German Climate Action Plan 2050
The German Climate Action Plan 2050 (
The Climate Action Plan 2050 should not be confused with an earlier document, the Climate Action Programme 2020 (Aktionsprogramm Klimaschutz 2020), approved in December 2014 and which only covers the period until 2020. In early 2017 it was agreed that the 2020 Programme would be scrapped.
Climate targets
Germany announced the following official greenhouse gas emissions targets on 28 September 2010.[3]: 4–5
Target | 2014 | 2020 | 2030 | 2040 | 2050 |
---|---|---|---|---|---|
Greenhouse gas emissions (base year 1990) | −27.0% | −40% | −55% | −70% | −80 to −95% |
The 2030 value is also the 2016 Paris Agreement nationally determined contribution (NDC) for Germany.[5] |
Regarding European Union policy, in October 2009 the Council of the European Union agreed that the appropriate abatement objective for Europe and other developed economies was 80–95% below 1990 levels by 2050 (consistent with Germany).[6]: 3 In October 2014 the European Council endorsed a binding European Union target of an at least 40% reduction in domestic greenhouse gas emissions by 2030 relative to 1990 (less stringent than Germany).[7]: 2
Climate Action Programme 2020
The Climate Action Programme 2020 (Aktionsprogramm Klimaschutz 2020) is an attempt by Germany to help meet its official 2020 greenhouse gas emissions reductions target after a 'climate gap' had been identified.[a] Projections from 2013 show Germany may miss its 40% reductions target by about 7%-points without additional measures.[8] The first draft of the programme was released in mid-November 2014. How best to control the contribution from coal-fired generation remained controversial, but economy and energy minister Sigmar Gabriel (SPD) dismissed plans aired in his ministry in October 2014 to retire 10 GW of coal capacity.[9]
The Climate Action Programme 2020 was approved on 3 December 2014.[10] The official document is available in English.[11]
The most significant part of the new package is a pledge to cut electricity sector emissions substantially by 2020. To do so, the government proposes to cap emissions from the sector at 22 million tonnes between 2016 and 2020 or 4.4 million tonnes each year. Once the cap is in place, energy companies will be allocated allowances based on their current emissions. If they cut their emissions by a greater amount, they may be able to sell their surplus to other companies. The package also contains measures to improve energy efficiency and the transport sector.[12] Environmental groups criticized the package for not going far enough in reducing the reliance on coal-fired generation.[13]
In December 2015, the government remained confident that its 2020 emissions target will be met through the measures contained in the programme and elsewhere.[14] However, a government report, released on 30 September 2016, shows that Germany will meet its 2020 greenhouse gas commitments only under "a best case scenario".[2] The report, prepared for the European Union, is available in German.[15] The analysis projects Germany's greenhouse gas emissions forward for the next 20 years.
A
In early 2017, the government agreed to scrap the 2020 plan entirely.[19]
Development of the Climate Action Plan 2050
The history of the Climate Action Plan 2050 is quite involved. The
Coalition agreement: 2013
The notion of a climate action plan arose from the coalition agreement between the CDU, CSU, and SPD parties in 2013. The agreement stated:
[I]n Germany we want to define an emissions reduction pathway with a final target of 80 to 95 percent lower greenhouse gas emissions compared to 1990 by 2050. We will augment this target with concrete measures, drawn up through a broad dialogue (Climate Action Plan).[20]: 1
Public consultation: 25 June 2015 – 19 March 2016
A public consultation with stakeholders began on 25–26 June 2015 with a Kick-off Conference in Berlin.
