Urban GHG inventories, target setting and mitigation achievements: how German cities fail to...

10
This article was downloaded by: [University of California, Riverside Libraries] On: 09 October 2014, At: 13:18 Publisher: Taylor & Francis Informa Ltd Registered in England and Wales Registered Number: 1072954 Registered office: Mortimer House, 37-41 Mortimer Street, London W1T 3JH, UK Greenhouse Gas Measurement and Management Publication details, including instructions for authors and subscription information: http://www.tandfonline.com/loi/tgmm20 Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country Maike Sippel a a IER—Institute of Energy Economics and Rational Energy Use, University of Stuttgart , Hessbruehlstrasse 49a, 70565, Stuttgart, Germany Published online: 06 Jun 2011. To cite this article: Maike Sippel (2011) Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country, Greenhouse Gas Measurement and Management, 1:1, 55-63 To link to this article: http://dx.doi.org/10.3763/ghgmm.2010.0001 PLEASE SCROLL DOWN FOR ARTICLE Taylor & Francis makes every effort to ensure the accuracy of all the information (the “Content”) contained in the publications on our platform. However, Taylor & Francis, our agents, and our licensors make no representations or warranties whatsoever as to the accuracy, completeness, or suitability for any purpose of the Content. Any opinions and views expressed in this publication are the opinions and views of the authors, and are not the views of or endorsed by Taylor & Francis. The accuracy of the Content should not be relied upon and should be independently verified with primary sources of information. Taylor and Francis shall not be liable for any losses, actions, claims, proceedings, demands, costs, expenses, damages, and other liabilities whatsoever or howsoever caused arising directly or indirectly in connection with, in relation to or arising out of the use of the Content. This article may be used for research, teaching, and private study purposes. Any substantial or systematic reproduction, redistribution, reselling, loan, sub-licensing, systematic supply, or distribution in any form to anyone is expressly forbidden. Terms & Conditions of access and use can be found at http://www.tandfonline.com/page/terms-and-conditions

Transcript of Urban GHG inventories, target setting and mitigation achievements: how German cities fail to...

Page 1: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

This article was downloaded by: [University of California, Riverside Libraries]On: 09 October 2014, At: 13:18Publisher: Taylor & FrancisInforma Ltd Registered in England and Wales Registered Number: 1072954 Registered office:Mortimer House, 37-41 Mortimer Street, London W1T 3JH, UK

Greenhouse Gas Measurement andManagementPublication details, including instructions for authors and subscriptioninformation:http://www.tandfonline.com/loi/tgmm20

Urban GHG inventories, target setting andmitigation achievements: how German citiesfail to outperform their countryMaike Sippel aa IER—Institute of Energy Economics and Rational Energy Use, University ofStuttgart , Hessbruehlstrasse 49a, 70565, Stuttgart, GermanyPublished online: 06 Jun 2011.

To cite this article: Maike Sippel (2011) Urban GHG inventories, target setting and mitigation achievements:how German cities fail to outperform their country, Greenhouse Gas Measurement and Management, 1:1,55-63

To link to this article: http://dx.doi.org/10.3763/ghgmm.2010.0001

PLEASE SCROLL DOWN FOR ARTICLE

Taylor & Francis makes every effort to ensure the accuracy of all the information (the “Content”)contained in the publications on our platform. However, Taylor & Francis, our agents, and ourlicensors make no representations or warranties whatsoever as to the accuracy, completeness, orsuitability for any purpose of the Content. Any opinions and views expressed in this publicationare the opinions and views of the authors, and are not the views of or endorsed by Taylor &Francis. The accuracy of the Content should not be relied upon and should be independentlyverified with primary sources of information. Taylor and Francis shall not be liable for anylosses, actions, claims, proceedings, demands, costs, expenses, damages, and other liabilitieswhatsoever or howsoever caused arising directly or indirectly in connection with, in relation to orarising out of the use of the Content.

This article may be used for research, teaching, and private study purposes. Any substantialor systematic reproduction, redistribution, reselling, loan, sub-licensing, systematic supply, ordistribution in any form to anyone is expressly forbidden. Terms & Conditions of access and usecan be found at http://www.tandfonline.com/page/terms-and-conditions

Page 2: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

Research article

Urban GHG inventories, target setting andmitigation achievements: how German citiesfail to outperform their countryMaike Sippel*IER – Institute of Energy Economics and Rational Energy Use, University of Stuttgart, Hessbruehlstrasse 49a, 70565 Stuttgart, Germany

Cities across the globe have conducted greenhouse gas (GHG) emission inventories and set emission targets as part of climate pro-tection activities. Based on official information and questionnaire data from 40 cities, this study analyses local GHG inventorying andurban emission trends in Germany. All cities do inventories or are preparing inventories. Comparability of reporting data between citiesis limited due to varying methodologies and frequency. Many cities have adopted ambitious emission targets. However, most cities inGermany do not use their GHG reporting and emission targets as meaningful GHG management tools: the majority of targets are notcity specific and almost half of the cities do not report base year emissions. Urban mitigation performance is limited and correlated tothe overall German mitigation performance: Eastern German cities clearly outperform Western German cities because of ‘wall-fallprofits’ in the 1990s. No single Western German city is on course to reach its emission target. Regular emission reporting basedon city-specific data and a uniform reporting format would enable cities to set realistic targets and control for target achievement.Other policy levels could provide funding, make reporting obligatory and collect cities’ inventories in a common, comparable database.City networks could accompany this process.

