 2004) Azores Canary Islands Guadeloupe French Guiana Madeira Martinique Réunion Location Atlantic Ocean Atlantic Ocean Caribbean Sea South America Atlantic Ocean Caribbean Sea Indian Ocean h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

20 8 Azores Canary Islands Guadeloupe French Guiana Madeira Martinique Réunion Surface area km² km² km² km² 795 km² km² km² Population Per capita GDP index (Note 1) Unemployment (Note 2) Notes: ,5 % 11,1 % 26,0 % 24,4 % 2,5 % 22,9% 29,3% , in standard of purchasing power (EUR-15 = 100) In general, other European environmental directives would apply in the remote regions, although for some directives, special provisions apply in these areas, allowing less stringent requirements in certain specified situations. Directives with special provisions for these areas include: large combustion plant (LCPD 2001/80/EC) 5 ; the sulphur content of liquid fuels (SCLFD 1999/32/EC) 6 ; and directives relating to the quality of petrol and diesel fuels (2003/17/EC) 7. The following sections investigate the available emissions data and potential for emission reductions of NECD pollutants within each of the remote regions France The French overseas departments are integral parts of the French Republic. Guadeloupe and Martinique are both located in the Caribbean. French Guiana is located in the North East of South America between Brazil and Surinam. La Réunion is located in the Indian Ocean, to the east of Madagascar and has the highest population of all the French overseas departments and territories (Figure 1). 5 Directive 2001/80/EC of the European Parliament and of the Council of 23 October 2001 on the limitation of emissions of certain pollutants into the air from large combustion plants special provisions are listed for the outermost regions. 6 Council Directive 1999/32/EC of 26 April 1999 relating to a reduction in the sulphur content of certain liquid fuels and amending Directive 93/12/EEC. 7 Directive 2003/17/EC of the European Parliament and of the Council of 3 March 2003 amending Directive 98/70/EC relating to the quality of petrol and diesel fuels special provisions are listed for the outermost regions. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

21 9 Figure 1 Locations of the French Overseas Departments 8 Each department is administered by an appointed representative of the French government, and the level of autonomy is restricted. In general, French regulations apply to these departments. However, the overseas departments have special measures delegated (MEDD, 2005). Atmospheric emissions are controlled by European regulations as described above. The French overseas departments are also under the United Nations framework convention on climate change (UNFCCC) (CITEPA, 2000). Whilst a number of contacts were attempted including the MEDD, the Directions régionales de l environnement (DIREN) and the Directions Régionales de l'industrie, de la Recherche et de l'environnement (DRIRE) for all four overseas departments, detailed information on potential technical, logistical or economic considerations associated with reducing emissions of NECD pollutants were not received. However, the MEDD (2005) felt that there would be specific technical difficulties with reducing emission if these overseas departments were to be included within the NECD, e.g. involving the improvement of fuel quality. Atmospheric emissions have been monitored in the overseas departments from 1990, and emission data are available for all four departments until Maritime and air traffic 8 h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

22 10 emissions are included in the emission data for distances below 1000 m as other transport, however, mainly CO 2 is measured for that sector (CITEPA, 2000). Table 7 shows the sectoral breakdown of emissions and Table 8 gives the emissions for Table 7 Sectoral breakdown of air emissions in the French overseas departments in 1998 (CITEPA, 2000) Guadeloupe SO 2 NO X NMVOC NH 3 Electricity production 92% 71% Agriculture 97% Road Transport 17% 40% Martinique SO 2 NO X NMVOC NH 3 Energy sector 94% 71% Agriculture 95% Road Transport 19% 32% French Guiana SO 2 NO X NMVOC NH 3 Electricity production 88% 53% Agriculture 91% 97% Road Transport 17% Other Transport 29% La Réunion SO 2 NO X NMVOC NH 3 Electricity production 41% 24% Manufacturing Industry 51% Agriculture 96% Road Transport 41% h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

