Air pollution in Europe — 2025 reporting status under the National Emission reduction Commitments Directive

Progress towards emission reduction commitments

The National Emission reduction Commitments Directive (NEC Directive) outlines obligations to reduce national emissions of five air pollutants (EU, 2016). These pollutants consist of fine particulate matter (PM_2.5), nitrogen oxides (NO_x), non-methane volatile organic compounds (NMVOCs), NH₃ and SO₂. The current reduction obligations apply from 2020 to 2029, while stricter obligations will apply from 2030 onwards.

The analysis presented in this briefing is based on the latest air pollutant emission inventory data, up to and including 2023, as reported by Member States in 2025. Member States have reported annual emissions since 1990, with particulate matter emissions having been reported since 2000.

Status of achieving the 2020-2029 emission reduction commitments under the NEC Directive

Data relating to 2023 were reported by Member States in 2025. These data indicate that 19 Member States met the emission reduction commitments set for 2020-2029 for all five main air pollutants (Figure 1). Meanwhile, eight Member States failed to meet their emission reduction commitments for at least one of the five main air pollutants. For almost a quarter of Member States, the most significant ongoing challenge continues to be the reduction of NH₃ emissions.

Figure 1. Number of Member States that met their 2020-2029 national emission reduction commitments for the five main air pollutants in 2023 and number of Member States that need to reduce their emission levels to meet their commitments

Efforts needed to meet national emission reduction commitments for 2020-2029

Based on emission data for 2023, six Member States did not meet their national emission reduction commitments for NH₃ (Table 1). Since 2005, in many Member States, NH₃ emissions have decreased only slightly, or in some cases have increased. This highlights the need for more effective policies to target emissions from the agriculture sector, which is the main source of NH₃ emissions in the EU. Agricultural practices aiming to reduce NH₃ emissions include improving fertiliser application and manure management practices, as well as optimising livestock diets.

For each of the following pollutants — SO₂, NO_x, NMVOCs and PM_2.5 — all but one Member State met their 2020-2029 national emission reduction commitments based on emission data for 2023 (Table 1). Cyprus still needs to significantly reduce its SO₂ emissions to meet the reduction commitment — the main sources of SO₂ in Cyprus being the energy supply and manufacturing. In Lithuania, a substantial reduction in NO_x emissions is required in order to meet the reduction obligations, noting that road transport is a key source. In Lithuania, reductions are also needed in NMVOC emissions.  New technologies and improved production processes in the main emission sectors, such as manufacturing, extractive industry and product use, may help reduce Lithuania’s NMVOC emissions further. For Romania, further reductions in PM_2.5 emissions are needed to meet the 2020-2029 national emission reduction commitments. Effective emission reduction measures in the energy sector could help contribute to Romania meeting the reduction commitment for PM_2.5.

Table 1. Magnitude of emission reductions (percentage) required by EU Member States to meet their emission reduction commitments for 2020-2029, based on 2023 data

Progress towards the 2030 emission reduction commitments under the NEC Directive

Stricter commitments will enter into force in 2030. In view of that milestone, Member States need to do more to achieve their national emission reduction commitments for 2030 and beyond. Based on 2023 data, all Member States — except for Belgium, Estonia, Finland and the Netherlands — need to reduce emissions for at least one pollutant to fulfil their 2030 commitments (Figure 2). For many Member States, the distance to the target is very significant and requires far stronger action. The greatest challenge will be to reduce NH₃, NO_x and PM_2.5 emissions.

Even if a given country has already met the 2030 emission reduction commitment for specific pollutants, current emission levels and trends suggest that further measures need to be in place to avoid increases that would jeopardise these achievements.

Figure 2. Number of Member States that had met their national emission reduction commitments for the five main air pollutants for 2030 and beyond in 2023 and number of Member States that need to reduce emissions to meet their commitments

Efforts needed to meet national emission reduction commitments from 2030 and beyond

NH₃

For NH₃, 12 Member States had already met their more stringent 2030 emission reduction commitments in 2023 (Table 2). However, more than half the Member States still need to reduce NH₃ emissions to meet their 2030 commitments. The EC’s Fourth Clean Air Outlook (EC, 2025) highlights that promoting good agricultural practices is crucial to reduce the NH₃ emissions from intensive livestock farming, manure and slurry management and fertiliser application.

