O Sistema de Comércio de Emissões da UE (EU ETS) O sistema de comércio de emissões da UE (EU ETS) é uma pedra angular da política da UE para combater as alterações climáticas e a sua ferramenta chave para reduzir as emissões de gases com efeito de estufa de forma rentável. É o primeiro mercado de carbono do mundo e continua sendo o maior. Opera em 31 países (todos os 28 países da UE, mais a Islândia, o Liechtenstein e a Noruega) limita as emissões de mais de 11 mil instalações de uso intensivo de energia (centrais eléctricas de amplificadores) e as companhias aéreas que operam entre esses países cobre cerca de 45 das emissões de gases de efeito estufa da UE. Um sistema de capitais e comércio O EU ETS trabalha no princípio da PAC e do comércio. Um limite é fixado na quantidade total de certos gases de efeito estufa que podem ser emitidos por instalações abrangidas pelo sistema. A tampa é reduzida ao longo do tempo para que as emissões totais caírem. Dentro do limite, as empresas recebem ou compram licenças de emissão que podem trocar entre si, conforme necessário. Eles também podem comprar quantidades limitadas de créditos internacionais de projetos de poupança de emissões em todo o mundo. O limite do número total de permissões disponíveis garante que eles tenham um valor. Depois de cada ano, uma empresa deve entregar subsídios suficientes para cobrir todas as suas emissões, caso contrário multas pesadas são impostas. Se uma empresa reduz suas emissões, pode manter as permissões de reposição para cobrir suas necessidades futuras, ou então vendê-las para outra empresa que não possui subsídios. O comércio traz flexibilidade que garante que as emissões sejam reduzidas, quando menos custa. Um preço robusto do carbono também promove o investimento em tecnologias limpas e com baixas emissões de carbono. Principais características da fase 3 (2013-2020) O ETS da UE está agora em sua terceira fase significativamente diferente das fases 1 e 2. As principais mudanças são: Um único limite de emissões da UE em toda a UE aplica-se ao sistema anterior de capitais nacionais. Leilão é o método padrão para alocação de subsídios (em vez de alocação gratuita), e as regras de alocação harmonizadas se aplicam às licenças ainda concedidas De forma gratuita Mais setores e gases incluíram 300 milhões de licenças reservadas na Reserva dos Novos Participantes para financiar a implantação de tecnologias inovadoras de energia renovável e captura e armazenamento de carbono através do programa NER 300 Sectores e gases abrangidos O sistema abrange os seguintes setores e gases com o Concentra-se em emissões que podem ser medidas, reportadas e verificadas com um alto nível de precisão: dióxido de carbono (CO 2) da geração de energia e geração de energia, setores industriais intensivos em energia, incluindo refinarias de petróleo, siderúrgicas e produção de ferro, alumínio, metais, cimento , Limão, vidro, cerâmica, celulose, papel, papelão, ácidos e produtos químicos orgânicos a granel aviação comercial óxido nitroso (N 2 O) da produção De ácidos nítrico, adípico e glioxílico e perfluorocarbonos de glioxal (PFCs) da produção de alumínio A participação no ETS da UE é obrigatória para as empresas desses setores. Mas em alguns setores, apenas as plantas acima de um certo tamanho estão incluídas, certas pequenas instalações podem ser excluídas se os governos implementarem medidas fiscais ou outras que reduzam suas emissões por um montante equivalente no setor de aviação, até 2016 o ETS da UE se aplica apenas aos vôos Entre os aeroportos situados no Espaço Económico Europeu (EEE). Fornecer reduções de emissões O ETS da UE provou que o preço do carbono e o comércio dele podem funcionar. As emissões das instalações no esquema estão caindo como previsto em cerca de 5 em comparação com o início da fase 3 (2013) (ver figuras de 2015). Em 2020. As emissões dos setores abrangidos pelo sistema serão 21 menores do que em 2005. Desenvolvimento do mercado de carbono Em 2005, o EU ETS é o primeiro e maior sistema internacional de comércio de emissões do mundo, que representa mais de três quartos do comércio internacional de carbono. O ETS da UE também está inspirando o desenvolvimento do comércio de emissões em outros países e regiões. A UE pretende ligar o EU ETS a outros sistemas compatíveis. Principais legislações do ETS Relatórios do mercado do carbono Revisão do RCLE da UE para a fase 3 Implementação História legislativa da Directiva 2003 87 CE Trabalho anterior à proposta da Comissão Proposta da Comissão de Outubro de 2001 Reação das comissões à leitura da proposta no Conselho e no Parlamento (incluindo a posição comum dos conselhos ) Abrir todas as perguntas Perguntas e Respostas sobre o Sistema de Comércio de Emissões revisado (dezembro de 2008) Qual o objetivo do comércio de emissões O objetivo do Sistema de Comércio de Emissões da UE (EU ETS) é ajudar os Estados membros da UE a cumprir seus compromissos de limitar ou reduzir Emissões de gases de efeito estufa de forma econômica. Permitir que as empresas participantes compram ou vendam subsídios de emissão significa que os cortes de emissões podem ser alcançados pelo menos custo. O RCLE da UE é a pedra angular da estratégia da UE para lutar contra as alterações climáticas. É o primeiro sistema de comércio internacional de emissões de CO 2 no mundo e está em operação desde 2005. A partir de janeiro de 2008, aplica-se não apenas aos 27 Estados-Membros da UE, mas também aos outros três membros da Área Econômica Européia Noruega, Islândia e Liechtenstein. Atualmente abrange mais de 10.000 instalações nos setores de energia e industrial, que são coletivamente responsáveis por cerca de metade das emissões de CO 2 da UE e 40 de suas emissões totais de gases de efeito estufa. Uma alteração à Directiva EU ETS, acordada em Julho de 2008, trará o sector da aviação para o sistema a partir de 2012. Como funciona o comércio de emissões. O ETS da UE é um sistema de capitais e comércio, isto é, indica o nível global de emissões permitido, mas , Dentro desse limite, permite que os participantes no sistema compram e vendam subsídios como eles exigem. Essas provisões são a moeda comercial comum no coração do sistema. Um subsídio dá ao titular o direito de emitir uma tonelada de CO 2 ou a quantidade equivalente de outro gás com efeito de estufa. O limite do número total de licenças cria escassez no mercado. No primeiro e segundo período de negociação ao abrigo do regime, os Estados-Membros tiveram que elaborar planos nacionais de atribuição (NAP) que determinassem o seu nível total de emissões de ETS e quantos subsídios de emissão cada instalação em seu país recebe. No final de cada ano, as instalações devem render subsídios equivalentes às suas emissões. As empresas que mantêm suas emissões abaixo do nível de seus subsídios podem vender seus excedentes de licenças. Aqueles que enfrentam dificuldade em manter suas emissões de acordo com suas licenças têm a opção de tomar medidas para reduzir suas próprias emissões, como investir em tecnologia mais eficiente ou usar fontes de energia menos intensivas em carbono ou comprar os subsídios extras que precisam no mercado, ou Uma combinação dos dois. Essas escolhas provavelmente serão determinadas por custos relativos. Desta forma, as emissões são reduzidas sempre que é mais rentável fazê-lo. Há quanto tempo o EU ETS está funcionando O EU ETS foi lançado em 1 de Janeiro de 2005. O primeiro período de negociação foi de três anos até o final de 2007 e foi uma fase de aprendizagem por fase para se preparar para o segundo período de negociação crucial. O segundo período de negociação começou em 1 de Janeiro de 2008 e é executado por cinco anos até o final de 2012. A importância do segundo período de negociação decorre do facto de coincidir com o primeiro período de compromisso do Protocolo de Quioto, durante o qual a UE e outros Os países industrializados devem atingir seus objetivos para limitar ou reduzir as emissões de gases de efeito estufa. No segundo período de comercialização, as emissões do EU ETS foram limitadas em cerca de 6,5 abaixo dos níveis de 2005 para ajudar a garantir que a UE no seu conjunto e os Estados-Membros individualmente cumprem os compromissos de Quioto. Quais são as principais lições aprendidas com a experiência até agora O EU ETS colocou um preço sobre o carbono e provou que o comércio de emissões de gases de efeito estufa funciona. O primeiro período comercial estabeleceu com sucesso a livre negociação de licenças de emissão em toda a UE, implementou a infra-estrutura necessária e desenvolveu um mercado dinâmico de carbono. O benefício ambiental da primeira fase pode ser limitado devido à alocação excessiva de subsídios em alguns Estados-Membros e em alguns setores, devido principalmente à dependência das projeções de emissões antes que os dados de emissão verificados estejam disponíveis no âmbito do RCLE-UE. Quando a publicação de dados de emissões verificadas para 2005 destacou essa sobre-alocação, o mercado reagiu como seria esperado pela redução do preço de mercado das licenças. A disponibilidade de dados de emissões verificadas permitiu à Comissão garantir que o limite das dotações nacionais na segunda fase se estabeleça em um nível que resulte em reduções reais de emissões. Além de sublinhar a necessidade de dados verificados, a experiência até agora demonstrou que uma maior harmonização no âmbito do RCLE da UE é imperativa para garantir que a UE alcance os seus objectivos de redução de emissões pelo menos com custos e com distorções concorrenciais mínimas. A necessidade de mais harmonização é mais clara em relação à forma como o limite das licenças de emissão globais é definido. Os dois primeiros períodos de negociação também mostram que métodos nacionais bastante diferentes para alocar alocações para instalações ameaçam uma concorrência leal no mercado interno. Além disso, é necessária uma maior harmonização, esclarecimento e aperfeiçoamento no que se refere ao alcance do sistema, ao acesso a créditos de projetos de redução de emissões fora da UE, às condições para vincular o ETS da UE aos sistemas de comércio de emissões em outros lugares e o monitoramento, verificação e Requisitos de relatórios. Quais são as principais alterações ao ETS da UE e a partir de quando aplicam? As alterações de design acordadas serão aplicadas a partir do terceiro período de negociação, ou seja, janeiro de 2013. Enquanto os trabalhos preparatórios serão iniciados imediatamente, as regras aplicáveis não serão alteradas até janeiro de 2013 Para garantir a manutenção da estabilidade regulatória. O EU ETS no terceiro período será um sistema mais eficiente, mais harmonizado e mais justo. O aumento da eficiência é alcançado por meio de um período de negociação mais longo (8 anos em vez de 5 anos), um limite de emissões robusto e anualmente decrescente (21 redução em 2020 em relação a 2005) e um aumento substancial na quantidade de leilão (de menos de 4 Na fase 2 para mais da metade na fase 3). Mais harmonização foi acordada em muitas áreas, inclusive no que diz respeito à definição de limites (um limite da UE em vez dos limites nacionais nas fases 1 e 2) e as regras para a alocação livre de transição. A equidade do sistema foi substancialmente aumentada pela mudança para as regras de atribuição gratuita da UE para as instalações industriais e pela introdução de um mecanismo de redistribuição que permite aos novos Estados-Membros licitar