32003L0087

WHAT IS THE AIM OF THE DIRECTIVE?

• Directive 2003/87/EC establishes the European Union (EU) emissions trading system (ETS). This is the cornerstone of the EU’s policy to tackle climate change by reducing greenhouse gas (GHG) emissions in a cost-effective and economically efficient way. It is based on the cap-and-trade principle¹.
• The original legislation has been amended several times as the system has evolved. The most recent changes were adopted in Directive (EU) 2023/958 and Directive (EU) 2023/959 as part of the EU’s fit for 55 initiative, which aims to ensure that the EU’s policies are in line with the European Climate Law’s climate goals and commitments under the European Green Deal and the Paris Agreement.

KEY POINTS

The current (fourth) phase of the ETS runs from 2021 to 2030. For this period, the EU has set a new, increased target to decrease GHG emissions by 62 %, compared to 2005 levels.

The system applies to:

• power plants;
• a wide range of energy-intensive industrial sectors;
• flights within the EU and the European Economic Area (EEA), and departing flights to Switzerland and the United Kingdom;
• maritime transport (surrendering obligations will be introduced gradually between 2024 and 2026);
• emissions of:
  • carbon dioxide (CO₂),
  • nitrous oxide,
  • perfluorocarbons,
  • methane.

A new separate, stand-alone ETS has been set up to cover buildings, road transport and fuels for additional sectors that correspond to industrial activities not covered by the existing ETS.

Allowances

• Since 1 January 2005, operators of all activities covered by the legislation have had to surrender an appropriate number of emission allowances each year to cover their GHG emissions of the previous year (one emission per tonne of carbon dioxide (CO₂) or the equivalent amount of other powerful GHGs).
• Тhe total number of allowances issued in the EU each year has gradually been reduced: by 1.74 % between 2013 and 2020, and by 2.2 % between 2021 and 2023. Between 2024 and 2027, it will be further reduced by 4.3 % per year, and from 2028 by 4.4 % per year.
• The system of free allowances has been revised to tackle the issue of carbon leakage² by focusing on sectors at risk of relocating their production outside of the EU. In this respect:
  • free allowances will be gradually phased out based on higher reduction rates;
  • a carbon-border adjustment mechanism (known as CBAM) has been set up (this is a carbon pricing system that applies to energy-intensive products imported into the EU – free allocation in the ETS will be phased out by 2034 for those sectors covered by the carbon-border adjustment mechanism).

Aviation sector

• Until the end of 2026, EU carbon pricing will apply to flights within the EU / EEA and to departing flights to Switzerland and the United Kingdom, maintaining the current restricted geographical scope for the international application of the rules. By 1 July 2026, the European Commission must present a report assessing the environmental integrity of the carbon offsetting and reduction scheme for international aviation (CORSIA) set up by the International Civil Aviation Organization. The report must be accompanied by a legislative proposal maintaining or extending the scope of the ETS to departing flights in light of the environmental integrity and ambition of CORSIA in relation to the targets under the Paris Agreement. CORSIA will apply to extra-European flights to and from countries participating in CORSIA.
• The updated rules accelerate the implementation of the polluter-pays principle³ by gradually phasing out free allowances for the aviation sector with full auctioning in 2026.
• From 1 January 2024 until 31 December 2030, 20 million allowances will be reserved as an incentive for aircraft operators to move away from using fossil fuels.

• To implement this incentive, Delegated Regulation (EU) 2025/723 lays down the detailed rules for the yearly calculation of price differences between eligible sustainable aviation fuels and fossil kerosene, and for the allocation of allowances to airlines using those fuels:
  • the mechanism, worth around €1.6 billion, helps bridge the cost gap between fossil and eligible sustainable fuels;
  • airlines must report fuel use by 31 March, after which the Commission publishes fuel price differences by 31 May and allocates allowances by 31 August each year.