23 11 Table 8 Atmospheric emissions in the French overseas departments in 1998 (CITEPA, 2000) 1 In kt SO 2 NO X NMVOC NH 3 Comments Guadeloupe 9.98 (17%) (25%) (10%) 1.82 (19%) No heavy industries and no intensive agriculture but high energy consumption that continuously grows Martinique 8.85 (<20%) (22%) Two power stations and an oil refinery, mainly responsible for the high NO X and SO 2 emissions French Guiana 1.99 (3%) 5.39 (<10%) (<10%) 0.44 (37%) 94% of the region is covered by forests. Three power stations, mainly responsible for the SO 2 emissions. In 1994 a hydroelectric dam was put into service, subsequently decreasing the use of the power stations. Fishing is the second biggest activity. La Réunion 8.34 (~20%) (~20%) (~20%) 1.81 (~20%) No heavy industries. The energy structure of La Réunion is different since 36% of the electricity produced is hydraulic, thus SO 2 and NO X emissions are lower than other departments. A quarter of the island is used for agricultural purposes and fishing, although La Réunion is not a highly intensive agricultural department Total emissions in the French overseas departments Total emissions of France 2 % of emissions of the French overseas departments from total emissions in France Notes: 3.5% 3.4% 5.2% 0.6% 1. Percentage of emissions in each department compared to the total emissions of the overseas departments and territories is shown in brackets 2. Emission data for France (1998) were obtained from CITEPA (2004). Table 9 gives the emissions per head for France and the French Overseas Departments. It should be noted that the population data is for 2000, whereas emission data is for 1998 (from Table 8). No population data for 1998 was available. As such, this assumes that the populations within France and the Overseas Departments have remained relatively constant over this period, compared to each other. The table shows that emissions per head vary widely amongst the regions and between different pollutants. For SO 2, emissions per head in Guadeloupe and Martinique are over 50% higher than in France, whereas the emissions per head in French Guiana and La Réunion are lower than in France. For NO X, emissions per head in Guadeloupe, Martinique and French Guiana are higher than France, whereas they are lower in La Réunion. Emissions per head of NMVOCs in French Guiana significantly greater than in France and the other Overseas Departments. Emissions of NH 3 per head in France are significantly higher than in the Overseas Departments. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

24 12 Table 9 Emissions per head for France and the French Overseas Departments Population (2000) SO 2 per head (kg) 1 NO X per head (kg) 1 NMVOC per head (kg) 1 NH 3 per head (kg) 1 France 59,329, French Guiana 172, Guadeloupe 426, Martinique 414, La Réunion 720, Notes: 1. Based on emissions data from Portugal Madeira and Azores are autonomous regions approximately 964km and 1419km respectively from Portugal and are located in the middle of the North Atlantic Ocean (Figure 2). Figure 2 Locations of Madeira and Azores 9 Agriculture and livestock are considered to be the main economic activities in the Azores (IA, 2005). Energy production is mainly from small power stations although geothermic and wind energy is also produced (SRA, 2005). In Madeira the main economic activity is tourism. Madeira is now developing a significant effort to use renewable energies, which in 2000 represented 7% of the produced primary energy. The recent decision to introduction natural gas in Madeira in place of fossil energy for the electricity production sector, will be an important contribution for reduction the emissions of 9 h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

25 13 some of NEC pollutants. For the Azores, the NH 3 emitted from the livestock sector represents the most important NEC pollutant (IA, 2005). In both regions, the industrial sector is rather small. Three installations from Madeira and four from the Azores are included within the CO 2 European Trading Scheme, all of them belong to the energy production sector. There are considered to be inherent difficulties associated with reducing emissions of NECD pollutants in Madeira. These problems are mainly financial (SRA, 2005). The power plants are currently known to be relatively high emitters of SO 2 and NO X. Technological improvements are required to reduce emissions, but the costs of implementation are considered too great to be economically feasible (SRA, 2005). In accordance with Air Quality Directives and national legislation, Madeira has a recent air quality network to assess the pollutants regulated by Daughters Directives. The data is reported annually to the European Commission and EEA. Until now the air quality data demonstrate compliance within limit values for almost all the pollutant, exception for particulate matter PM10, which has high concentrations usually during episodes of natural events from Sahara in the north of Africa. In the Azores some indicative measurements campaigns are used for assess air quality in the territory. In the near future an air quality monitoring station will be installed (IA, 2005). There is currently no information on historical and projected emissions of NECD pollutants from Madeira and the Azores. However the disaggregation of the national emission inventories according to the EMEP grid will be finalized at the end of March. The Instituto do Ambiente estimates that the regional contributions from Madeira and Azores together represent approximately 5% of the total national emissions (IA, 2005) Spain The Canary Islands are approximately 1350 km from the Iberian Peninsula, close to the Northwest coast of Africa (Figure 3). The Canary Islands are an autonomous community. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

26 14 Figure 3 Locations of the Canary Islands 10 No emission data for the Canary Islands were available 11. Various sources were contacted, such as the Ministerio de Medio Ambiente of Spain and the Direccin General de Calidad Ambiental of the Canary Islands Summary The information listed above demonstrates that available information on emissions varies across the remote regions. As such, the capacity for building emission inventories would have to be improved to be equivalent to those submitted by Member States under the requirements of the NECD. The distance at which the remote regions are located from Europe, coupled with the apparent relatively low emissions of NECD pollutants, indicates that these areas do not have a significant impact on acidification, eutrophication and ground level ozone in Europe. Furthermore, emissions from the remote regions are already controlled by a number of EU directives. The benefits arising from potential additional emission reductions by including these areas within the NECD are therefore expected to be relatively limited. It is also possible that, given the special status afforded by the European Union to these regions 12 and their geographical location beside emerging regional and sub-regional blocs, the imposition of additional emission reduction requirements may create local market distortions for the outermost regions, depending on which other countries they mainly trade with. Nevertheless, as indicated by the EC (2000), it will be important to consider the environmental impacts of emissions on the geographical regions in which these areas are located, in view of their natural fragility and also because the environment is the essential physical basis for tourism, which constitutes one of the pillars for the development of the outermost regions. However, as the objectives of the NECD are to reduce transboundary pollution, these issues may be best dealt with outside of the structure of the NECD, in collaboration with France, Spain and Portugal or through regional agreements within their localities. Such considerations should be incorporated within a sustainable development strategy, managing emission reductions where necessary, but taking account of the socio-economic circumstances of the regions. A first step would be to encourage the development of NECD consistent emission inventories. These emissions could then be reviewed to determine their significance, in relative terms, to the rest of the EU25. The impact of their emissions could then be compared with the cost-effectiveness of abatement Air quality legislation for the Canary Islands can be found at 12 which have previously been the subject of measures designed to reduce the costs for energy production and transport to avoid hampering their competitiveness h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