mais licenças. Como o texto final se compara à proposta inicial da Comissão Os objetivos de clima e energia acordados pelo Conselho Europeu da Primavera de 2007 foram mantidos e a arquitetura geral da proposta da Comissão sobre o ETS da UE permanece intacta. Ou seja, haverá um limite máximo da UE sobre o número de licenças de emissão e este limite diminuirá anualmente ao longo de uma linha de tendência linear, que continuará para além do final do terceiro período comercial (2013-2020). A principal diferença, em comparação com a proposta, é que o leilão de licenças será gradualmente mais lento. Quais são as principais mudanças em comparação com a proposta da Comissão. Em resumo, as principais mudanças que foram feitas na proposta são as seguintes: certos Estados-Membros podem receber uma derrogação opcional e temporária da regra segundo a qual nenhuma alocação deve ser atribuída gratuitamente Para os geradores de electricidade a partir de 2013. Esta opção de derrogação está disponível para os Estados-Membros que cumprem certas condições relacionadas com a interconectividade da sua rede elétrica, a participação de um único combustível fóssil na produção de eletricidade e o PIB interno em relação à média da UE-27 . Além disso, a quantidade de licenças gratuitas que um Estado-Membro pode atribuir a usinas de energia é limitada a 70 de emissões de dióxido de carbono de plantas relevantes na fase 1 e declina nos anos subseqüentes. Além disso, a alocação gratuita na fase 3 só pode ser dada às usinas que estejam operacionais ou em construção até o final de 2008. Veja a resposta à pergunta 15 abaixo. Haverá mais detalhes na Diretiva sobre os critérios a serem utilizados para determinar os setores ou subsectores considerados expostos a um risco significativo de vazamento de carbono. E uma data anterior à publicação da lista das Comissões desses sectores (31 de dezembro de 2009). Além disso, sujeito a revisão quando um acordo internacional satisfatório for alcançado, as instalações em todas as indústrias expostas receberão 100 subsídios gratuitos, na medida em que eles usem a tecnologia mais eficiente. A alocação gratuita para a indústria está limitada à participação dessas emissões nas emissões totais em 2005 a 2007. O número total de licenças alocadas para instalações gratuitas nos setores da indústria diminuirá anualmente em linha com o declínio do limite de emissões. Os Estados-Membros também podem compensar certas instalações para os custos de CO 2 repercutidos nos preços da electricidade se os custos de CO 2 puderem, de outro modo, expô-los ao risco de vazamento de carbono. A Comissão comprometeu-se a alterar as orientações comunitárias relativas aos auxílios estatais a favor do ambiente a este respeito. Veja a resposta à pergunta 15 abaixo. O nível de leilão de licenças de emissão para a indústria não exposta aumentará de forma linear, conforme proposto pela Comissão, mas, em vez de atingir 100 em 2020, chegará a 70, com vista a atingir 100 até 2027. Conforme previsto na proposta da Comissão , 10 dos subsídios de leilão serão redistribuídos dos Estados-Membros com alta renda per capita para aqueles com baixa renda per capita, a fim de fortalecer a capacidade financeira destes últimos para investir em tecnologias amigáveis com o clima. Foi adicionada uma provisão para outro mecanismo redistributivo de 2 de licenças de leilão para levar em consideração os Estados membros que em 2005 alcançaram uma redução de pelo menos 20 em emissões de gases de efeito estufa em relação ao ano de referência estabelecido pelo Protocolo de Quioto. A parte das receitas de leilão que os Estados-Membros são recomendados para lutar e se adaptar às mudanças climáticas, principalmente na UE, mas também nos países em desenvolvimento, é aumentada de 20 para 50. O texto prevê um complemento ao nível permitido proposto De uso de créditos JI CDM no cenário 20 para operadores existentes que receberam os orçamentos mais baixos para importar e usar esses créditos em relação a alocações e acesso a créditos no período 2008-2012. Novos setores, novos participantes nos períodos 2013-2020 e 2008-2012 também poderão usar créditos. O montante total de créditos que podem ser utilizados não excederá, contudo, 50 da redução entre 2008 e 2020. Com base numa redução de emissões mais rigorosa no contexto de um acordo internacional satisfatório, a Comissão poderia permitir acesso adicional às RCE e URE para Operadores no regime comunitário. Ver resposta à pergunta 20 abaixo. O produto do leilão de 300 milhões de licenças da reserva dos novos participantes será utilizado para apoiar até 12 projetos e projetos de demonstração de captura e armazenamento de carbono demonstrando tecnologias inovadoras de energia renovável. Uma série de condições são anexadas a este mecanismo de financiamento. Veja a resposta à pergunta 30 abaixo. A possibilidade de exclusão de pequenas instalações de combustão, desde que estejam sujeitas a medidas equivalentes, tenha sido ampliada para cobrir todas as pequenas instalações, independentemente da atividade, o limite de emissão foi aumentado de 10.000 para 25.000 toneladas de CO 2 por ano e o limite de capacidade que As instalações de combustão têm que cumprir, além disso, foram aumentadas de 25MW para 35MW. Com esses limiares aumentados, a participação das emissões cobertas que poderiam ser excluídas do sistema de comércio de emissões torna-se significativa e, conseqüentemente, uma provisão foi adicionada para permitir uma redução correspondente do limite de licenças de emissão da UE. Ainda haverá planos nacionais de atribuição (NAPs). Nos seus PAN para os primeiros períodos de negociação (2005-2007) e segundo (2008-2012), os Estados-Membros determinaram a quantidade total de licenças a serem emitidas e a forma como estes Seria atribuído às instalações em questão. Esta abordagem gerou diferenças significativas nas regras de alocação, criando um incentivo para cada Estado-Membro para favorecer sua própria indústria e gerou uma grande complexidade. A partir do terceiro período de negociação, haverá um único limite para a UE e as licenças serão alocadas com base em regras harmonizadas. Os planos nacionais de alocação não serão mais necessários. Como determinar o limite de emissão na fase 3 As regras para o cálculo do limite da UE são as seguintes: a partir de 2013, o número total de licenças diminuirá anualmente de forma linear. O ponto de partida desta linha é a quantidade total média de subsídios (limite de fase 2) a ser emitido pelos Estados Membros para o período 2008-12, ajustado para refletir o escopo ampliado do sistema a partir de 2013, bem como quaisquer pequenas instalações que o Membro Os Estados escolheram excluir. O fator linear pelo qual o montante anual deve diminuir é de 1,74 em relação ao limite da fase 2. O ponto de partida para a determinação do fator linear de 1,74 é a redução global de gases com efeito de estufa em relação a 1990, o que equivale a uma redução de 14 em relação a 2005. No entanto, é necessária uma redução maior do ETS da UE porque é mais barato reduzir Emissões nos setores ETS. A divisão que minimiza o custo global de redução equivale a: uma redução de 21 emissões do sistema EU ETS em relação a 2005, em 2020, uma redução de cerca de 10 em relação a 2005 para os setores que não são abrangidos pelo ETS da UE. A redução de 21 em 2020 resulta em um limite de ETS em 2020 de um máximo de 1720 milhões de licenças de emissão e implica um limite médio de fase 3 (2013 a 2020) de cerca de 1846 milhões de licenças e uma redução de 11 em relação ao limite de fase 2. Todos os valores absolutos indicados correspondem à cobertura no início do segundo período de negociação e, portanto, não levam em conta a aviação, que será adicionada em 2012 e outros setores que serão adicionados na fase 3. Os valores finais dos limites anuais de emissão Na fase 3 será determinado e publicado pela Comissão até 30 de setembro de 2010. Como o limite de emissão para além da fase 3 será determinado O fator linear de 1,74 usado para determinar o limite da fase 3 continuará a ser aplicado além do final do período de negociação em 2020 e determinará o limite para o quarto período de negociação (2021 a 2028) e além. Pode ser revisto até 2025, o mais tardar. De fato, as reduções significativas de emissões de 60-80 em relação a 1990 serão necessárias até 2050 para alcançar o objetivo estratégico de limitar o aumento da temperatura média global para não mais do que 2C acima dos níveis pré-industriais. Será estabelecido um limite global de licenças de emissão a nível da UE para cada ano. Isso reduziria a flexibilidade para as instalações em questão. Não, a flexibilidade para as instalações não será reduzida. Em qualquer ano, os subsídios a serem leilados e distribuídos devem ser emitidos pelas autoridades competentes até 28 de fevereiro. A última data para os operadores renderem subsídios é 30 de abril do ano seguinte ao ano em que as emissões ocorreram. Assim, os operadores recebem subsídios para o ano em curso antes de terem que entregar subsídios para cobrir suas emissões para o ano anterior. Os subsídios permanecem válidos durante o período de negociação e quaisquer subsídios excedentes agora podem ser depositados para uso em períodos de negociação subsequentes. A este respeito, nada mudará. O sistema permanecerá com base nos períodos de negociação, mas o terceiro período de negociação durará oito anos, de 2013 para 2020, em oposição a cinco anos para a segunda fase de 2008 a 2012. Para o segundo período de negociação, os Estados-Membros geralmente decidiram alocar igual Quantidades totais de licenças para cada ano. A diminuição linear de cada ano a partir de 2013 corresponderá melhor às tendências de emissões esperadas ao longo do período. Quais são os valores preliminares preliminares do ETS para o período de 2013 a 2020 Os valores provisórios da base anual são os seguintes: Estes valores são baseados no escopo do RCLE, conforme aplicável na fase 2 (2008 a 2012), e as decisões da Comissão sobre o Planos nacionais de alocação para a fase 2, no valor de 2083 milhões de toneladas. Estes números serão ajustados por vários motivos. Em primeiro lugar, será feito o ajuste para levar em consideração as extensões do escopo na fase 2, desde que os Estados Membros comprovem e verifiquem suas emissões resultantes dessas extensões. Em segundo lugar, o ajuste será feito com relação a novas extensões do escopo do ETS no terceiro período de negociação. Em terceiro lugar, qualquer opt-out de pequenas instalações levará a uma redução correspondente do limite. Em quarto lugar, os números não levam em conta a inclusão da aviação, nem as emissões da Noruega, da Islândia e do Liechtenstein. Os subsídios ainda serão alocados para livre Sim. As instalações industriais receberão alocação transitória livre. E, nos Estados-Membros elegíveis para a derrogação facultativa, as centrais eléctricas podem, se o Estado-Membro assim o decidir, também receber licenças gratuitas. Estima-se que pelo menos metade dos subsídios disponíveis a partir de 2013 sejam leiloados. Embora a grande maioria das licenças de emissão tenha sido atribuída gratuitamente às instalações no primeiro e segundo períodos de negociação, a Comissão propôs que o leilão de licenças de emissão se tornasse o princípio básico da alocação. Isso porque o leilão melhor garante a eficiência, transparência e simplicidade do sistema e cria o maior incentivo para investimentos em