Keywords: cities; climate policy; emission reporting; emission targets; Germany; GHG inventories; GHG management; mitigation

1. IntroductionCities play an important role for the implementation of manygreenhouse gas (GHG) mitigation activities. Urban processessuch as energy use, transport, industrial production or wastemanagement are major drivers for global carbon emissions(Angel et al., 1998; Satterthwaite, 2008). The city-specificstructure of such processes may be revealed, but by localemission inventories (as opposed to national-level inventories)(Easterling et al., 1998). Understanding local emission pat-terns, including urban form, is a precondition for the develop-ment of low-carbon communities (e.g. Kates et al., 1998;VandeWeghe and Kennedy, 2007). Many cities of the worldhave carried out emission inventories, and recent literaturecompares the carbon footprint of large cities or metropolitanareas (e.g. Kennedy et al., 2010; Sovacool and Brown,2010). UNEP, the World Bank and UN-Habitat have recentlypresented a standard for urban GHG emission reporting atthe World Urban Forum (UNEP et al., 2010). The city

network ICLEI has presented its proposal for such a standard,too (ICLEI, 2009).

Over the last two decades, many cities have becomeengaged in climate protection activities (e.g. Kousky andSchneider, 2003; Qi et al., 2008; Sugiyama and Takeuchi,2008; Wheeler, 2008). However, cities’ GHG reductionsmay also rather be a side effect of local air quality manage-ment (D’Avignon et al., 2010). The adoption of GHG emis-sion targets seems to have become common amongcities, with more than 2,000 cities worldwide havingadopted targets (ICLEI, City of Copenhagen, 2010). Thisarticle analyses the practice of urban GHG emission report-ing and target setting in Germany. It focuses on the follow-ing research questions:

• Do cities conduct GHG emission inventories, and how?• Have cities adopted targets, and what types of targets?

*[email protected]; [email protected]

Greenhouse Gas Measurement & Management 1 | 2011 | 55–63doi:10.3763/ghgmm.2010.0001 © 2011 Earthscan ISSN: 2043-0779 (print), 2043-0787 (online) www.earthscan.co.uk/journals/ghgmm

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 3: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

• What are cities’ emission trends and how do they perform interms of target achievement?

2. Research designThe study focuses on 80 cities in Germany with more than100,000 inhabitants. In a first step, information was collectedin a web-based research exercise. In a second step, a ques-tionnaire was sent out to all 80 cities via email in October/November 2009 (Bradt, 2009). The following major elementswere included in the questionnaire (in this order): questions on(1) GHG mitigation activities by the city, (2) emission targets,(3) GHG reporting activities and (4) motivation and barriers formitigation activities (Sippel, 2010). This article focuses onelements (2) and (3). The questionnaire was addressed tothe official contact person for climate or environmental activi-ties in the city administration. 50% or 40 of the citiesanswered the questionnaire. They build the basis for the analy-sis underlying this article. These 40 cities represent 13 millioncitizens or 16% of the German population. Their sizeranges from 103,392 (City of Jena) to 1,770,381 (City ofHamburg) inhabitants, and they are located in 13 ofGermany’s 16 federal states (‘Laender’).

3. ResultsGHG inventories: popular, but hardly comparableUrban emission inventories can provide an overview of rel-evant local carbon emissions and their sources. Based onthis knowledge, mitigation potentials can be calculated, miti-gation action plans developed and emission targets set(Bennett and Newborough, 2001). Furthermore, regular emis-sion reporting reveals a city’s emission trends, which is aprecondition for the evaluation of local mitigation policies(Fleming and Webber, 2004). Consequently, reporting ofGHG emissions is recommended and facilitated by city net-works such as ICLEI (2010) or Climate Alliance (2009),research networks such as the Urban and Regional CarbonManagement Initiative (Dhakal and Betsill, 2007) as well asby sub-national, national or international supporting policies(e.g. BMU, 2010). However, German national legislationdoes not require cities to take action on climate change,and GHG reporting is a voluntary task for German cities (Bulke-ley and Kern, 2006). Climate change policy development isprobably but one reason for GHG reporting. Other reasonsmay include reputation or internal and external pressure(Sippel and Jenssen, 2010).

