Reducing emissions from aviation
Aviation is one of the fastest-growing sources of greenhouse gas emissions. The EU is taking action to reduce aviation emissions in Europe and working with the international community to develop measures with global reach.
Aviation included in EU ETS
Since the start of 2012 emissions from all flights from, to and within the European Economic Area (EEA) – the 28 EU Member States, plus Iceland, Liechtenstein and Norway – are included in the EU emissions trading system (EU ETS).
Like industrial installations covered by the system, airlines receive tradeable allowances covering a certain level of CO2 emissions from their flights per year.
The legislation, adopted in 2008, applies to EU and non-EU airlines alike.
Flights within EEA covered for 2013-2016
The International Civil Aviation Organization (ICAO) agreed in 2013 to develop a global market-based mechanism to address international aviation emissions by 2016 and apply it by 2020. This agreement followed years of pressure from the EU for global action.
To allow time for the international negotiations, the EU ETS requirements were suspended for flights in 2012 to and from non-European countries.
In the period 2013-2016, only emissions from flights within the EEA fall under the EU ETS. Exemptions for operators with low emissions have also been introduced.
Under the amended law, the Commission will report to the European Parliament and Council on the outcome of the 2016 ICAO Assembly and propose measures as appropriate to take international developments into account with effect from 2017.
Earlier this year the European Commission launched a public consultation on market-based measures to reduce the climate change impact from international aviation. The consultation sought input on questions concerning the policy options currently being developed at ICAO and in relation to the EU ETS. In total, 85 citizens and organisations responded to the consultation and the contributions have been published on our public consultation website.
Market-based measures are most cost-efficient approach
The Commission proposed to include aviation in the EU ETS after concluding that this was the most cost-efficient and environmentally effective option for controlling aviation emissions. Its decision was based on a wide-ranging stakeholder and public consultation and analysis of several types of market-based solutions.
Compared with alternatives such as a fuel tax, including aviation in the EU ETS provides the same environmental benefit at a lower cost to society – or a higher environmental benefit for the same cost.
In addition to market-based measures, operational measures– such as modernising and improving air traffic management technologies, procedures and systems – also contribute to reducing aviation emissions.
Compatible with international law
The EU's 2008 legislation on aviation emissions is compatible with international law. This was confirmed by the European Court of Justice on 21 December 2011 in a legal case brought by some US airlines and their trade association against the inclusion of aviation in the EU ETS.
The Court stated that:
- the extension of the EU ETS to aviation infringes neither the principle of territoriality, nor the sovereignty of third countries;
- the EU ETS does not constitute a tax, fee or charge on fuel, which could be in breach of the EU-US Air Transport Agreement;
- the uniform application of the EU ETS to European and non-European airlines alike is consistent with provisions in the EU-US Air Transport Agreement prohibiting discriminatory treatment between aircraft operators on nationality grounds.
Aviation emissions growing fast
Someone flying from London to New York and back generates roughly the same level of emissions as the average person in the EU does by heating their home for a whole year.
Direct emissions from aviation account for about 3% of the EU’s total greenhouse gas emissions. The large majority of these emissions comes from international flights.
By 2020, global international aviation emissions are projected to be around 70% higher than in 2005 even if fuel efficiency improves by 2% per year. The ICAO forecasts that by 2050 theycould grow by a further 300-700%.