uma economia de baixo carbono. É melhor cumprir o princípio do poluidor-pagador e evita dar lucros inesperados a certos setores que passaram o custo nocional de subsídios para seus clientes, apesar de recebê-los de graça. Como as licenças serão entregues de graça Até 31 de dezembro de 2010, a Comissão adotará regras a nível da UE, que serão desenvolvidas no âmbito de um procedimento de comitê (Comitologia). Essas regras harmonizarão totalmente as dotações e, portanto, todas as empresas em toda a UE com as mesmas atividades ou atividades similares estarão sujeitas às mesmas regras. As regras assegurarão, na medida do possível, que a alocação promova tecnologias eficientes em carbono. As regras adotadas estabelecem que, na medida do possível, as alocações devem basear-se nos chamados benchmarks, p. Ex. Uma série de licenças por quantidade de produção histórica. Essas regras recompensam os operadores que tomaram medidas adiantadas para reduzir os gases de efeito estufa, refletem melhor o princípio do poluidor-pagador e dão incentivos mais fortes para reduzir as emissões, já que as alocações não dependerão mais das emissões históricas. Todas as alocações devem ser determinadas antes do início do terceiro período de negociação e não serão permitidos ajustes ex-post. Quais instalações receberão alocações gratuitas e quais não serão Como os impactos negativos sobre a competitividade serão evitados Tendo em vista sua capacidade de repercutir o aumento do custo das licenças de emissão, o leilão completo é a regra a partir de 2013 para geradores de eletricidade. No entanto, os Estados-Membros que cumprem certas condições relativas à sua interligação ou à sua quota de combustíveis fósseis na produção de electricidade e PIB per capita em relação à média da UE-27 têm a opção de se desviar temporariamente desta regra em relação às centrais eléctricas existentes. A taxa de leilão em 2013 deve ser de pelo menos 30 em relação às emissões no primeiro período e deve aumentar progressivamente para 100 o mais tardar em 2020. Se a opção for aplicada, o Estado-Membro deve comprometer-se a investir na melhoria e atualização de A infra-estrutura, as tecnologias limpas e a diversificação do seu mix energético e fontes de abastecimento, na medida do possível, igual ao valor de mercado da alocação gratuita. Em outros sectores, as dotações gratuitas serão progressivamente eliminadas a partir de 2013, tendo os Estados-Membros acordado começar em 20 leilões em 2013, aumentando para 70 leilões em 2020, com vista a atingir 100 em 2027. No entanto, será feita uma excepção para Instalações em setores que se encontram expostos a um risco significativo de vazamento de carbono. Este risco poderia ocorrer se o ETS da UE aumentasse tanto os custos de produção que as empresas decidissem deslocalizar a produção para áreas fora da UE que não estão sujeitas a restrições de emissão comparáveis. A Comissão determinará os sectores em causa até 31 de Dezembro de 2009. Para o efeito, a Comissão avaliará, nomeadamente, se os custos de produção adicionais directos e indirectos induzidos pela aplicação da Directiva ETS em relação ao valor acrescentado bruto excedem 5 e se a O valor total de suas exportações e importações dividido pelo valor total do seu volume de negócios e as importações excedem 10. Se o resultado para qualquer um desses critérios exceder 30, o setor também seria considerado exposto a um risco significativo de vazamento de carbono. As instalações nesses setores receberiam 100 da sua participação na quantidade total anual de licenças de emissão anualmente gratuitas. A participação destas emissões das indústrias é determinada em relação às emissões totais de ETS em 2005 a 2007. Os custos de CO 2 repercutidos nos preços da eletricidade também podem expor certas instalações ao risco de vazamento de carbono. A fim de evitar esse risco, os Estados-Membros podem conceder uma compensação em relação a tais custos. Na ausência de um acordo internacional sobre alterações climáticas, a Comissão comprometeu-se a modificar as orientações comunitárias relativas aos auxílios estatais a favor do ambiente a este respeito. De acordo com um acordo internacional que garanta que concorrentes em outras partes do mundo tenham um custo comparável, o risco de vazamento de carbono pode ser insignificante. Por conseguinte, até 30 de Junho de 2010, a Comissão procederá a uma avaliação aprofundada da situação da indústria de consumo intensivo de energia e ao risco de vazamento de carbono, à luz dos resultados das negociações internacionais e também tendo em conta qualquer sector vinculativo Acordos que podem ter sido concluídos. O relatório será acompanhado de quaisquer propostas consideradas apropriadas. Estes poderiam potencialmente incluir a manutenção ou o ajustamento da proporção de licenças recebidas gratuitamente para instalações industriais particularmente expostas à concorrência global ou incluindo importadores dos produtos em causa no ETS. Quem irá organizar os leilões e como serão realizados. Os Estados-Membros serão responsáveis por assegurar que os subsídios que lhes são concedidos sejam leiloados. Cada Estado-Membro deve decidir se quer desenvolver a sua própria infra-estrutura e plataforma de leilões ou se quer cooperar com outros Estados-Membros para desenvolver soluções regionais ou a nível da UE. A distribuição dos direitos de leilão aos Estados-Membros baseia-se largamente nas emissões na fase 1 do RCLE da UE, mas uma parte dos direitos será redistribuída dos Estados-Membros mais ricos para os mais pobres para ter em conta o PIB por cabeça mais baixo e as perspectivas mais elevadas Para o crescimento e as emissões entre estes últimos. Ainda é verdade que 10 dos direitos de licenças de leilão serão redistribuídos dos Estados-Membros com alta renda per capita para aqueles com baixa renda per capita, a fim de fortalecer a capacidade financeira destes últimos para investir em tecnologias amigáveis com o clima. No entanto, foi aditada uma disposição para outro mecanismo redistributivo de 2 para ter em conta os Estados-Membros que, em 2005, conseguiram uma redução de pelo menos 20 em emissões de gases com efeito de estufa em comparação com o ano de referência estabelecido pelo Protocolo de Quioto. Nove Estados-Membros beneficiam desta disposição. Qualquer leilão deve respeitar as regras do mercado interno e, por conseguinte, deve estar aberto a qualquer potencial comprador em condições não discriminatórias. Até 30 de junho de 2010, a Comissão adotará um regulamento (através do procedimento de comitologia) que providenciará as regras e condições adequadas para garantir leilões eficientes e coordenados sem perturbar o mercado de licenças. Quantos subsídios cada leilão de Estado-Membro e como este montante é determinado Todos os subsídios que não são alocados gratuitamente serão leiloados. Um total de 88 de licenças de emissão a serem leiloadas por cada Estado-Membro é distribuído com base na participação dos Estados-Membros nas emissões históricas no âmbito do RCLE-UE. Para fins de solidariedade e crescimento, 12 da quantidade total são distribuídos de forma a ter em conta o PIB per capita e os resultados obtidos no Protocolo de Quioto. Quais setores e gases são cobertos a partir de 2013 O ETS abrange instalações que realizam atividades especificadas. Desde o início, cobriu, acima de certos limiares de capacidade, centrais elétricas e outras instalações de combustão, refinarias de petróleo, fornos de coque, plantas de ferro e aço e fábricas de cimento, vidro, lima, tijolos, cerâmica, celulose, papel e cartão. Quanto aos gases de efeito estufa, atualmente apenas abrange as emissões de dióxido de carbono, com exceção da Holanda, que optou pelas emissões do óxido nitroso. A partir de 2013, o alcance do ETS será alargado para incluir também outros sectores e gases com efeito de estufa. Serão incluídas emissões de CO 2 provenientes de produtos petroquímicos, amônia e alumínio, assim como as emissões de N2O da produção de produção de ácido nítrico, adipico e glicocálico e perfluorocarbonos do setor de alumínio. A captura, transporte e armazenamento geológico de todas as emissões de gases de efeito estufa também serão cobertos. Estes sectores receberão gratuitamente subsídios de acordo com as regras da UE, da mesma forma que outros sectores industriais já cobertos. A partir de 2012, a aviação também será incluída no ETS da UE. As pequenas instalações serão excluídas do escopo. Um grande número de instalações que emitem quantidades relativamente baixas de CO 2 são atualmente cobertas pelo ETS e preocupações foram levantadas sobre a relação custo-eficácia de sua inclusão. A partir de 2013, os Estados-Membros terão permissão para remover estas instalações do ETS sob certas condições. As instalações em causa são aquelas cujas emissões comunicadas foram inferiores a 25 000 toneladas de equivalente de CO 2 em cada um dos 3 anos anteriores ao ano de aplicação. Para instalações de combustão, aplica-se um limite de capacidade adicional de 35MW. Além disso, os Estados-Membros têm a possibilidade de excluir instalações operadas por hospitais. As instalações só podem ser excluídas do ETS se forem cobertas por medidas que alcancem uma contribuição equivalente para reduções de emissões. Quantos créditos de emissão de países terceiros serão permitidos No segundo período de negociação, os Estados-Membros permitiram que seus operadores usassem quantidades significativas de créditos gerados por projetos de poupança de emissões realizados em países terceiros para cobrir parte de suas emissões da mesma maneira que eles usam Subsídios do ETS. The revised Directive extends the rights to use these credits for the third trading period and allows a limited additional quantity to be used in such a way that the overall use of credits is limited to 50 of the EU-wide reductions over the period 2008-2020. For existing installations, and excluding new sectors within the scope, this will represent a total level of access of approximately 1.6 billion credits over the period 2008-2020. In practice, this means that existing operators will be able to use credits up to a minimum of 11 of their allocation during the period 2008-2012, while a top-up is foreseen for operators with the lowest sum of free allocation and allowed use of credits in the 2008-2012 period. New sectors and new entrants in the third trading period will have a guaranteed minimum access of 4.5 of their verified emissions during the period 2013-2020. For the aviation sector, the minimum access will be 1.5. The precise percentages will be determined through comitology. These projects must be officially recognised under the Kyoto Protocols Joint Implementation (JI) mechanism (covering projects carried out in countries with an emissions reduction target under the Protocol) or Clean Development Mechanism (CDM) (for projects undertaken in developing countries). Credits from JI projects are known as Emission Reduction Units (ERUs) while those from CDM projects are called Certified Emission Reductions (CERs). On the quality side only credits from project types eligible for use in the EU trading scheme during the period 2008-2012 will be accepted in the period 2013-2020. Furthermore, from 1 January 2013 measures may be applied to restrict the use of specific credits from project types. Such a quality control mechanism is needed to assure the environmental and economic integrity of future project types. To create