Reduction targets for aviation greenhouse gas emissions

The EU Transport Ministers adopted a set of Conclusions on the limitation of NOx-emissions from aeroplanes during their meeting on June 18, placing the issue in an international context in preparation of ICAO. The EU is pushing at ICAO for a 16% reduction of Nox, which is less than what is technically possible but more than current regulations at ICAO. The EU intents to reach a Commom Position on the Nox directive at the Transport Council on November 30, 1998.

In general, the EU will call at the ICAO General Assembly for action on noise, aircraft emission and kerosene tax. As expected, the European Commission approved at its meeting of May 6, 1998 a communication concerning the environmental impact of air transport, which describes the EU position for ICAO in detail. Germany launched a proposal, which goes a step further than the original, because it felt it was not strong enough. The EU Ministers will vote on this proposal in September.

REDUCTION TARGETS FOR AVIATION GREENHOUSE GAS EMISSIONS

Background:

Greenhouse gas emissions caused by aircraft are now only a few percent of the total, but because air traffic is growing at such a rapid rate, this percentage can be expected to rise quickly. Until Kyoto, aircraft emissions were never mentioned in climate negotiations. The Kyoto Protocol makes a small mention (although nothing binding) of aircraft emissions in that it says that Parties should come up with means to reduce these emissions through the UN organisation ICAO. The ICAO General Assembly meets every 3 years, the next meeting takes place September-October this year (1998), in Montreal. In April the CAEP (Committee on Aviation Environmental Protection, part of ICAO) met in Montreal as well. At both meetings the implications of the Kyoto Protocol regarding aviation emissions will have to be discussed. Biggest problems for including aviation emissions into reduction schemes are the lack of political will and political difficulties for allocating the emissions (who is responsible for which emissions, e.g. emissions above the oceans). The EU is not a member of ICAO, only individual countries are. However, it is expected that the EU will discuss a standpoint (for its member states) for ICAO.

The EU recently outlined measures to reduce CO2 emissions caused by transport (see section 6), while at the same time still fails to take concrete action. The Commission is studying some previous proposals for curbing emissions, such as a tax on fuel, as well as new ideas, including a so-called emissions charge on all aircraft crossing EU airspace (see Journal of Commerce, 3/4/98).

Commission Directorate responsible:

DG VII (Transport).

A. NOX EMISSIONS

Nox emissions from aviation are important due to their contribution to global warming and depletion of the ozone layer. ICAO regulation to reduce Nox emissions is progressing very slowly.

Developments:

Last year the European Commission agreed on a proposal for a Directive to reduce Nox emissions from aircraft with 16% (Proposal for a Council Directive on the limitation of the emission of oxides of nitrogen from civil subsonic jet aeroplanes (COM(97) 629).

This proposal goes further than ICAO regulations in this area, but no further than technology that is widely available today. Going further than ICAO regulations is important because it shows that the EU dares to take a forerunner's role on an issue of air traffic and environment in a situation where ICAO legislation does not move fast enough.

Meanwhile, negotiations with the ICAO are still ongoing. It is still possible that the Commission makes a deal with ICAO on even less then -16% and redraws the EU Directive.

Parliament:

Rapporteur for COM(97) 629: ?

During its Plenary session end March/beginning April, the EP approved the Commission's proposal (Cooperation Procedure, first reading). The dossier was referred to the Environment Committee. The Transport Committee will also deliver an opinion.

Update

EU Transport Ministers adopted a set of Conclusions on the limitation of the emission of oxides on nitrogen (Nox) from civil subsonic jet aeroplanes during their June 18 meeting In Luxembourg. A draft proposal on this matter is now on appraisal with Ministers but the aim on June 18 was to place this issue in an international context in the countdown to an agreement with the International Civil Aviation Organisation (ICAO), which will be concentrating on this topic in the Autumn General Assembly.

For the moment, the Austrians (chairing the EU) intent to reach a Commom Position on the Nox directive at their second Transport Council on November 30, 1998.

A "thematic document" on "the environment and air traffic" published by the European Parliament's studies directorate, indicates that international air traffic generates 2.8M tonnes of nitrous oxide/year. As a rule, air traffic accounts for only 2-3% of greenhouse gas emissions, but according to the study, air transport will double between now and 2010, and polluting emissions are expected to triple by 2015.