27 Potential measures to ensure compliance with the ceilings This section considers potential administrative and policy measures to facilitate the implementation of the NECD and achieve compliance with the ceilings. The discussion focuses on: monitoring progress; reporting requirements; tools for knowledge exchange; setting ceilings; and the use of economic instruments Monitoring progress Improving NEC National Programmes 13 Under the current requirements of the NECD, Member States are only required to report information on policies and measures, emission inventories and projections, socio-economic assumptions and any potential changes in the geographical distribution of emissions (Sections 1.5.4, 1.5.5, and of guidelines). Entec s proposed guidelines address these requirements whilst also going beyond the current NECD to improve the consistency of national programmes between Member States and also with reporting under the greenhouse gas Monitoring Mechanism. The proposed guidelines have been prepared to ensure that all the requirements of the Directive are met by specifically defining the type of information that should be reported and, for policies and measures, providing a format for presenting it. This should ensure that the information submitted by Member States under the NECD will be much more consistent and comparable. To improve the level of consistency of reporting with greenhouse gas plans and programmes relevant sections of the proposed guidelines have been based on the guidelines for reporting to the UNFCCC (UNFCCC, 2000 & 2003) and the implementing provisions of the Monitoring Mechanism. As such, a number of requirements of the proposed NECD guidelines have been developed in line with reporting under greenhouse gas obligations. Increasing the linkages between NECD and climate change reporting should lead to the promotion and increased consideration of measures that reduce both greenhouse gases and NECD pollutants. Development of indicators 14 A further potential improvement in the reporting guidelines for national programmes under the NECD could be the inclusion of a requirement for Member States to report annually on a series of indicators to monitor progress towards the NECD. The EEA have identified a number of criteria for selecting indicators for monitoring air pollution (EEA, 2004c). Indicators should: 13 Further information can be found in Task 1 of this study. 14 Further information can be found in Task 1 of this study. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3

28 16 Answer main policy questions and communicate meaningful messages for policy makers and implementers; Be comparable between countries; and, Be transparent regarding the data used; be informative to a general public; and, provide the best available scientific insights. The implementing provisions of the greenhouse gas Monitoring Mechanism requires Member States to report annually with their emission inventories on a series of priority, additional and supplementary indicators (specified in Annex II of the provisions). Examples of these indicators include: specific CO 2 emissions of households ( priority ), specific CO 2 emissions of iron and steel industry ( additional ) and carbon intensity of transport ( supplementary ). A similar set of indicators could be developed for reporting under the NECD which, if prepared and submitted annually with emission inventories, would allow Member States and the Commission to monitor and compare progress towards the NECs. Review process for the NECD 15 The Commission could set up an official NECD Review Process, similar to that in place for the greenhouse gas Monitoring Mechanism. This could include a technical evaluation of national programmes and emission inventories and projections. A specific timetable for review should be established. This would give Member States confidence that their data is being used and could encourage submission of information by the required deadlines. It should also lead to improvements in the accuracy and level of information being submitted, and enable the potential use of data for additional policy development purposes. Commission report and inventories each year 16 The first annual LRTAP/NEC emission inventory review carried out by EMEP and the EEA has already identified the potential to harmonise and/or combine the reporting of emission inventories under the NECD and CLRTAP as some Parties/Member States report the same submission to both. The study recommended that the reporting of emission inventories under the NECD be moved to 15 th February each year to coincide with reporting to CLRTAP. Another potential option could be that Member States report their NEC emission inventories to the Commission and EEA as required by the Directive (by December 31 st each year). The Commission and/or EEA could then compile a Community report, similar to the process under the Monitoring Mechanism, which could be sent direct to CLRTAP. This would help to reduce the reporting burden on Member States. 15 Further information can be found in Task 1 of this study. 16 Further information can be found in Task 1 of this study. h:\projects\em-260\13000 projects\ ec necd review\reports sent to ec\05 amended final report (20th may 05)\task 3\ amended final report - task 3