All cities in the survey either have conducted emissioninventories (75%) or are currently preparing an inventory(25%). Figure 1 shows that the earliest urban emission report-ing data available are for 1987. A vast majority of citiespresent their 1990 emissions as earliest emission data. It is

not always clear whether cities actually reported emissionsin that year, or calculated back emissions for 1990 fromlater reporting data. A smaller group of cities are currentlyabout to start emission reporting, probably encouraged byfederal funding under ‘Germany’s Climate Initiative’. There isa cluster of emission data for 1990, 1995, 2000 and2005. The most recent emission inventory is usually notolder than five years.

A total of 77% of cities that have been conducting emissioninventories have reported emissions in three or more years,which indicates that there is some regularity to their habit.Over an average reporting period of almost 12 years, theaverage frequency of emission reporting has been 5 years.However, the frequency of emission reporting is highly cityspecific and often reporting activities do not follow a stringentpattern. A group of cities are reporting emissions at intervalsof about five to six years. Another group of cities have beenreporting emissions annually. The latter partly rely on readilyavailable but less city-specific aggregated emission data.

Previous research suggests that comparability of cities’emission data may be limited. Dodman (2009) explains thatsome cities report emissions from urban production andthus include emissions that are generated within a city’sboundaries (‘territorial’ approach). This excludes emissionslinked to imported electricity, while it includes emissionsfrom the production of export electricity. To a differingdegree, other cities in the international context were foundto report emissions from urban consumption and attributeemissions to end users. These cities may have included emis-sions from imported electricity or district heating, exportedwaste, or in some cases also from the production processesof fuels, building materials or food (Kennedy et al., 2010).Although embodied or indirect energy consumption may besignificant (Troy et al., 2003; Schulz, 2010), modellingurban carbon metabolism is highly complex, and up to nowlimited to a few case studies worldwide (Sahely et al.,2003; Wackernagel et al., 2006).

In the survey, about a quarter of reporting cities reportemissions from urban production, while the remaining 76%report emissions from urban consumption. However, defi-nitions offered by cities for production- or consumption-basedinventories varied significantly and are sometimes overlap-ping. Methodologies applied have also differed for sourcecategories and gases. While energy emissions are often cal-culated on a consumption basis, a territorial approach is fre-quently used for transport. Usually, emissions from energyand transport include carbon emissions only, while emissionsfrom waste also include methane. Some cities have at somepoint in time changed the methodology of their emissionreporting, which renders the evaluation of their emissiontrends difficult.

The lack of comparability in urban emission reporting alsorelates to the different sectors that are included under GHGreporting. By including emissions from energy (97%) and

56 Sippel

Greenhouse Gas Measurement & Management

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 4: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

transport (91%), a vast majority of cities cover the two mostimportant source categories of GHG emissions in Germany:energy and transport are responsible for more than 80% ofGerman GHG emissions (Umweltbundesamt, 2009). Asthere is often little agricultural activity in cities, the 85% ofcities that do not report emissions from land use may notbe leaking too many emissions. Depending on the prevalenceof certain types of industries in a city, emissions from indus-trial processes can be significant (Carney et al., 2009) andtheir exclusion from urban inventories by 97% of cities maybe misleading. GHG emissions from waste are clearly linkedto cities and their inhabitants, but currently included in only38% of urban emission inventories. As a subcategory of emis-sions from energy, 88% of cities include emissions frommunicipal buildings in their inventories. This is probably dueto the fact that, first, city administrations can access thesedata easily and, second, municipal energy use is often con-trolled for, as it is linked to direct costs for the municipalbudget.

The Appendix provides an overview of cities, method-ologies they use for emission reporting, sectors includedand reporting periods covered.

GHG reduction targets: often not verifiableTheoretically, targets for urban GHG emission pathways arethe basis for quality control of mitigation activities. In addition,the adoption of concrete reduction targets may demonstratea city’s commitment to the climate issue.

According to the survey, 80% of cities have adopted emis-sion targets, and a further 10% are currently preparing atarget. This leaves 10% of cities without a target. Year1990 is the common base year for 25 out of 32 cities thathave adopted emission targets. By referring to 1990, citiesfollow international and national practice in a climate target

setting (UNFCCC, 1998; Michaelowa, 2003; EU Commission,2008).

Cities’ targets are often externally influenced: the mostpopular among cities’ targets is the one promoted by the inter-national city network Climate Alliance. It requires cities toreduce emissions by 50% by 2030 as compared to 1990levels (Climate Alliance, 2006) and cities adopt the targetquasi-automatically by joining the network. About a quarterof cities’ emission targets equal the current German targetof 40% emission reductions by 2020 as compared to 1990levels. A reason for this may be that some recent federalfunds for municipal climate protection programmes were con-ditional on cities adopting the German emission target (Wup-pertal Institute, 2009). Three cities have adopted theEuropean target of 20% emission reduction from 1990 to2020. In sum, almost three out of four cities with targetshave adopted targets that are not city specific and probablynot derived from an analysis of mitigation options.