First leaked draft: early May 2016
A draft of the plan was leaked to media for the first time in early May 2016.[30] It was the result of consolidating a long catalog of measures from the consultation process. The leaked plan included proposals for:[30]
- ecological tax reform and the internalization of environmental costs
- climate friendly investment
- reducing emissions from coal and a phase-out of coal(Kohleausstieg) well before 2050
- making both old and new buildings climate-neutral
- the digitalisation and electrification of the transport sector
- a floor price for carbon and climate-aware investment
- a reduction in the numbers of ruminant animals and for the public to eat less meat
- the use forests as carbon sinks and the renaturalisation of moorlands for the same purpose
- the investigation of a new national welfare index
- the embedding of climate protection in local and regional public services
The plan also suggested a "pluralistic" (meaning diverse groups are represented) commission be established, tasked with developing a coal phase-out plan by mid-2017.[30]
Following the leaked document, state governments became increasingly concerned that they were being railroaded into climate change goals that could damage their regional economies.[31]
Second leaked draft: 21 June 2016
A draft of the plan was leaked to media for the second time in late June 2016. The draft was dated 21 June 2016 and is available for download in German.[32] Unlike the first leak, this draft was compiled after consultation with the economics and energy ministry (BMWi).[33]
The new draft shows that individual sectors may escape specific emissions targets and that an end date for coal-fired generation has been omitted. Earlier versions had contained sector-specific targets for energy, transport, industry, buildings, and agriculture. The energy sector which was previously slated to make a "considerable" contribution is now required to make an "adequate" contribution. Rather than saying that coal-fired generation must "end well before 2050" the new draft emphasizes that "the importance of power production from coal will decrease" and that there will be a "step-by-step reduction". The previous draft stated that the transport sector would need to deliver "disproportionately high" emissions reductions (on account of the poor performance of the sector to date), that has now diminished to an "ambitious" contribution. Other proposals remain, including the development of ecological tax reform. The plan also includes targets for modernizing the heating and cooling systems in buildings, including no new fossil-fueled heating systems in houses after 2030.[34]
The proposal for a Commission on Climate Protection, Growth, Structural Change, and the Completion of the Energiewende (Kommission "Klimaschutz, Wachstum, Strukturwandel und Vollendung der Energiewende") remains, but now without the specific task of developing a roadmap for the phase-out of coal.[33]
The weakening of the plan is also a result of industry associations repeatedly criticizing sector targets and itemized measures, which they fear would harm Germany's economic performance and international competitiveness.[34]
Official draft: 6 September 2016
An official draft was released on 6 September 2016 and is available in German.[35] This draft retains a provision for the establishment of a Commission on Climate Protection, Growth, Structural Change, and the Completion of the Energiewende.
The content however has been watered down considerably. Concrete emissions reductions targets were removed altogether. The previously leaked June 2016 draft stated that by 2030 "a large majority of newly registered cars" would need to be powered by either electricity or biofuels. However, the new draft merely states that "the government aims to significantly lower car emissions by 2030" and that electric cars can contribute to that goal.[36]
Cabinet deliberations: late 2016
In late 2016, the plan went to the Chancellery (Bundeskanzleramt) to coordinate the final version to be agreed by the German cabinet (Bundeskabinett).