B. EU COMMUNICATION: CO2 AND TRANSPORT

In a Communication adopted on March 31, the European Commission pinpoints the transport sector as being a focus of attention in the drive to minimise carbon dioxide emissions, particularly in the context of the Kyoto Convention on Climate Change. According to Commission experts without coordinated action on a European level CO2 emissions from transport (air and road transport in the main), which currently make up 26% of overall emissions, will increase to a significant extent, thereby jeopardising the efforts to achieve the emission reduction targets set at Kyoto. From 1985 to 1995, emissions related to road transport increased by 36%, and those from air transport by 57% (transport related aircraft account for 12% of total CO2 emissions). The significant growth in transport-related CO2 emissions can be explained by several factors: changes in the spatial organisations of economic activities, a reduction in real transport costs and a marked shift away from modes of transport that are relatively energy efficient towards road transport that other transport systems are unable to rival in terms of price, comfort and speed of delivery. Moreover, energy needs in this sector are almost all catered for by polluting fossil fuels, mainly oil.

The Commission believes that a more efficient transport system and the application of technologies in the longer term will help reduce transport CO2 emissions, which implies repercussions for other sectors, such as traffic management land planning and town planning. It is perfectly possible to take a series of measures straightaway, the Commission believes. At the instigation of European Commissioners Neil Kinnock and Ritt Bjerregaard for Transport and the Environment respectively, the Commission is unveiling an action plan for creating a cleaner transport system. The Communication says most of the policies have already been proposed by the Commission or are in preparation and so this report concentrates on how to ensure that they are speedily implemented and monitored. The measures singled out because of their effective cost/benefit ratio include:

· improved logistics;

· initiatives for CO2 emissions from private cars;

· regalvanising the railways;

· promoting public transport;

· maritime cabotage and intermodal transport;

· better air traffic management;

· the introduction of tax measures for the civil aviation sector (VAT and kerosene tax);

· the gradual inclusion of external costs;

· an analysis of the environmental impact made by the trans-European network;

· coordinated land planning.

The Commission acknowledges that often these measures imply an in-depth review of traditional transport practices and habits. In view of the anticipated benefits of this approach, vested interests and rigidities have to be overcome (European Report 04/04/98).

While the analysis and proposed measures seem interesting, it remains unclear, how the Commission wants to put these ideas into practice and how to make concrete steps for the introduction of aviation taxes.

On 22/04/98, Transport Commissioner Neil Kinnock announced that the European Commission will this year publish a communication on air transport and the environment (see section 5), as a complement to the overall document on the measures either implemented or being prepared in the field of transport in general, in order to reduce CO2 emissions. Speaking before the European Airports Union, the ACI, Neil Kinnock pointed out that the aim of this initiative is to elaborate a work programme that mainly covers technical standards on noise and emission stringency.

Mr. Kinnock said that the Environment Council felt that the ICAO standards on emissions of nitrogen oxide (Nox) based on the landing and take off cycle do not go far enough. The new, more binding standards foreseen by ICAO will inevitably be a compromise that was probably only acceptable as a first step in a longer and more comprehensive process'. The Commissioner also stressed that the Commission is, upon the request of transport ministers, preparing a study on the effect that taxation will have on aircraft fuel and will this year present a proposal defining European priorities.

The European Parliament will include its opinion on the Commission's communication on CO2 and Transport in a general resolution on CO2 and Kyoto to be adopted in the September Plenary in Strasbourg.

C. EU PREPARATIONS FOR THE ICAO GENERAL ASSEMBLY

The EU is not officially not a member of ICAO (International Civil Aviation Organisation), the UN body for civil aviation, but it has observer status. The ICAO holds a General Assembly every three years.

Update

The ICAO General Assembly will take place 22 September-2 October. The EU is preparing a common position which will be presented by the Austrian presidency. If it is agreed by the Council, the EU will call for ICAO action on noise, aircraft emissions and kerosene tax. To put pressure on the ICAO, preparation for EU-wide measures will take place in the three years prior to the next General Assembly.

In anticipation of the General Assembly which the Commission will attend as an observer, the EU will seek to reconcile the Community approach and international provisions on improving environmental protection in the air transport sector. It will also seek to obtain undertakings from the ICAO regarding aircraft noise, engine emissions, taxes and charges. "Aviation and the environment" will be one of the core issues addressed at the Assembly. Discussions will focus on aircraft noise, aircraft engine emissions and taxation (notably duties on kerosene). The Community position outlined in the Commission Communication aims on the one hand to ensure the existing and proposed EU legislation is compatible with international resolutions taken by the ICAO, and on the other, to secure undertakings from the international organisation on each of the aforementioned issues.

Germany launched a proposal which goes a step further than the original Commission proposal for an EU standpoint, because it was felt that the original proposal was not strong enough. In September EU Ministers will vote on this proposal.