On average, the cities’ reduction target is −1.44% peryear. The cities’ average target is more ambitious than theGerman target (−1.33%). Furthermore, it is in line with whatthe Intergovernmental Panel on Climate Change summarizesto be targets for Annex I countries in order to achieve a stabil-ization level of 450 ppm of CO2eq (25–40% reduction from1990 to 2020 =−0.83 to −1.33%; 80–95% reduction from1990 to 2050 =−1.33 to −1.58%) (IPCC, 2007, Box 13.7).

Cities that report emissions seem to be more likely toadopt emission targets: 83.3% of reporting cities also havetargets as compared to 60% of cities without emission report-ing. Strangely, the adoption of emission targets seems not tobe conditional on a city measuring its GHG emissions on aregular basis. In all, 20% of cities with emission targets donot even perform basic emission reporting (defined as atleast two emission inventories conducted). Almost half ofthe cities that do have targets and report emissions did not

Figure 1 Year of emission inventoriesSource: Own analysis based on survey and internet data.

Urban GHG inventories, target setting and mitigation achievements 57

Greenhouse Gas Measurement & Management

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 5: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

present base year emission data – neither on their websitenor in the questionnaire. The lack of baseline year emissiondata seems not to be limited to cities in the survey: the over-whelming majority of 386 German cities in the ‘Cities ClimateCatalogue’ that are listed with emission targets seem torefrain from GHG emission reporting (ICLEI, City of Copenha-gen, 2010). The question arises, whether and how thesecities want to evaluate target achievement.

Emission trends: following national patternsEmission pathways may be highly city specific and depend ona variety of factors, such as changing political support forclimate policies or investment cycles of energy infrastruc-tures. In this study, for simplification and for evaluation ofthe overall emission reductions a city has achieved, a linearemission pathway between the earliest and the latest emis-sion data available in a city was assumed: average annualemission development for the time period covered by emis-sion reporting was calculated as a percentage of emissionlevels in the first reporting year.

Annual emission development in the cities analysed variesbetween an annual increase of +1.09% and a decrease of−6.81%. On average, the 25 cities where emission reportingcovered a period of at least five years have reduced emis-sions at −1.31% each year. This is slightly less than theaverage annual German reduction, which was −1.35% from1990 to 2005 (Umweltbundesamt, 2009). In general, the miti-gation performance of Eastern German cities (−3.01%) is farbetter than that of Western German cities (−0.65%). This cor-relates to the better mitigation performance of EasternGerman ‘Laender’ (−2.77%) as compared to WesternGerman ‘Laender’ (−0.26%) (Umweltbundesamt, 2009).Figure 2 shows a tendency for yearly emission reductionsto have been higher in the early phase of emission reporting.

Other factors have been analysed for their potential corre-lation with mitigation performance. Cities that hold controlover local energy utilities perform better (−1.66%) thancities that do not (−0.75%). One reason for this may be thatthese municipalities can influence a city’s energy infrastruc-ture in a ‘climate-friendly’ way via the local energy utility. Fur-thermore, municipalities with control over local energyutilities have taken the decision not to fully privatize them.They may thus have had more ownership for the energyissue from the beginning – which then translated into emissionreductions. Neither existence of mitigation action plans, norinstitutionalization of climate protection in the city adminis-tration, or membership of city networks were clearly linkedto the mitigation performance of a city.

Target achievement: mostly at riskTo analyse whether cities are on course to reach their GHGtargets, it was monitored whether a city’s current emissionlevels are above or beyond a linear reduction pathway frombase year emissions to target year emissions. Figure 3 illus-trates this approach for the cities of Fürth and Dresden. Thediagram shows that the actual 2005 emissions of Fürth lieabove the required emission pathway. As a conclusion,Fürth is considered to be not on course to reach its emissiontarget.

For cities that do not present emissions for their baseyear, emissions from later years were calculated back tothe base year (based on average emission trends in therespective ‘Land’ over the interpolating period). For somecities, available emission data were not sufficient to analyseemission performance in terms of target achievement. Evalu-ation was possible for 23 out of 31 cities that do have emis-sion targets.

Figure 2 Average annual emission reductions in correlation toreporting periodNotes: Including all cities of the survey, and cities from bothEastern and Western Germany (East/West).Source: Own analysis based on survey and internet data.

Figure 3 Target achievement – City of Fürth and City ofDresdenNotes: Fürth starting from absolute emissions of 829 ktCO2

(1990). Dresden starting from absolute emissions of 8,000ktCO2 (1987).Source: Own analysis based on survey and internet data.