greater flexibility, and in the absence of an international agreement being concluded by 31 December 2009, credits could be used in accordance with agreements concluded with third countries. The use of these credits should however not increase the overall number beyond 50 of the required reductions. Such agreements would not be required for new projects that started from 2013 onwards in Least Developed Countries. Based on a stricter emissions reduction in the context of a satisfactory international agreement . additional access to credits could be allowed, as well as the use of additional types of project credits or other mechanisms created under the international agreement. However, once an international agreement has been reached, from January 2013 onwards only credits from projects in third countries that have ratified the agreement or from additional types of project approved by the Commission will be eligible for use in the Community scheme. Will it be possible to use credits from carbon sinks like forests No. Before making its proposal, the Commission analysed the possibility of allowing credits from certain types of land use, land-use change and forestry (LULUCF) projects which absorb carbon from the atmosphere. It concluded that doing so could undermine the environmental integrity of the EU ETS, for the following reasons: LULUCF projects cannot physically deliver permanent emissions reductions. Insufficient solutions have been developed to deal with the uncertainties, non-permanence of carbon storage and potential emissions leakage problems arising from such projects. The temporary and reversible nature of such activities would pose considerable risks in a company-based trading system and impose great liability risks on Member States. The inclusion of LULUCF projects in the ETS would require a quality of monitoring and reporting comparable to the monitoring and reporting of emissions from installations currently covered by the system. This is not available at present and is likely to incur costs which would substantially reduce the attractiveness of including such projects. The simplicity, transparency and predictability of the ETS would be considerably reduced. Moreover, the sheer quantity of potential credits entering the system could undermine the functioning of the carbon market unless their role were limited, in which case their potential benefits would become marginal. The Commission, the Council and the European Parliament believe that global deforestation can be better addressed through other instruments. For example, using part of the proceeds from auctioning allowances in the EU ETS could generate additional means to invest in LULUCF activities both inside and outside the EU, and may provide a model for future expansion. In this respect the Commission has proposed to set up the Global Forest Carbon Mechanism that would be a performance-based system for financing reductions in deforestation levels in developing countries. Besides those already mentioned, are there other credits that could be used in the revised ETS Yes. Projects in EU Member States which reduce greenhouse gas emissions not covered by the ETS could issue credits. These Community projects would need to be managed according to common EU provisions set up by the Commission in order to be tradable throughout the system. Such provisions would be adopted only for projects that cannot be realised through inclusion in the ETS. The provisions will seek to ensure that credits from Community projects do not result in double-counting of emission reductions nor impede other policy measures to reduce emissions not covered by the ETS, and that they are based on simple, easily administered rules. Are there measures in place to ensure that the price of allowances wont fall sharply during the third trading period A stable and predictable regulatory framework is vital for market stability. The revised Directive makes the regulatory framework as predictable as possible in order to boost stability and rule out policy-induced volatility. Important elements in this respect are the determination of the cap on emissions in the Directive well in advance of the start of the trading period, a linear reduction factor for the cap on emissions which continues to apply also beyond 2020 and the extension of the trading period from 5 to 8 years. The sharp fall in the allowance price during the first trading period was due to over-allocation of allowances which could not be banked for use in the second trading period. For the second and subsequent trading periods, Member States are obliged to allow the banking of allowances from one period to the next and therefore the end of one trading period is not expected to have any impact on the price. A new provision will apply as of 2013 in case of excessive price fluctuations in the allowance market. If, for more than six consecutive months, the allowance price is more than three times the average price of allowances during the two preceding years on the European market, the Commission will convene a meeting with Member States. If it is found that the price evolution does not correspond to market fundamentals, the Commission may either allow Member States to bring forward the auctioning of a part of the quantity to be auctioned, or allow them to auction up to 25 of the remaining allowances in the new entrant reserve. The price of allowances is determined by supply and demand and reflects fundamental factors like economic growth, fuel prices, rainfall and wind (availability of renewable energy) and temperature (demand for heating and cooling) etc. A degree of uncertainty is inevitable for such factors. The markets, however, allow participants to hedge the risks that may result from changes in allowances prices. Are there any provisions for linking the EU ETS to other emissions trading systems Yes. One of the key means to reduce emissions more cost-effectively is to enhance and further develop the global carbon market. The Commission sees the EU ETS as an important building block for the development of a global network of emission trading systems. Linking other national or regional cap-and-trade emissions trading systems to the EU ETS can create a bigger market, potentially lowering the aggregate cost of reducing greenhouse gas emissions. The increased liquidity and reduced price volatility that this would entail would improve the functioning of markets for emission allowances. This may lead to a global network of trading systems in which participants, including legal entities, can buy emission allowances to fulfil their respective reduction commitments. The EU is keen to work with the new US Administration to build a transatlantic and indeed global carbon market to act as the motor of a concerted international push to combat climate change. While the original Directive allows for linking the EU ETS with other industrialised countries that have ratified the Kyoto Protocol, the new rules allow for linking with any country or administrative entity (such as a state or group of states under a federal system) which has established a compatible mandatory cap-and-trade system whose design elements would not undermine the environmental integrity of the EU ETS. Where such systems cap absolute emissions, there would be mutual recognition of allowances issued by them and the EU ETS. What is a Community registry and how does it work Registries are standardised electronic databases ensuring the accurate accounting of the issuance, holding, transfer and cancellation of emission allowances. As a signatory to the Kyoto Protocol in its own right, the Community is also obliged to maintain a registry. This is the Community Registry, which is distinct from the registries of Member States. Allowances issued from 1 January 2013 onwards will be held in the Community registry instead of in national registries. Will there be any changes to monitoring, reporting and verification requirements The Commission will adopt a new Regulation (through the comitology procedure) by 31 December 2011 governing the monitoring and reporting of emissions from the activities listed in Annex I of the Directive. A separate Regulation on the verification of emission reports and the accreditation of verifiers should specify conditions for accreditation, mutual recognition and cancellation of accreditation for verifiers, and for supervision and peer review as appropriate. What provision will be made for new entrants into the market Five percent of the total quantity of allowances will be put into a reserve for new installations or airlines that enter the system after 2013 (new entrants). The allocations from this reserve should mirror the allocations to corresponding existing installations. A part of the new entrant reserve, amounting to 300 million allowances, will be made available to support the investments in up to 12 demonstration projects using the carbon capture and storage technology and demonstration projects using innovative renewable energy technologies. There should be a fair geographical distribution of the projects. In principle, any allowances remaining in the reserve shall be distributed to Member States for auctioning. The distribution key shall take into account the level to which installations in Member States have benefited from this reserve. What has been agreed with respect to the financing of the 12 carbon capture and storage demonstration projects requested by a previous European Council The European Parliaments Environment Committee tabled an amendment to the EU ETS Directive requiring allowances in the new entrant reserve to be set aside in order to co-finance up to 12 demonstration projects as requested by the European Council in spring 2007. This amendment has later been extended to include also innovative renewable energy technologies that are not commercially viable yet. Projects shall be selected on the basis of objective and transparent criteria that include requirements for knowledge sharing. Support shall be given from the proceeds of these allowances via Member States and shall be complementary to substantial co-financing by the operator of the installation. No project shall receive support via this mechanism that exceeds 15 of the total number of allowances (i. e. 45 million allowances) available for this purpose. The Member State may choose to co-finance the project as well, but will in any case transfer the market value of the attributed allowances to the operator, who will not receive any allowances. A total of 300 million allowances will therefore be set aside until 2015 for this purpose. What is the role of an international agreement and its potential impact on EU ETS When an international agreement is reached, the Commission shall submit a report to the European Parliament and the Council assessing the nature of the measures agreed upon in the international agreement and their implications, in particular with respect to the risk of carbon leakage. On the basis of this report, the Commission shall then adopt a legislative proposal amending the present Directive as appropriate. For the effects on the use of credits from Joint Implementation and Clean Development Mechanism projects, please see the reply to question 20. What are the next steps Member States have to bring into force the legal instruments necessary to comply with certain provisions of the revised Directive by 31 December 