PM_2.5

12 Member States had already met their 2030 emission reduction commitments for PM_2.5 emissions in 2023 (Table 2). Burning solid biomass and fossil fuels for residential heating still contributes significantly to PM_2.5 emissions in some Member States. Therefore, improving insulation and upgrading heating systems as well as installing low-emission boilers or switching to cleaner fuel types remain important actions that will help to reduce PM_2.5 emissions. Beyond further efforts in the energy sector, there is also scope for further reductions in the manufacturing and extractive industries, as well as the road transport sector. This includes the emissions from internal combustion engines and from tyre and brake wear in vehicles.

NO_x

Ten Member States had already met their NO_x emission reduction commitments for 2030 in 2023 (Table 2). However, 17 Member States will need to reduce their NO_x emissions further. Efforts to reduce NO_x emissions are especially needed in the road transport and energy supply sectors.

NMVOCs

For NMVOC emissions, 16 Member States had met their 2030 emission reduction commitments in 2023 (Table 2). As the manufacturing and extractive industry sector is the main source of emissions, there is potential for reduction measures for NMVOCs to focus on industrial sectors.

SO₂ 

The progress in SO₂ emission reductions is more positive in comparison with the other pollutants overall, with only two Member States facing challenges to meet their 2030 emission reduction commitments (Table 2). The energy supply is the principal source of SO₂ emissions in the EU, while the manufacturing and extractive industry sector is the second-largest contributor.

Table 2. Magnitude of emission reductions (percentage) required by EU Member States to meet their emission reduction commitments for 2030 onwards, based on 2023 data

Main sources of air pollutants in 2023

This section presents a visual representation of air pollutant sources. In addition to the five main air pollutants in the NEC Directive (Figure 3), a broader range of air pollutants is addressed (Figure 4). The economic sectors contributing to air pollutant emissions differ depending on the pollutant; variations between Member States arise from differences in their economic structures.

Figure 3. Sectors and activities contributing to emissions of the five regulated air pollutants in EU Member States in 2023

Figure 4. Sectors and activities contributing to emissions of the wider group of air pollutants in EU Member States in 2023

Past trends in EU-27 air pollutant emissions, 2005-2023

There was a slight decline in the total amount of air pollutant emissions across Member States  in 2023, thus maintaining the overall downward trend observed since 2005. Figure 5 shows the trend in total emissions; they are indexed as a percentage of their value in the reference year 2005 and set against the gross domestic product (GDP) as a percentage of the 2005 value. 

From 2005 to 2023, PM_2.5 and PM₁₀ emissions fell by 38% and 36%, respectively. Emissions of SO₂ fell by 85%. Major reductions were also seen for NO_x (53%), black carbon (BC, 50%), carbon monoxide (CO, 47%) and NMVOCs (35%).

Notably, NH₃ emissions fell by only 17% — the least out of all the pollutants.

Figure 5. Trends in EU emissions of NH₃, NMVOCs, NO_x, SO₂, primary PM_2.5, primary PM₁₀, BC and CO, between 2005 and 2023

Figure 6 shows trends in the total emissions of other pollutants reported under the NEC Directive, namely heavy metals and benzo(a)pyrene (BaP), in EU Member States. These are indexed as a percentage of their value in the reference year 2005 and set against Member States’ GDP as a percentage of the 2005 value. From 2005 to 2023, emissions of nickel (Ni) and arsenic (As) fell by 73% and 68%, respectively. In contrast, mercury (Hg), lead (Pb) and cadmium (Cd) emissions fell by 57%, 46% and 43%, respectively. Emissions of BaP fell by just 28%.

Figure 6. Trends in EU emissions of BaP, Cd, Pb, Hg, As and Ni, between 2005 and 2023

Figures 5 and 6 both show that air pollutant emissions across EU Member States declined between 2005 and 2023, while the GDP increased by 32%. This represents a significant absolute decoupling of emissions from economic activity between 2005 and 2023. Absolute decoupling occurs when an environmental impact variable, such as air pollutant emissions, remains stable or decreases while the GDP increases. The greatest decoupling is seen for SO₂, followed by NO_x, BC, CO and certain metals (Ni, As and Hg).

The decoupling of emissions from economic activity leads to lower emissions of air pollutants for each unit of GDP produced annually. This may be the result of a combination of factors. Examples of such factors include increased regulation and policy implementation, fuel switching, technological improvements and improvements in energy or process efficiencies.