SWD (2016) 226
SWD (2016) 226
SWD (2016) 226
COMMISSION
Brussels, 1.7.2016
SWD(2016) 226 final
EN
EN
Contents
Executive summary .................................................................................................................... 3
1. Introduction ........................................................................................................................... 4
2. The views of stakeholders and other EU institutions and bodies .......................................... 4
3. Taking stock of the main achievements ................................................................................ 7
3.1. Progress in the implementation of the 2011 programme ............................................. 7
3.2. Implementation at Member States level .................................................................... 16
3.3. Progress towards the targets and goals ...................................................................... 17
4. A new environment for the implementation of EU transport policies ................................ 27
4.1. The priorities of the Commission 2014 - 2019 .......................................................... 27
4.2. Recent trends and developments in the transport sector............................................ 28
5. Conclusions ......................................................................................................................... 34
Annex I: Trends and developments of relevance for transport ................................................ 35
Annex II: Schematic table on the state of play of the 2011 White Paper programme ............. 42
Executive summary
This report looks at progress in the implementation of the initiatives under the ten-year
programme of the 2011 Transport White Paper by taking stock of the activities undertaken so
far.1 It also presents changes in the context against which the policy objectives and approach
had been formulated in 2011, highlighting main trends and developments of relevance for
transport. Through the publication of this report, the services of the Commission are in
particular responding to stakeholders as well as European institutions and bodies, who have
requested to take stock and follow-up on the implementation of the 2011 White Paper on
transport.
Overall, the stock taking exercise has shown that there is still little progress achieved towards
the goals set 2011. Despite a relative good pace on the side of the Commission in proposing
new measures, it has become evident that the follow-up adoption of the proposals by the
legislators as well as the implementation have been lagging behind. Moreover, it has turned
out that not all initiatives could take the form initially planned and alternative approaches to
tackle various problems are sometimes needed.
Despite the continuation of the main trends, it should also be acknowledged that the current
situation has evolved since 2011. The rapid technological developments (notably due to
automation and digitalisation) have been reshaping mobility concepts and opening new
potentials. At the same time, the results of the consultation and feedback received from
various stakeholders indicate that negative externalities of transport are increasingly
contentious, while unresolved social issues are considered as a major stumbling block for the
Single European Transport Area. In addition, 'smart transport' is often seen as part of the
solution to the mobility problems, but it also requires the right framework conditions, in
particular with respect to standardisation, interoperability and data exchange.
The fact that only limited data are available and that the impacts of most of the initiatives cannot yet be
observed do not allow the proper assessment of the effectiveness of the measures adopted so far and their
contribution to reaching the goals. Moreover, at this stage it would be difficult to assess the impacts of the
long-term transport strategy, given that even where initiatives have led to the adoption of corresponding
legislation, the latter has often not yet been fully implemented on the ground and it would be premature to
expect any significant impacts. Consequently, the report does not provide an evaluation of the proposed
policies and does not propose any revision of the goals or policy recommendations put forward in the White
Paper, but rather takes a more qualitative approach to analyse the past achievements and to place them in the
current economic, technological and political context.
1. Introduction
The purpose of this report is to take stock of the implementation of the 2011 White Paper on
transport "Roadmap to a Single European Transport Area towards a competitive and
resource-efficient transport system"2 and to provide an overview of the respective
achievements and challenges. It is intended to provide a solid factual ground for upcoming
policy debates and actions, identifying the bottlenecks of the present approach and challenges
to address.
The 2011 White Paper defines a long-term vision until 2050 for a transport sector that
continues to serve the needs of the economy and of the citizens while meeting future
constraints: oil scarcity, growing congestion and the need to cut CO2 and pollutant emissions
in order to improve air quality particularly in cities. According to this vision, transport will
have to cut emissions by 60% by 2050 to contribute to the overall target of 80% to 95%
reduction for the entire economy. The strategy set in the White Paper is to a substantial degree
based on low CO2 emission fuels, energy efficiency, better multimodality of transport and
new technologies that should lead to optimised journeys.