Media reports in late October 2016 suggest a deepening rift between the economics and energy ministry (BMWi) and the environment ministry (BMUB) over the plan and the exit process for coal-fired generation (Kohleausstieg). Economy and energy minister Sigmar Gabriel opposes the setting of a coal exit date before job alternatives for lignite workers have been determined.[39]
A revised draft plan, circulated by the environment ministry on 4 November 2016, was obtained by
On 7 November 2016, over 40 German companies, including energy suppliers
On 8 November 2016, economy and energy minister Gabriel vetoed the plan amid concerns by trade union IG BCE and supported by the BDI industry group. The draft does not timetable a phase-out for brown coal, notwithstanding Gabriel said he expected brown coal to remain in use past 2040.[45] On 11 November 2016, Reuters news agency reported that chancellor Angela Merkel and ministers Gabriel and Hendricks had agreed on a new draft.[46][47]
Approval: 14 November 2016
On 14 November 2016, the cabinet officially adopted and released the new plan.[1][48][49] It was overseen by a CDU/CSU/SPD grand coalition government, led by Angela Merkel. The timing allowed environment minister Barbara Hendricks to present the German plan at the COP 22 climate talks held in Marrakesh, Morocco. Canada, Mexico, and the US also presented climate action plans.[50]
Climate Action Plan 2050
The official Climate Action Plan 2050 is available in German and runs to 91 pages.[49] An official summary of the principles and goals underpinning the plan is available in English.[20]
The plan is to be supplemented by a program of policy measures, developed by the German parliament (Bundestag), with the first such program to be in place in 2018. Annual reporting will track progress and should facilitate specific policy adjustments where needed.[20]: 6
Preamble
The plan begins with a preamble that states that the document is an evolving work in progress and "cannot and does not want to be a detailed masterplan".[1] It adds that there will be "no rigid provisions" and that the plan is technology neutral and open to innovation.[1] The preamble stresses that the government will simultaneously maintain German competitiveness:
We want to advance the upcoming changes without structural ruptures. It's about using the strength and creativity of the German market economy, as well as the forces of competition to reach existing national, European and international climate protection targets.[1]
The preamble also reiterates Germany's 2010 climate targets (see table) and its 2016 Paris Agreement commitment.[b][1]
Sector targets
Sector targets remained controversial during the development of the plan. Notwithstanding, the official document now specifies sector targets for the first time under a national climate protection policy.[1] The initial sector targets will be subject to a comprehensive impact assessment and consultation and may well be adjusted as a result in 2018.[20]
Sector | 1990 | 2014 | 2030 | Reduction (2030 relative 1990) |
---|---|---|---|---|
Energy | 466 | 358 | 175–183 | 61–62% |
Buildings | 209 | 119 | 70–72 | 66–67% |
Transport | 163 | 160 | 95–98 | 40–42% |
Industry | 283 | 181 | 140–143 | 49–51% |
Agriculture | 88 | 72 | 58–61 | 31–34% |
Other | 39 | 12 | 5 | 87% |
Total | 1248 | 902 | 543–562 | 55–56% |
|
For comparison, the Paris Agreement nationally determined contribution (NDC) for Germany is −55% relative to 1990 (which accords with the final cell in the table).[5]
Commission for growth, structural change, and regional development
The plan establishes a commission for growth, structural change, and regional development. Unlike earlier versions, the commission will not be tasked with setting a date for an exit from coal. Instead, the commission will "support the structural changes" resulting from transformation and will "develop a mix of instruments that will bring together economic development, structural change, social acceptability and climate protection". The commission will be based at the economics and energy ministry, but will consult with other ministries, federal states, municipalities, and unions, as well as with representatives of "affected" companies and regions. The commission is scheduled to start work at the beginning of 2018 and to report at the end of 2018.[1][20]: 4–5
EU Emissions Trading System
The plan stresses to role of the
Energy sector
The energy sector
If "possible and economically sensible", renewable energy will be used directly in all sectors, and electricity from renewable sources will be used efficiently for heating, transport, and industry. The utilization of biomass will be limited and sourced mostly from waste. The plan states that transitioning to a power supply based on renewables while ensuring supply security is "technically feasible". During the transition, "less carbon-intensive natural gas power plants and the existing most modern coal power plants play an important role as interim technologies".[1]
The plan states that "the climate targets can only be reached if coal-fired power generation is reduced step-by-step". Moreover, the German government "in its development cooperation does not lend support to new coal power plants". Regions which depend on coal, like the Lausitz, need special consideration: "we must succeed in establishing concrete perspectives for the future of the affected regions, before concrete decisions on the step-by-step withdrawal from the lignite industry can be taken".[1]