58 Sippel

Greenhouse Gas Measurement & Management

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 6: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

Out of these 23 cities, 7 are on course to reach theirtarget. Interestingly, all 7 cities are located in the new‘Laender’ in Eastern Germany. In Western Germany, not asingle city is on course to reach its emission target (seeFigure 4), although Hamburg is just on course if measuredin per capita emissions. No clear link could be foundbetween the ambitiousness of a target (in terms of requiredannual emission reductions) and target achievement.

The seemingly good performance of Eastern Germancities is similar to emission trends of Eastern Germany as awhole: German reunification caused a breakdown and restruc-turing of the Eastern German economy, which resulted inremarkable emission reductions in the 1990s (Schleichet al., 2001). These ‘wall-fall profits’ were mainly a result ofthe special circumstances, and not of climate policies.

Figure 3 also presents a reduction curve typical for theEastern German cities analysed. Due to significant emissionreductions in the 1990s, current emission levels in Dresdenare well below its target pathway towards 2030, andDresden is thus considered to be on course to reach its emis-sion target. However, emission levels have been stagnatingsince the late 1990s. If this trend continues, Dresden willstill fail to meet its reduction target.

4. ConclusionIt can be concluded that GHG inventorying in large cities inGermany is popular. Three-quarters of cities in the surveyhave reported emissions, at average intervals of three tofour years. However, emission data from different cities arehardly comparable, because the frequency of and method-ologies used for emission inventories vary significantly andsometimes data quality may be poor.

A large part of cities has also adopted emission targets,and cities’ ambitions are high (according to IPCC categories).However, the combination of GHG reporting and target settinghas not been broadly understood as a tool for GHG manage-ment: the majority of targets are not city specific, and almosthalf of the cities with targets do not publish base year emis-sion data. For example, many cities adopted the Germantarget (−40% from 1990 to 2020), neglecting the fact thata lot of German emission reductions happen(ed) in the indus-try sector, which is small in some of these cities. Furthermore,many of these cities do not include emissions from wastemanagement and industrial processes in their reporting –

ignoring that they exclude two source categories, whereGermany has achieved significant emission reductionstowards its target (Umweltbundesamt, 2009).

Some randomness of cities’ target setting is also illus-trated by the example of Stuttgart in Table 1. The cityadopted differing targets in subsequent years – dependingon its membership in a city network, realization of insufficientmitigation performance and funding opportunities. The city’sreaction to not being on course to reach its target seemsmore likely to be the revision of its target than the revisionof its mitigation policies.

The overall mitigation performance of German cities islimited, and correlated to national mitigation performance. Onaverage, urbanemission trendsshowa−0.65%annual reductionin Western German cities and are thus not suitable to contributeto achieving low global CO2 stabilization levels. The mitigationperformance of Western/Eastern German cities does not differmuch from that of Western/Eastern German ‘Laender’.

Yearly emission reductions are higher in the early phase ofemission reporting. There may be different reasons for this:emission reporting may mark the beginning of a city’s

Figure 4 Current emission levels in relation to target reduction pathwayNotes: A city exactly on line to meet its reduction target is on the 100% line. A city on the 80% line performs 20% better thanrequired to meet its reduction target. A city on the 120% line performs 20% worse than required to meet its reduction targetand is not on course to reach its target.Source: Own analysis based on survey and internet data.

Urban GHG inventories, target setting and mitigation achievements 59

Greenhouse Gas Measurement & Management

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 7: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

mitigation activities, and in the early years of mitigation citiesmay be able to realize so-called ‘low hanging fruits’ ratherquickly. It is probably often later on that climate activitiesstart to touch controversial policy issues. Human reluctanceto change and path dependency (e.g. of energy infrastruc-tures) may slow down political enthusiasm. Furthermore, pol-itical support for mitigation activities may decline, withelectoral cycles or with a new mayor setting other priorities.

It can be concluded that target achievement is at seriousrisk in all Western German cities, and also in EasternGerman cities that rely solely on their ‘wall-fall’ profits fortarget achievement. Certain barriers may prevent citiesfrom more meaningful achievements (Sippel and Jenssen,2010); however, these are not subject to this article.

The findings are based on a careful analysis of data pro-vided by cities. Nevertheless, this is a cross-sectional survey,and it cannot be ruled out that a detailed look at some individualcity may reveal a difference to the results presented.

5. RecommendationsThe results of the survey may provide guidance for urban GHGmanagement and lead to some preliminary policyrecommendations.

First, there is significant room for cities to improve theirpractice of GHG inventorying. If cities would report emissionsregularly and based on a common reporting format and city-specific data, emission data would be comparable and illus-trate city-specific emission trends.

Second, cities should probably revise their targets. Inorder to make GHG targets a component of urban GHG man-agement, targets need to be realistic and derived from city-specific mitigation potentials.