The Commission has further developed its transport policy in the context of various priority
strategies i.e. on (1) jobs, growth and investment, (2) a deeper and fairer internal market, (3)
energy union and climate, (4) digital single market and (5) the EU as a stronger global actor.
In addition, the upcoming decarbonisation communication will report in depth on the followup of the White Paper actions related to sustainable transport.
The White Paper strategy is characterised by four broad areas of intervention: internal
market, innovation, infrastructure, international aspects. For each of these areas, a ten year
programme was defined with 40 specific action points, containing within each point a handful
of specific initiatives of different nature, different time horizon and different
economic/political relevance.
See: http://ec.europa.eu/transport/media/consultations/doc/2015-white-paper-2011-midtermreview/analysis.pdf
4
Given the diversity of replies, a stakeholder event was held on 12 November to further discuss
the way forward.4 The event gathered some 150 participants representing different group of
stakeholders. The discussions were focused on three areas of transport policy: single transport
market, decarbonisation of transport and smart transport. The main findings of these
discussions have been presented in a report of the event.5
The outcome of both consultation exercises showed that the challenges that had informed the
2011 White Paper were still present, even though the approach and goals set in that document
were not considered optimal by everyone. It was recommended that the focus should be more
on legal stability and implementation. Moreover, some streamlining of the initiatives and
making the objectives more operational together with better communication were suggested in
order to push the agenda forward.
Own initiative report of the European Parliament (EP)6
The EP in its report broadly supported both the objectives of the White Paper and underlined
the importance of transport to the EU economy and citizens. The report promoted comodality, fair competition and emphasised the importance of sustainable and urban transport.
It called for modern infrastructure and smart funding and stressed that digitalisation was vital
to improving the efficiency and productivity of the transport sector. On the global dimension,
the EP emphasised the key role of international acceptance of the Single European Transport
Area and the importance for the EU to play an increasingly formative role in the relevant
international bodies. It also underlined that the EU should maintain a leading role in the
global efforts to reduce transport emissions.
In addition, the EP report contained a series of mode specific recommendations and asked for
an integration of all transport modes with a view to achieving a more efficient, sustainable,
competitive, accessible, user- and citizen-friendly transport system. It requested to put people
in the centre of transport policy and called for more action on passenger rights, safety and
improvement of working conditions. The Commission was finally asked to update the
emission reduction targets for 2030 and to propose a comprehensive strategy for the
decarbonisation of transport.
Transport Council policy debate7
The debate served to gather views on the overarching goals of the White Paper, the adequacy
of means proposed to achieve them and on the priority areas to be tackled in the future.
Alternative means of transport like walking and cycling were also singled out as a matter for
discussion.
Member States confirmed the importance of a common European approach to transport
policy; some would like to see a more balanced approach and consideration of specificities of
4
See: http://ec.europa.eu/transport/themes/strategies/events/doc/2015-11-12-white-paperpresentations/report.pdf
EP (2015), Report on the implementation of the 2011 White Paper on Transport: taking stock and the way
forward towards sustainable mobility, 2015/2005(INI)
http://www.eu2015lu.eu/en/actualites/articles-actualite/2015/10/08-conseil-tte-transports/index.html
5
certain national realities. All Member States recognised the need to strengthen the efforts in
the field of decarbonisation of the transport sector, including a better internalisation of
external costs which should promote a fair application of 'user-pays' and 'polluter-pays'
principles, but at the same time respect the specific situation of peripheral regions.
Furthermore, there was an agreement that alternative modes of transport, notably active
mobility should be promoted more, while investments needed for the fulfilment of the White
Paper objectives were reminded to be a priority. Social aspects, digitalisation and automation
were other important aspects that required more recognition in the transport policy agenda.
Additional efforts were also called for to improve road safety and to safeguard the
competitiveness of European transport operators vis--vis international competitors.
