Commission NEC report: Ammonia pollution lags behind

Ammonia emissions have only fallen by 16% since 2005. Some Member States have even seen increases, making ammonia a key challenge moving forward.

The European Commission has released its report on the progress to date of the National Emission reduction Commitments (NEC) Directive. The report shows significant progress in reducing some atmospheric pollutants, but gaps and lack of progress for other pollutants, requiring further effort from the Commission and Member States to meet the targets of the Directive. This latest report represents an analysis of figures ending in 2022.

The National Emission Reduction Commitments (NEC) Directive, based on the UNECE Convention on Long-range Transboundary Air Pollution (the Air Convention) and its protocols, including the Gothenburg Protocol, legislates pollutant reductions per Member State for five pollutants: sulphur dioxide (SO2), nitrogen oxides (NOx), non-methane volatile organic compounds (NMVOC), ammonia (NH₃) and fine particulate matter (PM_2.5). It has been in effect since 2018, with obligations starting in 2020, and first reporting in 2022. Measures and commitments are in line with the Gothenburg Protocol for 2020 to 2029, after which they will become more ambitious, and works alongside other legislation which regulates ambient air quality and source emissions, including under the umbrella of the Zero Pollution Action Plan. The Zero Pollution Action Plan covers two air pollution-related goals which are built into the NEC Directive; “(i) reducing by more than 55% the health impacts of air pollution (expressed as premature deaths due to PM2.5 pollution) in the EU; and (ii) reducing by 25% the ecosystems area where air pollution threatens biodiversity (compared to 2005 levels).”

The report outlines progress to 2022, and shows that there has been progress in all pollutants except for ammonia [1]. Ammonia emissions since 2005 have fallen by only 16%, and in some Member States have increased [2]. Sulphur dioxide has shown dramatic improvements compared to 2005 levels, with a reduction of 74%; 22 Member States are already compliant [2]. PM2.5 emissions have fallen by 33%, and NOx emissions by 44% [2]. Sixteen Member States met their commitments, while 11 did not for at least one pollutant [2]. There were 19 cases of Member State non-compliance, across 14 Members States, mostly related to ammonia. In the EU, 93% of ammonia pollution is related to agriculture [2]. All Member States bar one was meeting their commitments for NMVOC, two did not meet their commitments for NOx, two for PM2.5, and one did not meet their commitments for SO2, and has substantial reductions to make to be in line with their commitments [2].

Under the Directive, Members States make predictions of progress against the reduction objectives for 2020, 2025 and 2030, and whether these will be able to be achieved “with measures” or “with additional [policies and] measures”. All Member States need to reduce emissions for at least 1 pollutant to meet their 2030 commitments, bar Belgium and Finland [2]. Of the 15 Member States that made projections “with additional measures”, four projected non-compliance; for 2025, Estonia, Ireland, Lithuania and Poland; and for 2030, Bulgaria, Ireland, Luxembourg and Malta.

In regards to additional policies and measures, Member States are obliged to form a national air pollution control programme (NAPCP), to coordinate policies and measures across sectors, and ensure accuracy, feasibility and public consultation. There is common ground between NAPCP and other sectors and plans, specifically within energy and climate. Many synergies that work to reduce air pollutants also improve energy sustainability and resilience and reduce carbon emissions. Key challenges for Member States include reducing emissions from agriculture, commercial, institutional, household and transport combustion, and industrial solvent use. Very few policies and measures dealt with industrial processes and waste management.

Vitally, the report also looks at the current state of air quality in Europe, with some encouraging findings. The situation has improved markedly since 2005; 14 million people were exposed to levels of PM2.5 above 20μg/m3, down from 140 million in 2005. The number of premature deaths in the EU from PM2.5 has nearly halved, which is on track to meet the 2030 ambitions of the Zero Pollution Action Plan of 55%. Areas with a critical load for acidification dropped from 9.0% to 5.5% and areas where nitrogen deposition (eutrophication) exceeded critical loads dropped from 80% to 75% (since 2015). However, 97% of urban residents in the EU are still exposed to air pollution levels over the WHO Air Quality Guidelines, and only 31 million people in the EU experience levels in line with the WHO Guidelines, which is a small minority of the EU population. Large disparities still existed between poorer regions of the EU and wealthier by about a third. Premature deaths attributable to PM2.5 above the WHO guidelines were 253,000 in 2021 [3], and up to 432,000 when considering the total potential attributable deaths from all levels of PM2.5 pollution [4]. Levels of eutrophication remain high, particularly in certain regions, and this will necessitate extra measures in line with the zero-pollution target of reducing, by 25%, ecosystems with a threat to biodiversity from eutrophication. Issues still also remain in site selection for sampling, including representation of different types of landscape, with cropland, wetland and scrubland remaining underrepresented.

Cost-benefits of meeting the 2025 targets are itemised based on the latest reports and updates from Member States. At baseline, total health damage in 2025 would be estimated (conservatively) at EUR 173 billion per year and ecosystem damage between EUR 33 and 41 billion per year (both in 2015 prices). The report makes note that the health damage estimate is “conservative”; other new analyses have placed the health impact much higher at EUR 600 billion per year, 4% of GDP [5]. The costs of air pollution reduction measures are estimated at EUR 77 billion per year (in 2015 prices). A strong point for the economic argument for fierce action to reduce air pollution is made, and even at higher levels of ambition, the report states that an economic benefit is still seen; EU GDPs could increase by 0.26 to 0.28% by 2030 with high ambition. Investment in air pollution control is healthy and financially healthy.

References:
[1] European Commission, Directorate-General for Environment. Report from the Commission to the Council and the European Parliament on the progress made on the implementation of Directive (EU) 2016/2284 on the reduction of national emissions of certain atmospheric pollutants. EUR-Lex. 2024
[2] European Environment Agency (EEA). Air pollution in Europe: 2024 reporting status under the National Emission reduction Commitments Directive. European Environment Agency. 2024
[3] European Environment Agency (EEA). Premature deaths due to exposure to fine particulate matter in Europe. European Environment Agency. 2023
[4] European Environment Agency (EEA). Harm to human health from air pollution in Europe: burden of disease 2023. European Environment Agency. 2023
[5] Oliu-Barton, M. et al. How much does Europe pay for clean air? Bruegal. 2024