Third, cities should use the results of GHG reporting tocorrect their mitigation policies – and not their emissiontargets.

Last, but not least, city networks and other policy levelsplay an important role. They can support and establish acommon GHG emission reporting format, such as the onesproposed by UNEP, UN-Habitat and the World Bank or byICLEI. The German federal government could make urbanemission reporting obligatory, starting with cities of morethan 100,000 inhabitants (which would cover about 30% ofthe German population). A national collection of cities’ inven-tories would make emission performance comparable.

If cities start to use GHG targets and reporting as manage-ment tools for their mitigation activities, they may benefit atleast twofold: policy evaluation may not only lead to improvedmitigation policies, but also increase credibility. This seemsessential for municipalities whose climate performancedepends largely on meaningful interaction, be it with localstakeholders or other policy levels.

This study did not analyse the underlying reasons for cities’mitigation performance systematically. Knowledge aboutsuch reasons may further improve the understanding oflocal climate protection and thus inform policy making. There-fore, future research may want to analyse, for example,whether specific sectors (such as industry or commercial)have an influence, what role municipal buildings play (thesector where municipalities have most control), or whetherand how cities have operationalized climate strategies andintegrated them into their urban development plans.

AcknowledgementsThe author is grateful to Till Jenssen, Axel Michaelowa andthree anonymous reviewers for their comments on earlier ver-sions of this article. Michael Bradt collected data for thissurvey in the course of his diploma thesis. City officials havebeen helpful in providing information. Any remaining errorsare solely the author’s responsibility.

Table 1 Reduction targets in Stuttgart

Target (%) Base year Target year Required yearly reduction(% of base year)

Date of target setting Process of target setting

−30 1994 2005 2.73 1994 Adoption by city council

−50 1987 2010 2.17 1995 By joining Climate Alliance

−10 2000 2010 1.00 2004 Correction of former target by citycouncil (because original target notrealistic)

−40 1990 2020 1.33 2008 By fulfilling funding requirement underthe ‘Energieeffiziente Stadt Programm’

of the German Ministry of Education andResearch

Source: Wuppertal Institute (2009).

60 Sippel

Greenhouse Gas Measurement & Management

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 8: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

ReferencesAngel, D.P., Attoh, S., Kromm, D., Dehart, J., Slocum, R., White, S.,

1998, ‘The drivers of greenhouse gas emissions:what dowe learn from local case studies?’, Local Environment 3(3),263–277.

Bennett, M., Newborough, M., 2001, ‘Auditing energy use in cities’,Energy Policy 29, 125–134.

BMU – Bundesministerium für Umwelt, Naturschutz undReaktorsicherheit, 2010, Klimaschutzkonzepte und‘Klimaschutzmanager’ [available at www.bmu-klimaschutzinitiative.de/de/projekte_nki?p=1&d=443].

Bradt, M., 2010, ‘Kommunaler Klimaschutz in Deutschland.Emissionsbilanzierung, Emissionsziele und Zielerreichung’,Diploma thesis, University of Stuttgart, Germany.

Bulkeley, H., Kern, K., 2006, ‘Local government and the governingof climate change in Germany and the UK’, Urban Studies 43,2237–2259.

Carney, S., Green, N., Wood, R., Read, R., 2009, Greenhouse GasEmissions Inventories for 18 European Regions, University ofManchester, METREX, Manchester.

Climate Alliance, 2006, 2006 Activity Report, 2007 Planning,Frankfurt, Germany.

Climate Alliance, 2009, Benchmark Kommunaler Klimaschutz [avail-able at www.benchmark-kommunaler-klimaschutz.net/].

D’Avignon, A., Carloni, F.A., La Rovere, E.L., Schmidt Dubeux, C.B.,2010, ‘Emission inventory: an urban public policy instrument andbenchmark’, Energy Policy 38, 4838–4847.

Dhakal, S., Betsill, M., 2007, ‘Challenges of urban and regional carbonmanagement and the scientific response’, Local Environment 12(5), 549–555.

Dodman, D., 2009, ‘Blaming cities for climate change? An analysis ofurban greenhouse gas emissions inventories’, Environment andUrbanization 21(1), 185–201.

Easterling, W.E., Polsky, C., Goodin, D., Mayfield, M.W., Muraco, W.A.,Yarnal, B., 1998, ‘Changing places, changing emissions: thecross-scale reliability of greenhouse gas emission inventories inthe US’, Local Environment 3(3), 247–262.

European Commission, 2008, 20 20 by 2020 – Europe’s ClimateChange Opportunity, Brussels, 23 January 2008.

Fleming, P.D., Webber, P.H., 2004, ‘Local and regional greenhousegas management’, Energy Policy 32, 761–771.

ICLEI, 2009, International Local Government GHG Emissions AnalysisProtocol (IEAP), Version 1.0, October 2009.