All in all, Member States endorsed the full relevance of the 2011 White Paper and emphasised
the need to focus the efforts on the implementation of the existing legislation before
developing new legislative proposals.
Opinion of the Economic and Social Committee (EESC)8
The EESC in its opinion expressed its support for the aims set out in the 2011 White Paper
and the efforts to create the Single European Transport Area, but also indicated that much still
remained to be done.
The opinion emphasised that adequate infrastructure and transport services were also needed
in remote regions. It also stressed that modal shift required flexibility and adaptation to local
conditions, questioning the 300 kilometre limit sought on road transport, which would not
work in remote and sparsely populated regions with a limited rail network. Moreover, the
opinion encourages a focus on social dumping and welcomes the intention to clarify market
access rules in road transport. It was also mentioned that the 'user pays' and 'polluter pays'
principles were not always complementary. Clearer infrastructure charging concepts were
requested, which would guarantee cohesion, avoid social exclusion and ensure coherence with
taxes and other charges. The opinion also suggested that the White Paper should cover
specific actions aiming at doubling public transport use in urban areas by 2030 and asked for
a reassessment of the 2011 White Paper action plan in terms of its political feasibility. Any
upcoming revision of the White Paper was asked to be done following a participatory
dialogue.
Opinion of the Committee of the Regions (CoR)9
The document suggested that the European Commission should consider updating the White
Paper goals to new challenges and setting intermediate goals for the period beyond 2020.
Furthermore, the CoR called local and regional authorities to be more actively involved in the
decision-making process, being important players at local and regional level. It also
underlined the importance of adequate and properly funded transport networks and means for
geographically and demographically disadvantaged areas, as a basic factor in bringing about
territorial cohesion. The opinion also pointed out that the needs of such regions were not
sufficiently recognised in the EUs policies and programmes affecting transport.
EESC (2015), Roadmap to a single European transport area Progress and challenges, TEN/566
CoR (2015), Implementation of the 2011 White Paper on Transport, CDR 1426/2015
6
There was also some disappointment expressed about little progress made so far on modal
shift and intermodal ticketing, especially for multimodal transport across regional or national
borders. In this context, the CoR called for coordinated action with a view to strengthening
multimodal transport, above all by creating the necessary links to nodal points (such as
airports, ports and intermodal transport centres), and highlighted the need for coordination at
Member States' borders. It also would like to see more attention being paid to urban public
transport and places where traffic flows begin.
Directive 2003/96/EC
11
12
Directive 1999/94/EC
13
http://ec.europa.eu/transport/modes/rail/packages/2013_en.htm
7
pillar' of the package was adopted in May 201614 and, in view of the provisional agreement on
the 'market pillar' in April 201615,the legislative acts under this pillar may be adopted soon. In
November 2015 all nine EU Rail Freight Corridors (RFCs) have become operational, marking
the completion of the European Rail Network for Competitive Freight.
Concerning air services, an important legislative package the Single European Sky 2+ was
proposed by the Commission in June 201316 and is pending adoption in the Council.
Similarly, the 2011 proposal of the Commission aiming at optimising the use of airports17
(slot allocation) is pending adoption in the Council. The proposal aiming at improving the
ground handling services, on the other hand, has been withdrawn and alternatives are
currently explored. Only the proposal on noise management at EU airports led to the adoption
of corresponding legislation in April 201418.
In the area of maritime transport the Commission continued its efforts to create an EU
maritime transport space without barriers. In this context a ports strategy package was
proposed in May 201319. Also progress in establishing the framework for inland navigation
has been made with the proposal for the NAIADES II package in September 201320, while
new rules on professional qualifications were proposed by the Commission in February
201621.
Concerning road transport, an important achievement was the adoption of the Directive on
Weights and Dimension in April 201522. Also the adoption of the Roadworthiness package in
March 201423 is an important step towards increasing safety of the European road transport
system. Other major road initiatives are under preparation as announced in the Commission
Work Programme for 201624.