Separate emissions trading system for buildings, road transport and additional sectors

To incentivise emissions reductions in the road transport and buildings sectors – which were not covered by the existing ETS – the co-legislators agreed to establish, as from 2027, a separate but parallel ETS – named ETS2 – for emissions from fuels combusted in the relevant sectors. Unlike the existing ETS, ETS2 puts the point of regulation upstream, i.e. on persons liable to pay excise duties on energy (such as tax warehouses and fuel suppliers) and not on the end consumers of fuels. Regulated entities covered by ETS2 will need to surrender allowances for their verified emissions corresponding to the quantities of fuels they have released for consumption. Although the surrendering of allowances under ETS2 will only start in 2028 for 2027 emissions, the monitoring and reporting of emissions started on 1 January 2025. The allowances in ETS2 will not be fungible with allowances traded in the existing ETS and will be placed on the market only by auctioning (no free allocation). The total number of allowances issued in ETS2 will be reduced annually by 5.10 % at the start of the system and by 5.38 % from 2028.

Low-carbon funding mechanisms

• The Modernisation Fund supports modernising investment projects in the power sector and wider energy systems in EU Member States with a gross domestic product per capita at market prices below 60 % of the EU average in 2013. Three lower-income Member States with a gross domestic product per capita at market prices below 75 % of the EU average from 2016 to 2018 have been added.
• The Innovation Fund supports the demonstration of innovative technologies and breakthrough innovation in sectors covered by the EU ETS, including innovative renewables, carbon capture and utilisation, and energy storage, with a stronger focus on the upscaling of new technologies.
• The Social Climate Fund, established by Regulation (EU) 2023/955 (see summary), will accompany the introduction of the carbon price in the building and road transport sectors and provide dedicated funding to Member States to support the most affected vulnerable groups, especially households in energy or transport poverty and microenterprises.

Role of Member States

Member States are responsible for the following tasks:

• issuing allowances;
• ensuring that operators, aircraft operators, shipping companies and regulated entities monitor and report their emissions annually and surrender a number of allowances equal to their total emissions during the previous calendar year;
• auctioning all allowances not allocated free of charge or placed in a market stability reserve;
• deciding how to use income from the auctions for climate, energy and social purposes;
• providing the Commission with an annual report on the application of the legislation;
• ensuring that allowances can be transferred between installations in the EU and to non-EU countries where the allowances are recognised;
• setting out effective penalties for any breaches of the law.

Rules on the auctioning of allowances

• A delegated act, Regulation (EU) 2023/2830, supplements Directive 2003/87/EC setting out the rules on the timing, administration and other aspects of the auctioning of allowances. It repeals and replaces the rules previously laid down in Regulation (EU) No 1031/2010, taking into account the new rules and elements introduced in Directive 2003/87/EC, such as the extension of the scope of the existing ETS to maritime transport and the introduction of a new and separate ETS for buildings, road transport and industrial activities not covered by the existing ETS.
• Delegated Regulation (EU) 2023/2830 deals with aspects such as:
  • the design of auctions (auctioned products, auction format, submission and withdrawal of bids, auction clearing price and resolution of tied bids);
  • auction calendars (timing, frequency and distribution of the volume of allowances, circumstances preventing auctions from taking place, annual volumes of auctioned allowances);
  • access to auctions;
  • the appointment of auctioneer(s) and related tasks;
  • the auctioning of allowances for the Innovation Fund, the Modernisation Fund, the Recovery and Resilience Facility and the Social Climate Fund;
  • procedures for the cancellation of allowances;
  • the appointment of a common auction platform and services that the platform provides to Member States and the Commission;
  • the appointment and tasks of opt-out auction platforms (where a Member State does not participate in the appointment of the common auction platform);
  • reporting on transactions;
  • the payment and transfer of auction proceeds;
  • the delivery of the auctioned allowances;
  • the management of collateral;
  • fees and costs;
  • auction surveillance, remedial measures and sanctions;
  • transparency and confidentiality.

Role of the Commission

The Commission:

• presents an annual report to the European Parliament and to the Council of the European Union on the implementation of the EU ETS and accompanying climate and energy policies;
• has the power to define the technical rules necessary to implement basic legislation;
• maintains an independent registry and a transaction log that record the ownership, issuing, transfer and cancellation of allowances.