ICLEI, 2010, The Five Milestone Process [available at www.iclei.org/index.php?id=810].

ICLEI, City of Copenhagen, 2010, The City Climate Catalogue – TheCopenhagen World Catalogue of City Commitments to CombatClimate Change [available at www.climate-catalogue.org].

IPCC, 2007, ‘Chapter 13’, in: B. Metz, O.R. Davidson, P.R. Bosch,R. Dave, L.A. Meyer (eds), Climate Change 2007: Mitigation.Contribution of Working Group III to the Fourth AssessmentReport of the Intergovernmental Panel on Climate Change,Cambridge University Press, Cambridge, UK and New York,NY, USA.

Kates, R.W., Mayfield, M.W., Torrie, R.D., Witcher, B., 1998, ‘Methodsfor estimating greenhouse gases from local places’, LocalEnvironment 3(3), 279–297.

Kennedy, C., Steinberger, J., Gasson, B., Hansen, Y., Hillman, T.,Havranek, M., Pataki, D., Phdungsilp, A., Ramaswami, A.,Villalba Mendez, G., 2010, ‘Methodology for inventorying

greenhouse gas emissions from global cities’, Energy Policy 38,4828–4837.

Kousky, C., Schneider, S.H., 2003, ‘Global climate policy: will citieslead the way?’ Climate Policy 3(4), 359–372.

Michaelowa, A., 2003, ‘Germany – a pioneer on earthen feet?’,Climate Policy 3(1), 31–43.

Qi, Y., Li, M., Huanbo, Z., Huimin, L., 2008, ‘Translating a global issueinto local priority: China’s local government response to climatechange’, The Journal of Environment & Development 17,379–400.

Sahely, H.R., Dudding, S., Kennedy, C.A., 2003, ‘Estimating the urbanmetabolism of Canadian cities: Greater Toronto Area case study’,Canadian Journal of Civil Engineering 30(2), 468–483.

Satterthwaite, D., 2008, ‘Cities’ contribution to global warming: noteson the allocation of greenhouse gas emissions’, Environment andUrbanization 20, 539–549.

Schleich, J., Eichhammer, W., Böde, U., Gagelmann, F., Jochem, E.,Schlomann, B., Ziesing, H.-J., 2001, ‘Greenhouse gas reductionsin Germany – lucky strike or hard work?’, Climate Policy 1, 363–380.

Schulz, N.B., 2010, ‘Delving into the carbon footprints of Singapore –comparing direct and indirect greenhouse gas emissions of asmall and open economic system’, Energy Policy 38, 4848–4855.

Sippel, M., 2010, German Cities and their Climate Commitments:More Hype Than Substance?, Discussion Paper, [available at SSRNhttp://ssrn.com/abstract=1618408].

Sippel, M., Jenssen, T., 2010, ‘What explains cities’ climate policy-making? A review of drivers and barriers’, Journal of EnvironmentalManagement and Tourism 1, 39–56.

Sovacool, B.K., Brown, M.A., 2010, ‘Twelve metropolitan carbonfootprints: a preliminary comparative global assessment’, EnergyPolicy 38, 4856–4869.

Sugiyama, N., Takeuchi, T., 2008, ‘Local policies for climate changein Japan’, The Journal of Environment and Development 17, 424–441.

Troy, P., Darren, H., Pullen, S., Bunker, R., 2003, ‘Embodied andoperational energy consumption in the city’, Urban Policy andResearch 21(1), 9–44.

Umweltbundesamt, 2009, National Inventory Report for the GermanGreenhouse Gas Inventory 1990–2007, Federal EnvironmentAgency (Umweltbundesamt), Dessau, Germany.

UNEP, UN-Habitat, World Bank, 2010, Draft International Standard forDetermining Greenhouse Gas Emissions for Cities, Rio de Janeiro,Brazil.

UNFCCC, 1998, Kyoto Protocol to the United Nations FrameworkConvention on Climate Change, United Nations, Kyoto.

VandeWeghe, J.R., Kennedy, C., 2007, ‘A spatial analysis of resi-dential greenhouse gas emissions in the Toronto censusmetropolitan area’, Journal of Industrial Ecology 11(2),133–144.

Wackernagel, M., Kitzes, J., Moran, D., Goldfinger, S., Thomas, M.,2006, ‘The ecological footprint of cities and regions: comparingresource availability with resource demand’, Environment &Urbanization 18(1), 103–112.

Wheeler, S.M., 2008, ‘State and municipal climate change plans: thefirst generation’, Journal of the American Planning Association 74(4), 481–496.

Wuppertal Institute, 2009, Auf dem Weg zu einem ‘CO2-freienStuttgart 2050’, Kurzstudie 07/2009, Wuppertal, Germany.