The Commission has also made progress in the area of passenger rights. It proposed a revision
of the Regulation on air passenger rights in March 201325 with a view to confirming and
clarifying rights and ensuring a better application and enforcement of the regulation.
Interpretative Guidelines on Regulation (EC) No 1371/2007 on rail passengers' rights and
obligations have been adopted in July 201526. This is to be followed up by a Commission
proposal to revise the regulation on rail passenger rights which may be issued by the end of
14
15
See: http://europa.eu/rapid/press-release_MEMO-16-1383_en.htm
16
http://ec.europa.eu/transport/modes/air/single_european_sky/ses2plus_en.htm
17
18
19
http://ec.europa.eu/transport/modes/maritime/ports/ports_en.htm
20
http://ec.europa.eu/transport/modes/inland/promotion/naiades2_en.htm
21
COM(2016) 82 final
22
23
http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/trans/141818.pdf
24
25
26
OJ C220, 4.7.2015
8
2016. In parallel, the Commission tabled a proposal27 to revise Regulation (EC) N2006/2004
on the cooperation between national authorities responsible for the enforcement of consumer
protection laws so as to make cross-border enforcement more agile and efficient, including
enforcement of transport-specific consumer protection provisions.
Also work on safety is advancing with a REFIT (Regulatory Fitness and Performance
Programme) evaluation of the passenger ship safety (which will serve as a basis for the
upcoming simplification of the legislation) published in October 201528 and the
implementation of the SafeSeaNet almost finalised. For aviation, a major step was the
proposed revision of the EASA (European Aviation Safety Agency) Basic Regulation29 (as a
part of the new aviation strategy) in December 201530 that aims at improving the efficiency of
the EU aviation safety system and a more risk-based approach as well as extending EU
aviation safety rules to drones.
With respect to transport security, the Commission has revised the legal framework related to
aviation security, particularly in relation to non-metallic threats and air cargo security31. The
creation of the Expert Group on Land Transport Security, commonly known as LANDSEC, in
2012 has provided an appropriate forum for discussing security issues. Work has also been
done to bring forward an initiative on developing a common methodology across the EU for
recording transport crimes affecting lorries. The proposed revision of the EASA Basic
Regulation should allow the agency to develop its work in, among other topics, cybersecurity
and safety requirements/supervision, while the new rules on aircraft tracking32 should address
the gaps in security requirements that became apparent with the disappearance of MH370. In
March 2016 the Commission developed guidance materials for airport soft target protection33
and launched detection trials to see how such future attacks can be deterred. In addition,
confronted with growing threats of terrorist attacks the Commission is investigating if it
should propose specific security measures for rail transport.
Concerning social issues, the picture is more mixed, but some progress has also been achieved
since 2011. In the maritime sector, progress can be witnessed with the entry into force of the
directive incorporating the 2006 ILO Maritime Convention in EU law34 and the improvements
in the enforcement of this convention through port state control and flag state
responsibilities35, as well as the inclusion of seafarers in the scope of five EU labour
directives36. Also in other sectors actions have been taken at the EU level, such as the
27
28
29
30
31
32
http://europa.eu/rapid/press-release_IP-15-6319_en.htm
33
34
Directive 2009/13/EC
35
36
Directive 2015/1794/EU
9
legislation on working time for the inland waterway sector37 and the flight time limitations38
for the civil aviation sector. However, some issues still remain to be resolved.