2009. This concerns the collection of duly substantiated and verified emissions data from installations that will only be covered by the EU ETS as from 2013, and the national lists of installations and the allocation to each one. For the remaining provisions, the national laws, regulations and administrative provisions only have to be ready by 31 December 2012. The Commission has already started the work on implementation. For example, the collection and analysis of data for use in relation to carbon leakage is ongoing (list of sectors due end 2009). Work is also ongoing to prepare the Regulation on timing, administration and other aspects of auctioning (due by June 2010), the harmonised allocation rules (due end 2010) and the two Regulations on monitoring and reporting of emissions and verification of emissions and accreditation of verifiers (due end 2011).The EU Emissions Trading System (EU ETS) The EU emissions trading system (EU ETS) is a cornerstone of the EUs policy to combat climate change and its key tool for reducing greenhouse gas emissions cost-effectively. It is the worlds first major carbon market and remains the biggest one. operates in 31 countries (all 28 EU countries plus Iceland, Liechtenstein and Norway) limits emissions from more than 11,000 heavy energy-using installations (power stations amp industrial plants) and airlines operating between these countries covers around 45 of the EUs greenhouse gas emissions. A cap and trade system The EU ETS works on the cap and trade principle. A cap is set on the total amount of certain greenhouse gases that can be emitted by installations covered by the system. The cap is reduced over time so that total emissions fall . Within the cap, companies receive or buy emission allowances which they can trade with one another as needed. They can also buy limited amounts of international credits from emission-saving projects around the world. The limit on the total number of allowances available ensures that they have a value. After each year a company must surrender enough allowances to cover all its emissions, otherwise heavy fines are imposed. If a company reduces its emissions, it can keep the spare allowances to cover its future needs or else sell them to another company that is short of allowances. Trading brings flexibility that ensures emissions are cut where it costs least to do so . A robust carbon price also promotes investment in clean, low-carbon technologies . Key features of phase 3 (2013-2020) The EU ETS is now in its third phase significantly different from phases 1 and 2 . The main changes are: A single, EU-wide cap on emissions applies in place of the previous system of national caps Auctioning is the default method for allocating allowances (instead of free allocation ), and harmonised allocation rules apply to the allowances still given away for free More sectors and gases included 300 million allowances set aside in the New Entrants Reserve to fund the deployment of innovative renewable energy technologies and carbon capture and storage through the NER 300 programme Sectors and gases covered The system covers the following sectors and gases with the focus on emissions that can be measured, reported and verified with a high level of accuracy: carbon dioxide (CO 2 ) from power and heat generation energy-intensive industry sectors including oil refineries, steel works and production of iron, aluminium, metals, cement, lime, glass, ceramics, pulp, paper, cardboard, acids and bulk organic chemicals commercial aviation nitrous oxide (N 2 O) from production of nitric, adipic and glyoxylic acids and glyoxal perfluorocarbons (PFCs) from aluminium production Participation in the EU ETS is mandatory for companies in these sectors . but in some sectors only plants above a certain size are included certain small installations can be excluded if governments put in place fiscal or other measures that will cut their emissions by an equivalent amount in the aviation sector, until 2016 the EU ETS applies only to flights between airports located in the European Economic Area (EEA). Delivering emissions reductions The EU ETS has proved that putting a price on carbon and trading in it can work. Emissions from installations in the scheme are falling as intended by around 5 compared to the beginning of phase 3 (2013) (see 2015 figures ). In 2020 . emissions from sectors covered by the system will be 21 lower than in 2005 . Developing the carbon market Set up in 2005, the EU ETS is the worlds first and biggest international emissions trading system, accounting for over three-quarters of international carbon trading . The EU ETS is also inspiring the development of emissions trading in other countries and regions. The EU aims to link the EU ETS with other compatible systems. Main EU ETS legislation Carbon market reports Revision of the EU ETS for phase 3 Implementation Legislative History of Directive 2003 87 EC Work prior to the Commission proposal Commission proposal of October 2001 Commissions reaction to reading of the proposal in Council and Parliament (including Councils common position) Open all questions Questions and Answers on the revised EU Emissions Trading System (December 2008) What is the aim of emissions trading The aim of the EU Emissions Trading System (EU ETS) is to help EU Member States achieve their commitments to limit or reduce greenhouse gas emissions in a cost-effective way. Allowing participating companies to buy or sell emission allowances means that emission cuts can be achieved at least cost. The EU ETS is the cornerstone of the EUs strategy for fighting climate change. It is the first international trading system for CO 2 emissions in the world and has been in operation since 2005. As of I January 2008 it applies not only to the 27 EU Member States, but also to the other three members of the European Economic Area Norway, Iceland and Liechtenstein. It currently covers over 10,000 installations in the energy and industrial sectors which are collectively responsible for close to half of the EUs emissions of CO 2 and 40 of its total greenhouse gas emissions. An amendment to the EU ETS Directive agreed in July 2008 will bring the aviation sector into the system from 2012. How does emissions trading work The EU ETS is a cap and trade system, that is to say it caps the overall level of emissions allowed but, within that limit, allows participants in the system to buy and sell allowances as they require. These allowances are the common trading currency at the heart of the system. One allowance gives the holder the right to emit one tonne of CO 2 or the equivalent amount of another greenhouse gas. The cap on the total number of allowances creates scarcity in the market. In the first and second trading period under the scheme, Member States had to draw up national allocation plans (NAPs) which determine their total level of ETS emissions and how many emission allowances each installation in their country receives. At the end of each year installations must surrender allowances equivalent to their emissions. Companies that keep their emissions below the level of their allowances can sell their excess allowances. Those facing difficulty in keeping their emissions in line with their allowances have a choice between taking measures to reduce their own emissions such as investing in more efficient technology or using less carbon-intensive energy sources or buying the extra allowances they need on the market, or a combination of the two. Such choices are likely to be determined by relative costs. In this way, emissions are reduced wherever it is most cost-effective to do so. How long has the EU ETS been operating The EU ETS was launched on 1 January 2005. The first trading period ran for three years to the end of 2007 and was a learning by doing phase to prepare for the crucial second trading period. The second trading period began on 1 January 2008 and runs for five years until the end of 2012. The importance of the second trading period stems from the fact that it coincides with the first commitment period of the Kyoto Protocol, during which the EU and other industrialised countries must meet their targets to limit or reduce greenhouse gas emissions. For the second trading period EU ETS emissions have been capped at around 6.5 below 2005 levels to help ensure that the EU as a whole, and Member States individually, deliver on their Kyoto commitments. What are the main lessons learned from experience so far The EU ETS has put a price on carbon and proved that trading in greenhouse gas emissions works. The first trading period successfully established the free trading of emission allowances across the EU, put in place the necessary infrastructure and developed a dynamic carbon market. The environmental benefit of the first phase may be limited due to excessive allocation of allowances in some Member States and some sectors, due mainly to a reliance on emission projections before verified emissions data became available under the EU ETS. When the publication of verified emissions data for 2005 highlighted this over-allocation, the market reacted as would be expected by lowering the market price of allowances. The availability of verified emissions data has allowed the Commission to ensure that the cap on national allocations under the second phase is set at a level that results in real emission reductions. Besides underlining the need for verified data, experience so far has shown that greater harmonisation within the EU ETS is imperative to ensure that the EU achieves its emissions reductions objectives at least cost and with minimal competitive distortions. The need for more harmonisation is clearest with respect to how the cap on overall emission allowances is set. The first two trading periods also show that widely differing national methods for allocating allowances to installations threaten fair competition in the internal market. Furthermore, greater harmonisation, clarification and refinement are needed with respect to the scope of the system, the access to credits from emission-reduction projects outside the EU, the conditions for linking the EU ETS to emissions trading systems elsewhere and the monitoring, verification and reporting requirements. What are the main changes to the EU ETS and as of when will they apply The agreed design changes will apply as of the third trading period, i. e. January 2013. While preparatory work will be initiated immediately, the applicable rules will not change until January 2013 to ensure that regulatory stability is maintained. The EU ETS in the third period will be a more efficient, more harmonised and fairer system. Increased efficiency is achieved by means of a longer trading period (8 years instead of 5 years), a robust and annually declining emissions cap (21 reduction in 2020 compared to 2005) and a substantial increase in the amount of auctioning (from less than 4 in phase 2 to more than half in phase 3). More harmonisation has been agreed in many areas, including with respect to the cap-setting (an EU-wide cap instead of the national caps in phases 1 and 2) and the rules for transitional free allocation. The fairness of the system has been substantially increased by the move towards EU-wide free allocation rules for industrial installations and by the introduction of a redistribution mechanism that entitles new Member States to auction more allowances. How does the