Notwithstanding, a coal phase-out for Germany is implied in the plan, environment minister Barbara Hendricks said in an interview on 21 November 2016. "If you read the Climate Action Plan carefully, you will find that the exit from coal-fired power generation is the immanent consequence of the energy sector target. ... By 2030 ... half of the coal-fired power production must have ended, compared to 2014", Hendricks said.[51][52]
The plan also establishes a regional fund to foster new businesses in lignite mining regions. The government will need to ensure that EU competition law does not inhibit the operation of the fund.[1]
Building sector
The building sector
Transport sector
The transport sector
Industry
The industry
With our modernizing strategy for the economy, the correct political framework, and active regional and structural policy that supports structural change, we want to create dependable framework conditions for the German economy, to adjust to this transformational process early, and use the possibilities connected to it.[1]
The plan continues that, despite the costs and challenges, climate protection could become an "innovation motor" for a modern high-tech economy. The plan acknowledges that some industrial emissions cannot be avoided – for instance, those from steel production or chemical plants. Such emissions should be reduced as far as possible by developing new processes and replacing old ones – or through the use of carbon capture and utilization (CCU) or carbon capture and storage (CCS). The government will launch a research and development program to advance these and other low-carbon processes.[1][20]: 5
Agricultural sector
The agricultural sector
Land use and forestry sector
The land use and forestry sector offers opportunities for carbon sequestration. The government will prioritize improving the performance of forests as carbon sinks. Sustainable forest management will also be promoted and permanent grasslands and marshes are to be preserved. The expansion of settlements and transport infrastructure is to be reduced to 30 ha per day by 2020 and to zero by 2050.[1]
Financial matters
Under the plan, the government will consider how to incrementally revise taxation through to 2050, on the understanding that "environmental taxes and levies can create incentives for ecological economic activity" and that "environmentally related taxes and levies can cost-efficiently trigger climate-friendly economic behavior". The government also intends to reduce environmentally harmful subsidies. In addition, the government will support efforts to reconcile global finance flows with climate protection goals, for instance through its role on the G20 Financial Stability Board.[1][20]
Implementation and revision of the plan
The plan is predicated on a gradual transformation, achieved through a learning process involving the scientific community and accompanied by public dialogue.[20]: 6 It is therefore intended that the plan can and should respond to changing technological, political, and social conditions. The plan will be reviewed every five years to align it with the evolution of Germany's nationally determined contribution (NDC) under the Paris Agreement. The first update is therefore slated for late 2019 or early 2020. As early as 2018, the government intends to strengthen the plan by quantifying the various emission reduction efforts and their associated ecological, social, and economic impacts. The sector targets may be modified as a result. Annual reporting should help the government to evaluate and adjust its specific climate protection measures in the short-term.[1]
Reactions
Thilo Schaefer, climate and energy expert at the
Klaus Töpfer, founding director of the Institute for Advanced Sustainability Studies (IASS), said "this plan is certainly not yet capable of securing the German contribution to the Paris Climate Agreement. This will require more work".[53]
Regine Günther, director of policy and climate at WWF Germany, said "today's climate action plan is only a fraction of what is needed. The only plus point: all sectors get precise reduction targets, which WWF welcomes. However, the list of negatives is much longer: there are no appropriate measures to reach those targets. There is also a blank on the issue of coal. The plan completely dropped the urgently needed ban on further extension of open cast mining. The commission on coal will not start until 2018, after the federal elections. A minimum price on carbon is also missing completely. With this plan, the industry and energy lobbies have proven how well placed they are in the economy ministry. With such a plan there can be no ambitious climate protection."[53]
Ottmar Edenhofer, a German climate economist and director of the MCC, criticized the plan. He said economy and energy minister "Sigmar Gabriel yielded to lobbyists and sadly put short-term interests before long-term interests".[54][55]
See also
- Barbara Hendricks (SPD) – the environment minister during the development of the plan
- Climate change mitigation – actions to limit climate change
- Energiewende in Germany– the German energy system transition
- German Federal Ministry for Economic Affairs and Energy(BMWi)
- German Federal Ministry for the Environment, Nature Conservation, Building and Nuclear Safety(BMUB)
Notes
References
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- ^ Maßnahmenkatalog — Ergebnis des Dialogprozesses zum Klimaschutzplan 2050 der Bundesregierung [Catalog of measures — results of the dialogue process on the Climate Protection Plan 2050 of the Federal Government] (PDF) (in German). Germany: Wuppertal Institut, ifeu, Öko-Institut, Fraunhofer ISI, IREES, and IFOK. March 2016. Archived from the original (PDF) on 8 February 2017. Retrieved 15 September 2016.