In road transport, the road haulage services have been subject of increasing concerns
regarding in particular the unequal working conditions, bogus self-employment and letterbox
companies.39 Some of these issues have been addressed with the new rules on the enforcement
of the Posting of Workers Directive40 and the establishment of the Platform to tackle
undeclared work, which both also cover workers in the transport sector.41 Besides, taxi
corporations in various countries (e.g. in France42 or Belgium43) claim that transportation
network companies (TNC)44 across Europe circumvent employment and social protection
rules. All these issues have triggered opposition to further market opening and led to various
national measures trying to restrict foreign operators from the national markets or imposing
additional requirements45. These problems may require action at the EU level and the
preliminary results of the Commission evaluation concerning working, driving and rest time
in road transport show that the first path to explore should be to assure uniform interpretation
and improve the implementation of the existing legislation.46
In aviation, the situation of highly mobile workers has not been properly addressed and
deserves specific attention.47 Whereas the 'home base' concept has been introduced into the
Regulation on the coordination of social security systems in 201248, more may need to be
done to clarify the rules on applicable labour law for highly mobile workers and on the
competent court in charge of disputes. The Practice Guide on jurisdiction and applicable law
in international disputes between the employee and the employer from May 201649 is a
positive development in this respect and some more work in this area is envisaged, supported
37
Directive 2014/112/EU
38
39
See more: EP (2013), Social and Working Conditions of Road Transport Hauliers, PE 495.855; EP (2015),
Employment Conditions in the International Road Haulage Sector, PE 542.205; EESC (2015), The internal
market of international road freight: social dumping and cabotage, TEN/575.
40
Directive 2014/67/EU
41
As regards the Posting of Workers Directive, only merchant navy undertakings fall under an outright
exception from its scope.
42
See: http://www.lemonde.fr/les-taxis-contre-uber/
43
See: http://www.lesoir.be/989951/article/actualite/regions/bruxelles/2015-09-15/manifestation-contre-uberun-chauffeur-taxi-blesse-lors-d-une-altercation
44
See: Brishen Rogers (2015), The Social Costs of Uber, University of Chicago Law Review Dialogue 82:85
45
See: https://en.wikipedia.org/wiki/Legal_status_of_Uber%27s_service
46
Ricardo (2016), Ex-post evaluation of social legislation in road transport and its enforcement (the final
report has not published before the finalisation of this report)
47
48
49
DG JUST (2016), Practice Guide. Jurisdiction and applicable law in international disputes between the
employee and the employer.
10
by the recently adopted Aviation Strategy50 and the study on employment and working
conditions in air transport and airports51.
Innovation
The main achievements in establishing a proper framework for research and innovation
include: the adoption of Smart, Green and Integrated Transport52 as a distinct Societal
Challenge in the Horizon 2020 Framework Programme for Research and Innovation (with a
budget of over 6.3 billion for the period 2014-2020), the establishment of the Shift2Rail joint
undertaking53 (with a budget of 920 million for the period 2014-2020), SESAR Joint
Undertaking54 (a public-private-partnership for air traffic management modernisation with a
budget for deployment of 3 billion and 585 million for SESAR 2020) and the Clean Sky 2
Joint Technology Initiative55 (a public-private-partnership for demonstration of greener
aviation technologies and competitiveness for which almost 1.8 billion were allocated), the
European Green Vehicles Initiative (EGVI) (a contractual public-private partnership on
efficient use of clean energies in road transport, particularly on electromobility for which
700 million were allocated), as well as the Fuel Cells & Hydrogen Joint Undertaking (total
budget of 665 million out of which 250 million for transport). The implementation of
ERTMS (European Railway Traffic Management System) has been supported by the
Breakthrough Program from May 201556 and the launch of calls for tenders under the
Connecting Europe Facility, while the discussions on a committed and realistic European
Deployment Plan are on-going.
The Commission is also working on the Strategic Transport Research and Innovation Agenda
(STRIA) as part of the upcoming communication on Energy Union Integrated Strategy on
Research, Innovation and Competitiveness (EURICS) in order to streamline the research and
innovation efforts and focus them on the most pressing challenges and the most beneficial
actions for transport. The integrated Strategic Energy Technology Plan (the SET Plan)
communication adopted in September 201557 complements STRIA and, in the transport
domain, covers R&I on automotive batteries and renewable fuels. Furthermore, the European
Innovation Partnership (EIP) on Smart Cities and Communities58 was launched in 2012 and
will also fund and develop better transport solutions. In the framework of this partnership two
Action Cluster Initiatives were launched in 2016: on smart city electro-mobility and on smart
city mobility services59.