final text compare to the initial Commission proposal The climate and energy targets agreed by the 2007 Spring European Council have been maintained and the overall architecture of the Commissions proposal on the EU ETS remains intact. That is to say that there will be one EU-wide cap on the number of emission allowances and this cap will decrease annually along a linear trend line, which will continue beyond the end of the third trading period (2013-2020). The main difference as compared to the proposal is that auctioning of allowances will be phased in more slowly. What are the main changes compared to the Commissions proposal In summary, the main changes that have been made to the proposal are as follows: Certain Member States are allowed an optional and temporary derogation from the rule that no allowances are to be allocated free of charge to electricity generators as of 2013. This option to derogate is available to Member States which fulfil certain conditions related to the interconnectivity of their electricity grid, share of a single fossil fuel in electricity production, and GDP capita in relation to the EU-27 average. In addition, the amount of free allowances that a Member State can allocate to power plants is limited to 70 of carbon dioxide emissions of relevant plants in phase 1 and declines in the years thereafter. Furthermore free allocation in phase 3 can only be given to power plants that are operational or under construction no later than end 2008. See reply to question 15 below. There will be more details in the Directive on the criteria to be used to determine the sectors or sub-sectors deemed to be exposed to a significant risk of carbon leakage . and an earlier date of publication of the Commissions list of such sectors (31 December 2009). Moreover, subject to review when a satisfactory international agreement is reached, installations in all exposed industries will receive 100 free allowances to the extent that they use the most efficient technology. The free allocation to industry is limited to the share of these industries emissions in total emissions in 2005 to 2007. The total number of allowances allocated for free to installations in industry sectors will decline annually in line with the decline of the emissions cap. Member States may also compensate certain installations for CO 2 costs passed on in electricity prices if the CO 2 costs might otherwise expose them to the risk of carbon leakage. The Commission has undertaken to modify the Community guidelines on state aid for environmental protection in this respect. See reply to question 15 below. The level of auctioning of allowances for non-exposed industry will increase in a linear manner as proposed by the Commission, but rather than reaching 100 by 2020 it will reach 70, with a view to reaching 100 by 2027. As foreseen in the Commissions proposal, 10 of the allowances for auctioning will be redistributed from Member States with high per capita income to those with low per capita income in order to strengthen the financial capacity of the latter to invest in climate friendly technologies. A provision has been added for another redistributive mechanism of 2 of auctioned allowances to take into account Member States which in 2005 had achieved a reduction of at least 20 in greenhouse gas emissions compared with the reference year set by the Kyoto Protocol. The share of auctioning revenues that Member States are recommended to use to fight and adapt to climate change mainly within the EU, but also in developing countries, is raised from 20 to 50. The text provides for a top-up to the proposed permitted level of use of JI CDM credits in the 20 scenario for existing operators that received the lowest budgets to import and use such credits in relation to allocations and access to credits in the period 2008-2012. New sectors, new entrants in the periods 2013-2020 and 2008-2012 will also be able to use credits. The total amount of credits that may be used will, however, not exceed 50 of the reduction between 2008 and 2020. Based on a stricter emissions reduction in the context of a satisfactory international agreement, the Commission could allow additional access to CERs and ERUs for operators in the Community scheme. See reply to question 20 below. The proceeds from auctioning 300 million allowances from the new entrants reserve will be used to support up to 12 carbon capture and storage demonstration projects and projects demonstrating innovative renewable energy technologies. A number of conditions are attached to this financing mechanism. See reply to question 30 below. The possibility to opt-out small combustion installations provided they are subject to equivalent measures has been extended to cover all small installations irrespective of activity, the emission threshold has been raised from 10,000 to 25,000 tonnes of CO 2 per year, and the capacity threshold that combustion installations have to fulfil in addition has been raised from 25MW to 35MW. With these increased thresholds, the share of covered emissions that would potentially be excluded from the emissions trading system becomes significant, and consequently a provision has been added to allow for a corresponding reduction of the EU-wide cap on allowances. Will there still be national allocation plans (NAPs) No. In their NAPs for the first (2005-2007) and the second (2008-2012) trading periods, Member States determined the total quantity of allowances to be issued the cap and how these would be allocated to the installations concerned. This approach has generated significant differences in allocation rules, creating an incentive for each Member State to favour its own industry, and has led to great complexity. As from the third trading period, there will be a single EU-wide cap and allowances will be allocated on the basis of harmonised rules. National allocation plans will therefore not be needed any more. How will the emission cap in phase 3 be determined The rules for calculating the EU-wide cap are as follows: From 2013, the total number of allowances will decrease annually in a linear manner. The starting point of this line is the average total quantity of allowances (phase 2 cap) to be issued by Member States for the 2008-12 period, adjusted to reflect the broadened scope of the system from 2013 as well as any small installations that Member States have chosen to exclude. The linear factor by which the annual amount shall decrease is 1.74 in relation to the phase 2 cap. The starting point for determining the linear factor of 1.74 is the 20 overall reduction of greenhouse gases compared to 1990, which is equivalent to a 14 reduction compared to 2005. However, a larger reduction is required of the EU ETS because it is cheaper to reduce emissions in the ETS sectors. The division that minimises overall reduction cost amounts to: a 21 reduction in EU ETS sector emissions compared to 2005 by 2020 a reduction of around 10 compared to 2005 for the sectors that are not covered by the EU ETS. The 21 reduction in 2020 results in an ETS cap in 2020 of a maximum of 1720 million allowances and implies an average phase 3 cap (2013 to 2020) of some 1846 million allowances and a reduction of 11 compared to the phase 2 cap. All absolute figures indicated correspond to the coverage at the start of the second trading period and therefore dont take account of aviation, which will be added in 2012, and other sectors that will be added in phase 3. The final figures for the annual emission caps in phase 3 will be determined and published by the Commission by 30 September 2010. How will the emission cap beyond phase 3 be determined The linear factor of 1.74 used to determine the phase 3 cap will continue to apply beyond the end of the trading period in 2020 and will determine the cap for the fourth trading period (2021 to 2028) and beyond. It may be revised by 2025 at the latest. In fact, significant emission reductions of 60-80 compared to 1990 will be necessary by 2050 to reach the strategic objective of limiting the global average temperature increase to not more than 2C above pre-industrial levels. An EU-wide cap on emission allowances will be determined for each individual year. Will this reduce flexibility for the installations concerned No, flexibility for installations will not be reduced at all. In any year, the allowances to be auctioned and distributed have to be issued by the competent authorities by 28 February. The last date for operators to surrender allowances is 30 April of the year following the year in which the emissions took place. So operators receive allowances for the current year before they have to surrender allowances to cover their emissions for the previous year. Allowances remain valid throughout the trading period and any surplus allowances can now be banked for use in subsequent trading periods. In this respect nothing will change. The system will remain based on trading periods, but the third trading period will last eight years, from 2013 to 2020, as opposed to five years for the second phase from 2008 to 2012. For the second trading period Member States generally decided to allocate equal total quantities of allowances for each year. The linear decrease each year from 2013 will correspond better to expected emissions trends over the period. What are the tentative annual ETS cap figures for the period 2013 to 2020 The tentative annual cap figures are as follows: These figures are based on the scope of the ETS as applicable in phase 2 (2008 to 2012), and the Commissions decisions on the national allocation plans for phase 2, amounting to 2083 million tonnes. These figures will be adjusted for several reasons. Firstly, adjustment will be made to take into account the extensions of the scope in phase 2, provided that Member States substantiate and verify their emissions accruing from these extensions. Secondly, adjustment will be made with respect to further extensions of the scope of the ETS in the third trading period. Thirdly, any opt-out of small installations will lead to a corresponding reduction of the cap. Fourthly, the figures do not take account of the inclusion of aviation, nor of emissions from Norway, Iceland and Liechtenstein. Will allowances still be allocated for free Yes. Industrial installations will receive transitional free allocation. And in those Member States that are eligible for the optional derogation, power plants may, if the Member State so decides, also receive free allowances. It is estimated that at least half of the available allowances as of 2013 will be auctioned. While the great majority of allowances has been allocated free of charge to installations in the first and second trading periods, the Commission proposed that auctioning of allowances should become the basic principle for allocation. This is because auctioning best ensures the efficiency, transparency and simplicity of the system and creates the greatest incentive for investments in a low-carbon economy. It best complies with the polluter pays principle and avoids giving windfall profits to certain sectors that have passed on the notional cost of allowances to their customers despite receiving them for free. How will allowances be handed out for free By 31 December 2010, the Commission will adopt EU-wide rules, which will be developed under a committee procedure (Comitology). These rules will fully harmonise allocations and thus all