Urban GHG inventories, target setting and mitigation achievements 61

Greenhouse Gas Measurement & Management

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 9: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

Appendix

Redu

ctiontarget

(%)

Base

year

Target

year

Onco

urse

toreachtarget

Emission

repo

rting?

Earliestinventory

Mos

trece

ntinventory

Freq

uencyof

repo

rting

(every

xyears)?

Energy

Transport

Public

buildings

Waste

Land

use

Indu

stria

lproce

sses

Percapita

CO2Em

ission

s(tC

O 2/a)

Augsburq 50 1990 2030 No Yes 1990 2006 2.3 x x x 7.6 (2005)

Bielefeld 40 1987 2020 Yes 2004 2006 1.0 x x x x x 5.6 (2005)

Bochum Not spec. 1990 2020 Yes 1999 2005 3.0 x x x x 10.5 (2005)

Bonn 50 1990 2030 No Yes 1987 2000 6.5 x x x x

Bottrop In preparation

Bremen 40 1990 2020 No Yes 1990 2005 7.5 x x 21.3 (2005)

Chemnitz 50 1990 2030 No Yes 1990 2005 5.0 x x x 7.5 (2005)

Dresden 50 1990 2030 Yes Yes 1987 2007 1.7 x x x 9.9 (2005)

Duisburg 40 1990 2020 In preparation 2010

Düsseldorf 10 2007 2012 Yes 1987 2007 4.0 x x x 10.7 (2005)

Erfurt 50 1993 2010 Yes In preparation 1993 2000 3.5 x x x

Frankfurt am Main 50 1990 2030 No Yes 1995 2005 10.0 x x x x 12.6 (2005)

Fürth 20 1990 2020 No Yes 1990 2005 5.0 x x x x 7.7 (2005)

Hagen 50 1990 2030 Yes 1990 1990 x x x

Halle (Saale) 50 1990 2030 Yes Yes 1994 2006 6.0 x x x 4.5 (2006)

Hamburg 80 1990 2050 No Yes 1990 2006 4.0 x x x x x 10.3 (2005)

Hannover 40 1990 2020 No Yes 1990 2005 15.0 x x x x 9.8 (2005)

Herne Yes 1987 1995 8.0 x x x

Jena 20 2005 2012 Yes Yes 2005 2008 3.0 x x x 7.1 (2005)

Karlsruhe Yes 1990 2007 4.3 x x x 11.2 (2007)

(Continued)

62Sippel

Greenhouse

Gas

Measurem

ent&Managem

ent

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4

Page 10: Urban GHG inventories, target setting and mitigation achievements: how German cities fail to outperform their country

Appendix Continued

Redu

ctiontarget

(%)

Base

year

Target

year

Onco

urse

toreachtarget

Emission

repo

rting?

Earliestinventory

Mos

trece

ntinventory

Freq

uencyof

repo

rting

(every

xyears)?

Energy

Transport

Public

buildings

Waste

Land

use

Indu

stria

lproce

sses

Percapita

CO2Em

ission

s(tC

O 2/a)

Kiel 40 1990 2020 No Yes 1990 2000 5.0 x x

Koblenz Yes 1998 1998 x x

Köln 20 1990 2020 In preparation x x x

Leverkusen 50 1990 2030 In preparation

Lübeck In preparation x x x

Magdeburg 50 1990 2030 Yes Yes 1992 2005 6.5 x x x x 7.2 (2005)

Mannheim 40 1990 2020 No Yes 1990 2005 7.5 x x 10.7 (2005)

Münster 40 1990 2020 No Yes 1990 2005 5.0 x x x x 7.7 (2005)

Offenbach am Main 50 1990 2030 Yes 2005 2006 1.0 x x x 10.5 (2005)

Oldenburg In preparation

Pforzheim In preparation

Potsdam 20 2005 2020 Yes Yes 1990 2006 1.0 x x x x 3.3 (2005)

Remscheid 50 1990 2030 No Yes 1990 2007 8.5 x x x x x 10.5 (2006)

Rostock 52 1990 2010 Yes Yes 1990 2008 9.0 x x x x 4.2 (2005)

Salzgitter In preparation x

Siegen 40 1990 2020 In preparation

Stuttgart 40 1990 2020 No Yes 1990 2000 5.0 x x x x

Wiesbaden 20 1990 2020 No Yes 1987 2006 1.2 x x x 11.4 (2005)

Wuppertal 38 1992 2010 No Yes 1990 2006 1.0 x x x x 8.9 (2005)

Würzburg 40 1990 2012 Yes x x

UrbanGHG

inventories,targetsettingand

mitigation

achievements

63

Greenhouse

Gas

Measurem

ent&Managem

ent

Dow

nloa

ded

by [

Uni

vers

ity o

f C

alif

orni

a, R

iver

side

Lib

rari

es]

at 1

3:18

09

Oct

ober

201

4