In the area of road transport safety technologies, type-approval requirements for the
deployment of the eCall in-vehicle system in cars and vans were introduced in April 2015 and
50
51
Steer Davies Gleave (2015), Study on employment and working conditions in air transport and airports.
52
See: https://ec.europa.eu/programmes/horizon2020/en/h2020-section/smart-green-and-integrated-transport
53
See: http://shift2rail.org/
54
See: http://www.sesarju.eu/
55
See: http://www.cleansky.eu/
56
57
58
See: http://ec.europa.eu/eip/smartcities/
59
See: https://eu-smartcities.eu/content/sustainable-urban-mobility-0
11
will start to apply from 2018 onwards.60 Lane Departure Warning and Advanced Emergency
Braking technologies for trucks have been introduced in the framework of the General Safety
Regulation61 and, starting from 2016, antilock braking systems (ABS) has become mandatory
for motorcycles in the EU62. In aviation, the Commission proposal to extend the EU safety
rules to all drones63 should help opening the EU drone services and manufacturing market
(EASA is working on detailed implementing rules).
Concerning decarbonisation of transport, which is also covered by this intervention area, a
very important step in technology and innovation policies was the adoption, in October 2014,
of the Directive on the deployment of alternative fuel infrastructure64, which provides inter
alia for common standards and consumer information. Setting new targets for CO2 emission
from cars65 and light commercial vehicles (vans)66 in 2014 was also a major achievement67
and the post-2020 CO2 emission standards for cars and vans are currently under development.
The second package of rules to introduce real driving emission (RDE) tests was adopted by
the European Parliament and the Council in February 201668. The new tests are intended to
measure more accurately pollutant emissions from cars and other light vehicles. In addition,
the Commission proposed a major overhaul of the EU type approval and market surveillance
framework for motor vehicles and tabled a legislative proposal to this effect in January
2016.69 The review of the vehicle labelling scheme for CO2 emissions and fuel efficiency is
currently under evaluation, while the development of harmonised methodologies for carbon
footprinting will be supported in 2016-2017 through Horizon 202070. Eco-driving
requirements are so far only included in the driving licence directive for busses and trucks71.
As regards emission reductions in aviation and maritime transport, the Commission is
working with the International Civil Aviation Organization (ICAO) and the International
Maritime Organization (IMO) with a view to developing market-based measures at global
level and adopting an international CO2 standard for aircraft. The publication of the European
Aviation Environmental Report in January 2016 will help provide a regular overview of the
60
61
62
See: http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/intm/134159.pdf
63
64
Directive 2014/94/EU
65
66
67
These targets, being technology neutral, play an important role in stimulating innovation towards sustainable
solutions. Progressively stringent longer-term targets give manufacturers planning security, create market for
new technologies and economies of scale for vehicle and component manufacturing, hence fostering future
competitiveness and global opportunities for the EU automotive industry. The standards also stimulate the
introduction of alternative fuels (including electrification).
68
69
COM(2016) 31 final
70
European Commission Decision C(2016)1349, Horizon 2020, Work Programme 2016 2017, 11. Smart,
green and integrated transport, MG-5.3-2016: Promoting the deployment of green transport, towards Ecolabels for logistics;
71
Directive 2012/36/EU
12
http://ec.europa.eu/transport/modes/air/aviation-strategy/documents/european-aviation-environmental-report2016-72dpi.pdf
73
See: http://www.theicct.org/sites/default/files/publications/ICCTpolicyupdate15_EEDI_final.pdf
74
75
76
77
See: http://ec.europa.eu/transport/themes/infrastructure/news/2015-05-28-coordinator-work-plans_en.htm
78
generation of financial instruments to boost the support of private finance and capital markets
for investment in long-term transport infrastructure projects.