firms across the EU with the same or similar activities will be subject to the same rules. The rules will ensure as far as possible that the allocation promotes carbon-efficient technologies. The adopted rules provide that to the extent feasible, allocations are to be based on so-called benchmarks, e. g. a number of allowances per quantity of historical output. Such rules reward operators that have taken early action to reduce greenhouse gases, better reflect the polluter pays principle and give stronger incentives to reduce emissions, as allocations would no longer depend on historical emissions. All allocations are to be determined before the start of the third trading period and no ex-post adjustments will be allowed. Which installations will receive free allocations and which will not How will negative impacts on competitiveness be avoided Taking into account their ability to pass on the increased cost of emission allowances, full auctioning is the rule from 2013 onwards for electricity generators. However, Member States who fulfil certain conditions relating to their interconnectivity or their share of fossil fuels in electricity production and GDP per capita in relation to the EU-27 average, have the option to temporarily deviate from this rule with respect to existing power plants. The auctioning rate in 2013 is to be at least 30 in relation to emissions in the first period and has to increase progressively to 100 no later than 2020. If the option is applied, the Member State has to undertake to invest in improving and upgrading of the infrastructure, in clean technologies and in diversification of their energy mix and sources of supply for an amount to the extent possible equal to the market value of the free allocation. In other sectors, allocations for free will be phased out progressively from 2013, with Member States agreeing to start at 20 auctioning in 2013, increasing to 70 auctioning in 2020 with a view to reaching 100 in 2027. However, an exception will be made for installations in sectors that are found to be exposed to a significant risk of carbon leakage. This risk could occur if the EU ETS increased production costs so much that companies decided to relocate production to areas outside the EU that are not subject to comparable emission constraints. The Commission will determine the sectors concerned by 31 December 2009. To do this, the Commission will assess inter alia whether the direct and indirect additional production costs induced by the implementation of the ETS Directive as a proportion of gross value added exceed 5 and whether the total value of its exports and imports divided by the total value of its turnover and imports exceeds 10. If the result for either of these criteria exceeds 30, the sector would also be considered to be exposed to a significant risk of carbon leakage. Installations in these sectors would receive 100 of their share in the annually declining total quantity of allowances for free. The share of these industries emissions is determined in relation to total ETS emissions in 2005 to 2007. CO 2 costs passed on in electricity prices could also expose certain installations to the risk of carbon leakage. In order to avoid such risk, Member States may grant a compensation with respect to such costs. In the absence of an international agreement on climate change, the Commission has undertaken to modify the Community guidelines on state aid for environmental protection in this respect. Under an international agreement which ensures that competitors in other parts of the world bear a comparable cost, the risk of carbon leakage may well be negligible. Therefore, by 30 June 2010, the Commission will carry out an in-depth assessment of the situation of energy-intensive industry and the risk of carbon leakage, in the light of the outcome of the international negotiations and also taking into account any binding sectoral agreements that may have been concluded. The report will be accompanied by any proposals considered appropriate. These could potentially include maintaining or adjusting the proportion of allowances received free of charge to industrial installations that are particularly exposed to global competition or including importers of the products concerned in the ETS. Who will organise the auctions and how will they be carried out Member States will be responsible for ensuring that the allowances given to them are auctioned. Each Member State has to decide whether it wants to develop its own auctioning infrastructure and platform or whether it wants to cooperate with other Member States to develop regional or EU-wide solutions. The distribution of the auctioning rights to Member States is largely based on emissions in phase 1 of the EU ETS, but a part of the rights will be redistributed from richer Member States to poorer ones to take account of the lower GDP per head and higher prospects for growth and emissions among the latter. It is still the case that 10 of the rights to auction allowances will be redistributed from Member States with high per capita income to those with low per capita income in order to strengthen the financial capacity of the latter to invest in climate friendly technologies. However, a provision has been added for another redistributive mechanism of 2 to take into account Member States which in 2005 had achieved a reduction of at least 20 in greenhouse gas emissions compared with the reference year set by the Kyoto Protocol. Nine Member States benefit from this provision. Any auctioning must respect the rules of the internal market and must therefore be open to any potential buyer under non-discriminatory conditions. By 30 June 2010, the Commission will adopt a Regulation (through the comitology procedure) that will provide the appropriate rules and conditions for ensuring efficient, coordinated auctions without disturbing the allowance market. How many allowances will each Member State auction and how is this amount determined All allowances which are not allocated free of charge will be auctioned. A total of 88 of allowances to be auctioned by each Member State is distributed on the basis of the Member States share of historic emissions under the EU ETS. For purposes of solidarity and growth, 12 of the total quantity is distributed in a way that takes into account GDP per capita and the achievements under the Kyoto-Protocol. Which sectors and gases are covered as of 2013 The ETS covers installations performing specified activities. Since the start it has covered, above certain capacity thresholds, power stations and other combustion plants, oil refineries, coke ovens, iron and steel plants and factories making cement, glass, lime, bricks, ceramics, pulp, paper and board. As for greenhouse gases, it currently only covers carbon dioxide emissions, with the exception of the Netherlands, which has opted in emissions from nitrous oxide. As from 2013, the scope of the ETS will be extended to also include other sectors and greenhouse gases. CO 2 emissions from petrochemicals, ammonia and aluminium will be included, as will N2O emissions from the production of nitric, adipic and glyocalic acid production and perfluorocarbons from the aluminium sector. The capture, transport and geological storage of all greenhouse gas emissions will also be covered. These sectors will receive allowances free of charge according to EU-wide rules, in the same way as other industrial sectors already covered. As of 2012, aviation will also be included in the EU ETS. Will small installations be excluded from the scope A large number of installations emitting relatively low amounts of CO 2 are currently covered by the ETS and concerns have been raised over the cost-effectiveness of their inclusion. As from 2013, Member States will be allowed to remove these installations from the ETS under certain conditions. The installations concerned are those whose reported emissions were lower than 25 000 tonnes of CO 2 equivalent in each of the 3 years preceding the year of application. For combustion installations, an additional capacity threshold of 35MW applies. In addition Member States are given the possibility to exclude installations operated by hospitals. The installations may be excluded from the ETS only if they will be covered by measures that will achieve an equivalent contribution to emission reductions. How many emission credits from third countries will be allowed For the second trading period, Member States allowed their operators to use significant quantities of credits generated by emission-saving projects undertaken in third countries to cover part of their emissions in the same way as they use ETS allowances. The revised Directive extends the rights to use these credits for the third trading period and allows a limited additional quantity to be used in such a way that the overall use of credits is limited to 50 of the EU-wide reductions over the period 2008-2020. For existing installations, and excluding new sectors within the scope, this will represent a total level of access of approximately 1.6 billion credits over the period 2008-2020. In practice, this means that existing operators will be able to use credits up to a minimum of 11 of their allocation during the period 2008-2012, while a top-up is foreseen for operators with the lowest sum of free allocation and allowed use of credits in the 2008-2012 period. New sectors and new entrants in the third trading period will have a guaranteed minimum access of 4.5 of their verified emissions during the period 2013-2020. For the aviation sector, the minimum access will be 1.5. The precise percentages will be determined through comitology. These projects must be officially recognised under the Kyoto Protocols Joint Implementation (JI) mechanism (covering projects carried out in countries with an emissions reduction target under the Protocol) or Clean Development Mechanism (CDM) (for projects undertaken in developing countries). Credits from JI projects are known as Emission Reduction Units (ERUs) while those from CDM projects are called Certified Emission Reductions (CERs). On the quality side only credits from project types eligible for use in the EU trading scheme during the period 2008-2012 will be accepted in the period 2013-2020. Furthermore, from 1 January 2013 measures may be applied to restrict the use of specific credits from project types. Such a quality control mechanism is needed to assure the environmental and economic integrity of future project types. To create greater flexibility, and in the absence of an international agreement being concluded by 31 December 2009, credits could be used in accordance with agreements concluded with third countries. The use of these credits should however not increase the overall number beyond 50 of the required reductions. Such agreements would not be required for new projects that started from 2013 onwards in Least Developed Countries. Based on a stricter emissions reduction in the context of a satisfactory international agreement . additional access to credits could be allowed, as well as the use of additional types of project credits or other mechanisms created under the international agreement. However, once an international agreement has been reached, from January 2013 onwards only credits from projects in third countries that have ratified the agreement or from additional types of project approved by the Commission will