- ^ Translating Ambition into Action — The German Climate Action Plan 2050 — UNFCCC COP 21 German Side Event, 9 December 2015, Paris – Le Bourget, Conference Centre (PDF). Berlin, Germany: Federal Ministry for the Environment, Nature Conservation, Building and Nuclear Safety (BMUB). 9 December 2015. Archived from the original (PDF) on 8 February 2017. Retrieved 17 September 2016.
- ^ Erklärfilm zum Klimaschutzplan 2050 (mit englischen Untertiteln) [Explanatory video on the Climate Action Plan 2050 (with English subtitles)] (in German and English). Bonn, Germany: Bundesministerium für Umwelt, Naturschutz, Bau und Reaktorsicherheit (BMUB). 31 October 2016. Retrieved 7 November 2016.
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- ^ Klimaschutzplan 2050 — Klimaschutzpolitische Grundsätze und Ziele der Bundesregierung — BMUB-Hausentwurf vom 06.09.2016 [Climate Action Plan 2050 — Climate policy principles and goals of the government — BMUB draft from 9 June 2016] (PDF) (in German). Berlin, Germany: Bundesministerium für Umwelt, Naturschutz, Bau und Reaktorsicherheit (BMUB). Retrieved 14 September 2016.
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Bauchmüller, Michael (7 November 2016). "Klimaschutzplan: Unternehmen fordern mehr Klimaschutz" [Climate Action Plan: Companies are demanding more climate protection]. Süddeutsche Zeitung (in German). Munich, Germany. ISSN 0174-4917. Retrieved 7 November 2016.
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- ^ "Minister Hendricks: "Paris is working"" (Press release). Berlin, Germany: Federal Ministry for the Environment, Nature Conservation, Building and Nuclear Safety (BMUB). 18 November 2016. Retrieved 22 November 2016.
- ^ "Coal exit is in the Climate Action Plan". Clean Energy Wire (CLEW). Berlin, Germany. 21 November 2016. Retrieved 22 November 2016.
- ^ Götze, Susanne; Schwarz, Susanne (21 November 2016). "Kohleausstieg steht im Klimaschutzplan" [Coal exit is in the Climate Action Plan]. klimaretter.info (in German). Berlin, Germany. Retrieved 22 November 2016.
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- ^ "Climate expert says economy minister bows to lobby". Clean Energy Wire (CLEW). Berlin, Germany. 18 November 2016. Retrieved 22 November 2016.
- ^ "Klimaökonom Edenhofer wirft Gabriel Einknicken vor Lobby vor" [Climate economist Edenhofer accuses Gabriel of buckling to lobby], Frankfurter Allgemeine Zeitung (FAZ) (in German), Frankfurt am Main, Germany, 17 November 2016, retrieved 22 November 2016
External links
- Climate Action Programme 2020 – approved version dated 3 December 2014 (this initiative preceded the Climate Action Plan 2050)
- Klimaschutzplan 2050 — approved version dated 14 November 2016 (in German)
- Climate Action Plan 2050 website (in German)
- German 2050 Climate Action Plan (full document in English)
- Climate Action Plan 2050 Executive Summary in English
- Explanatory Film - The Climate Action Plan: Step-by-step to a liveable future. BMU. 11.12.2018. https://www.youtube.com/watch?v=WSJTKyDuI6I
- Explanatory Film - The Climate Action Plan: Successful climate action has to be a cooperative undertaking. BMU. 11.12.2018. https://www.youtube.com/watch?v=_ZX4BXhmjMk
- Explanatory Film - The Climate Action Plan: Moving together towards a bright future. BMU. 11.12.2018. https://www.youtube.com/watch?v=79FzzI920xg