Transport has also received a prominent role in the cohesion policy through the European
Structural and Investment (ESI) funds which still remains the most important source of EU
funding for transport infrastructure projects. For the 2014-2020, approximately 70 billion in
ESI funding is dedicated to supporting a multi-modal Single European Transport Area by
investing in the TEN-T, enhancing regional and local mobility, and developing more
environment-friendly and low-carbon transport systems79. Also the ESI funds allocated to
sustainable urban mobility raised significantly, from 8 billion in the last financial perspective
to 13 billion for 2014-2020.
Furthermore, in July 2015, the Regulation on the European Fund for Strategic Investments80
(EFSI) was adopted to support strategic investments in infrastructure as well as risk finance
for small businesses. The EFSI is built on 16 billion in guarantees from the EU budget and
5 billion from the European Investment Bank, but by taking on part of the risk through a
first-loss liability, it is expected to achieve an overall multiplier effect of 1:15 in real
investment. The fund aims to overcome current market failures by addressing market gaps
and mobilising private investment. TEN-T projects are a priority for transport under EFSI,
together with smart and sustainable urban transport and connections to the TEN-T81.
Transport relevant taxation, which has an incidence on prices and possible distortions of
competition, has seen little progress so far. Little prospects for reaching a meaningful
consensus in the Council led the Commission to withdraw its proposal82 for the amendment of
the Energy Taxation Directive83.
In 2011, the European Union adopted an amendment to the Eurovignette Directive84, enabling
the internalisation of external costs in road transports. Since then Member States have slowly
but steadily moved towards fully internalising the external costs of road transport. Various
Member States have started or plan introducing a network-wide distance-based tolling system
for heavy goods vehicles and applying the 'user pays' and 'polluter pays' principles.
In 2012, the Commission developed guidance on the application of national vignette systems
for cars (light private vehicles)85, evaluated the existing road charging policy and
commissioned an update of the "Handbook on external costs of transport86" that could serve
as a basis for future calculations of infrastructure charges. More recently, it has been
evaluating the existing Union legislation relative to road charging, namely the Eurovignette
Directive87, the EETS Directive88 and EETS Decision89. The evaluation of the Eurovignette
79
See: http://ec.europa.eu/regional_policy/en/policy/themes/transport-energy/
80
81
82
83
Directive 2003/96/EC
84
Directive 2011/76/EU
85
86
See: Ricardo-AEA et al. (2014), Update of the Handbook on External Costs of Transport
87
Directive 2004/52/EC
89
90
SWD(2013) 1 final
91
4icom , Steer Davies Gleave (2015), Expert Review of the EETS Legislative Acts; Steer Davies Gleave
(2014), Technology options for the European Electronic Toll Service,
92
Deployment costs oscillate around 700 million euros, and operation costs can take between 5 and 20% of the
toll revenues (this figure largely depends on the level of tolls in place).
93
See: http://www.reets.eu/
94
Directive 2009/12/EC
95
96
Council of the European Union, Council conclusions on The EU's External Aviation Policy Addressing
Future Challenges, 3213th TTE Council meeting, Brussels, 20 December 2012,
97
Decision of the Council and of the Representatives of the Governments of the Member States (2012/639/EU)
98
Decision of the Council and of the Representatives of the Governments of the Member States (2013/398/EU)
99
See http://ec.europa.eu/transport/modes/air/international_aviation/country_index/index_en.htm
100
101
102
103
Council of the European Union, Council conclusions on The EU's External Aviation Policy op. cit.
104
https://www.faa.gov/news/updates/?newsId=83225
105
106
107
108
Spain, Hungary, France, Poland, the Czech Republic, Slovenia, Italy, Greece and Portugal.
109
See case 2007/4595 Lithuania, case 2014/2088 Belgium and case 2009/4052 Spain where a Court
decision (in case C-2013/576) was issued on 11 December 2014.