be eligible for use in the Community scheme. Will it be possible to use credits from carbon sinks like forests No. Before making its proposal, the Commission analysed the possibility of allowing credits from certain types of land use, land-use change and forestry (LULUCF) projects which absorb carbon from the atmosphere. It concluded that doing so could undermine the environmental integrity of the EU ETS, for the following reasons: LULUCF projects cannot physically deliver permanent emissions reductions. Insufficient solutions have been developed to deal with the uncertainties, non-permanence of carbon storage and potential emissions leakage problems arising from such projects. The temporary and reversible nature of such activities would pose considerable risks in a company-based trading system and impose great liability risks on Member States. The inclusion of LULUCF projects in the ETS would require a quality of monitoring and reporting comparable to the monitoring and reporting of emissions from installations currently covered by the system. This is not available at present and is likely to incur costs which would substantially reduce the attractiveness of including such projects. The simplicity, transparency and predictability of the ETS would be considerably reduced. Moreover, the sheer quantity of potential credits entering the system could undermine the functioning of the carbon market unless their role were limited, in which case their potential benefits would become marginal. The Commission, the Council and the European Parliament believe that global deforestation can be better addressed through other instruments. For example, using part of the proceeds from auctioning allowances in the EU ETS could generate additional means to invest in LULUCF activities both inside and outside the EU, and may provide a model for future expansion. In this respect the Commission has proposed to set up the Global Forest Carbon Mechanism that would be a performance-based system for financing reductions in deforestation levels in developing countries. Besides those already mentioned, are there other credits that could be used in the revised ETS Yes. Projects in EU Member States which reduce greenhouse gas emissions not covered by the ETS could issue credits. These Community projects would need to be managed according to common EU provisions set up by the Commission in order to be tradable throughout the system. Such provisions would be adopted only for projects that cannot be realised through inclusion in the ETS. The provisions will seek to ensure that credits from Community projects do not result in double-counting of emission reductions nor impede other policy measures to reduce emissions not covered by the ETS, and that they are based on simple, easily administered rules. Are there measures in place to ensure that the price of allowances wont fall sharply during the third trading period A stable and predictable regulatory framework is vital for market stability. The revised Directive makes the regulatory framework as predictable as possible in order to boost stability and rule out policy-induced volatility. Important elements in this respect are the determination of the cap on emissions in the Directive well in advance of the start of the trading period, a linear reduction factor for the cap on emissions which continues to apply also beyond 2020 and the extension of the trading period from 5 to 8 years. The sharp fall in the allowance price during the first trading period was due to over-allocation of allowances which could not be banked for use in the second trading period. For the second and subsequent trading periods, Member States are obliged to allow the banking of allowances from one period to the next and therefore the end of one trading period is not expected to have any impact on the price. A new provision will apply as of 2013 in case of excessive price fluctuations in the allowance market. If, for more than six consecutive months, the allowance price is more than three times the average price of allowances during the two preceding years on the European market, the Commission will convene a meeting with Member States. If it is found that the price evolution does not correspond to market fundamentals, the Commission may either allow Member States to bring forward the auctioning of a part of the quantity to be auctioned, or allow them to auction up to 25 of the remaining allowances in the new entrant reserve. The price of allowances is determined by supply and demand and reflects fundamental factors like economic growth, fuel prices, rainfall and wind (availability of renewable energy) and temperature (demand for heating and cooling) etc. A degree of uncertainty is inevitable for such factors. The markets, however, allow participants to hedge the risks that may result from changes in allowances prices. Are there any provisions for linking the EU ETS to other emissions trading systems Yes. One of the key means to reduce emissions more cost-effectively is to enhance and further develop the global carbon market. The Commission sees the EU ETS as an important building block for the development of a global network of emission trading systems. Linking other national or regional cap-and-trade emissions trading systems to the EU ETS can create a bigger market, potentially lowering the aggregate cost of reducing greenhouse gas emissions. The increased liquidity and reduced price volatility that this would entail would improve the functioning of markets for emission allowances. This may lead to a global network of trading systems in which participants, including legal entities, can buy emission allowances to fulfil their respective reduction commitments. The EU is keen to work with the new US Administration to build a transatlantic and indeed global carbon market to act as the motor of a concerted international push to combat climate change. While the original Directive allows for linking the EU ETS with other industrialised countries that have ratified the Kyoto Protocol, the new rules allow for linking with any country or administrative entity (such as a state or group of states under a federal system) which has established a compatible mandatory cap-and-trade system whose design elements would not undermine the environmental integrity of the EU ETS. Where such systems cap absolute emissions, there would be mutual recognition of allowances issued by them and the EU ETS. What is a Community registry and how does it work Registries are standardised electronic databases ensuring the accurate accounting of the issuance, holding, transfer and cancellation of emission allowances. As a signatory to the Kyoto Protocol in its own right, the Community is also obliged to maintain a registry. This is the Community Registry, which is distinct from the registries of Member States. Allowances issued from 1 January 2013 onwards will be held in the Community registry instead of in national registries. Will there be any changes to monitoring, reporting and verification requirements The Commission will adopt a new Regulation (through the comitology procedure) by 31 December 2011 governing the monitoring and reporting of emissions from the activities listed in Annex I of the Directive. A separate Regulation on the verification of emission reports and the accreditation of verifiers should specify conditions for accreditation, mutual recognition and cancellation of accreditation for verifiers, and for supervision and peer review as appropriate. What provision will be made for new entrants into the market Five percent of the total quantity of allowances will be put into a reserve for new installations or airlines that enter the system after 2013 (new entrants). The allocations from this reserve should mirror the allocations to corresponding existing installations. A part of the new entrant reserve, amounting to 300 million allowances, will be made available to support the investments in up to 12 demonstration projects using the carbon capture and storage technology and demonstration projects using innovative renewable energy technologies. There should be a fair geographical distribution of the projects. In principle, any allowances remaining in the reserve shall be distributed to Member States for auctioning. The distribution key shall take into account the level to which installations in Member States have benefited from this reserve. What has been agreed with respect to the financing of the 12 carbon capture and storage demonstration projects requested by a previous European Council The European Parliaments Environment Committee tabled an amendment to the EU ETS Directive requiring allowances in the new entrant reserve to be set aside in order to co-finance up to 12 demonstration projects as requested by the European Council in spring 2007. This amendment has later been extended to include also innovative renewable energy technologies that are not commercially viable yet. Projects shall be selected on the basis of objective and transparent criteria that include requirements for knowledge sharing. Support shall be given from the proceeds of these allowances via Member States and shall be complementary to substantial co-financing by the operator of the installation. No project shall receive support via this mechanism that exceeds 15 of the total number of allowances (i. e. 45 million allowances) available for this purpose. The Member State may choose to co-finance the project as well, but will in any case transfer the market value of the attributed allowances to the operator, who will not receive any allowances. A total of 300 million allowances will therefore be set aside until 2015 for this purpose. What is the role of an international agreement and its potential impact on EU ETS When an international agreement is reached, the Commission shall submit a report to the European Parliament and the Council assessing the nature of the measures agreed upon in the international agreement and their implications, in particular with respect to the risk of carbon leakage. On the basis of this report, the Commission shall then adopt a legislative proposal amending the present Directive as appropriate. For the effects on the use of credits from Joint Implementation and Clean Development Mechanism projects, please see the reply to question 20. What are the next steps Member States have to bring into force the legal instruments necessary to comply with certain provisions of the revised Directive by 31 December 2009. This concerns the collection of duly substantiated and verified emissions data from installations that will only be covered by the EU ETS as from 2013, and the national lists of installations and the allocation to each one. For the remaining provisions, the national laws, regulations and administrative provisions only have to be ready by 31 December 2012. The Commission has already started the work on implementation. For example, the collection and analysis of data for use in relation to carbon leakage is ongoing (list of sectors due end 2009). Work is also ongoing to prepare the Regulation on timing, administration and other aspects of auctioning (due by June 2010), the harmonised allocation rules (due end 2010) and the two Regulations on monitoring and reporting of emissions and verification of emissions and accreditation of verifiers (due end 2011).
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