Each year, the European Securities and Markets Authority presents an assessment of the functioning of EU carbon markets.

FROM WHEN DO THE RULES APPLY?

• Directive 2003/87/EC had to be transposed into national law by 31 December 2003.
• The changes introduced with the 2023 revision of Directive (EU) 2023/958 and Directive (EU) 2023/959 on stationary installations, aviation and maritime transport needed to be transposed by Member States by 31 December 2023.
• Nevertheless, Member States will need to apply several provisions relating to free allocation only from 1 January 2026.
• The deadline for transposition of the rules of the new ETS for buildings, road transport and additional sectors was 30 June 2024.

BACKGROUND

• EU emissions trading system (EU ETS) (European Commission).

KEY TERMS

1. Cap-and-trade principle. The EU ETS works on the basis of this principle. A cap, or limit, is set on the total amount of certain GHGs that can be emitted by the factories, power plants and other installations in the system. The cap is reduced over time so that total GHGs emissions fall. The system allows emission allowances to be traded so that the total emissions of the installations and aircraft operators stay within the cap, and the most cost-effective measures can be taken to reduce emissions.
2. Carbon leakage. Carbon leakage refers to the situation that may occur if, for reasons of costs relating to climate policies, businesses were to transfer production to other countries with laxer emission constraints. This could lead to an increase in their total emissions. The risk of carbon leakage may be higher in certain energy-intensive industries.
3. Polluter-pays principle. This principle requires polluters to bear the cost of the pollution they cause.

MAIN DOCUMENT

Directive 2003/87/EC of the European Parliament and of the Council of 13 October 2003 establishing a scheme for greenhouse gas emission allowance trading within the Community and amending Council Directive 96/61/EC (OJ L 275, 25.10.2003, pp. 32–46).

Successive amendments to Directive 2003/87/EC have been incorporated into the original text. This consolidated version is of documentary value only.

RELATED DOCUMENTS

Commission Delegated Regulation (EU) 2025/723 of 6 February 2025 supplementing Directive 2003/87/EC of the European Parliament and of the Council by laying down detailed rules for the yearly calculation of price differences between eligible aviation fuels and fossil kerosene and for the EU ETS allocation of allowances for the use of eligible aviation fuels (OJ L, 2025/723, 16.4.2025).

Regulation (EU) 2023/955 of the European Parliament and of the Council of 10 May 2023 establishing a Social Climate Fund and amending Regulation (EU) 2021/1060 (OJ L 130, 16.5.2023, pp. 1–51).

See consolidated version.

Regulation (EU) 2023/2405 of the European Parliament and of the Council of 18 October 2023 on ensuring a level playing field for sustainable air transport (‘ReFuelEU Aviation’) (OJ L, 2023/2405, 31.10.2023).

See consolidated version.

Commission Delegated Regulation (EU) 2023/2830 of 17 October 2023 supplementing Directive 2003/87/EC of the European Parliament and of the Council by laying down rules on the timing, administration and other aspects of auctioning of greenhouse gas emission allowances (OJ L, 2023/2830, 20.12.2023).

Regulation (EU) 2021/1119 of the European Parliament and of the Council of 30 June 2021 establishing the framework for achieving climate neutrality and amending Regulations (EC) No 401/2009 and (EU) 2018/1999 (‘European Climate Law’) (OJ L 243, 9.7.2021, pp. 1–17).

Council Decision (EU) 2020/954 of 25 June 2020 on the position to be taken on behalf of the European Union within the International Civil Aviation Organization as regards the notification of voluntary participation in the Carbon Offsetting and Reduction Scheme for International Aviation (CORSIA) from 1 January 2021 and the option selected for calculating aeroplane operators’ offsetting requirements during the 2021–2023 period (OJ L 212, 3.7.2020, pp. 14–17).

Commission Implementing Regulation (EU) 2019/1842 of 31 October 2019 laying down rules for the application of Directive 2003/87/EC of the European Parliament and of the Council as regards further arrangements for the adjustments to free allocation of emission allowances due to activity level changes (OJ L 282, 4.11.2019, pp. 20–24).

See consolidated version.