110
111
1990 is the reference year for the Roadmap for moving to a competitive low carbon economy in 2050
COM(2010) 112, while 2008 was the latest year for which statistics were available at the time the White
Paper was drafted and was used as a reference to show the level of effort to be made by 2030.
17
This was part of a longer time perspective set in 2011, when the Commission adopted the three roadmaps to
2050 (Roadmap for moving to a competitive low carbon economy in 2050, Energy Roadmap 2050 and the
White Paper on transport)
113
The EU objective, in the context of necessary reductions according to the IPCC by developed countries as a
group, is to reduce emissions by 80-95% by 2050 compared to 1990.
114
The target for transport includes aviation, but excludes international maritime transport.
115
EEA (2015), Evaluating 15 years of transport and environmental policy integration. TERM 2015: Transport
indicators tracking progress towards environmental targets in Europe. EEA Report, No 7/2015.
18
116
Although car sharing schemes are reported to reduce the demand for cars, they also make car ownership more
affordable and increase car use, so the positive impact on reduction of CO2 emissions from cars might be
limited if the technological change does not take place.
117
118
119
EEA (2014), Monitoring CO2 emissions from passenger cars and vans in 2014, Technical report No
16/2015.
19
Directive 2014/94/EU
121
122
Source: https://ec.europa.eu/energy/sites/ener/files/20130911_a_performing_biofuels_supply_chain.pdf
123
EEA, EASA and Eurocontrol (2016), European Aviation Environmental Report 2016.
124
EEA (2015), TERM 2015: transport indicators tracking progress towards environmental targets in Europe;
Evaluating 15 years of transport and environmental policy integration, EEA Report No 7/2015
125
The 2011 White Paper goal has been defined in terms of CO2 emissions from maritime bunker fuels, defined
in terms of fuel sales. However, estimates for EU-related CO2 emissions from maritime transport suggest a
slight decrease from 195 Mt in 2005 to 190 Mt in 2012, equivalent to -3%, mainly triggered by the economic
developments in Europe. Sources: Ricardo AEA (2013), Support for the impact assessment of a proposal to
address maritime transport greenhouse gas emissions; TNO (2015), GHG emission reduction potential of
EU-related maritime transport and on its impacts.
126
The amendments to MARPOL Annex VI Regulations for the prevention of air pollution from ships, add a
new chapter 4 to Annex VI on Regulations on energy efficiency for ships to make mandatory the Energy
Efficiency Design Index (EEDI) for new ships, and the Ship Energy Efficiency Management Plan (SEEMP)
for all ships.
20
are ongoing developments and testing projects to use methanol in maritime transport. In
addition, in June 2013 the Commission set out a phased strategy127 to progressively integrate
maritime emissions into the EU's policy for reducing GHG emissions. As a first step of this
strategy, the MRV Regulation 128 set the rules for the monitoring, reporting and verification
(MRV) of CO2 emissions from ships arriving at, within or departing from Union ports. It is
expected that the IMO will adopt in 2016 a mandatory international data collection system
enabling to assess the fuel consumption and GHG emissions from ships which could be used
to design the most appropriate GHG emission reduction measures for the shipping sector. In
addition, the organisation will discuss still in 2016 a work plan for establishing a GHG
reduction contribution target of international shipping towards 'the well below 2C' objective
agreed in the Paris Climate Agreement129.
(3) 30% of road freight over 300 km should shift to other modes such as rail or
waterborne transport by 2030, and more than 50% by 2050, facilitated by efficient
and green freight corridors. To meet this goal will also require appropriate
infrastructure to be developed.
The goal of shifting freight over 300 km was intended to provide a measurable benchmark to
assess progress at EU level towards the vision put forward in the White Paper. This vision
covered the development of cross-border freight corridors which should enhance the
competitiveness of rail freight particularly over the long distances. This benchmark should not
be interpreted as a prejudgment that greater use of rail, inland waterways and short sea
shipping in freight transport is only sought for transport above 300 km, but rather that the
modal shift in the long distance segment is expected to be larger. It will also provide to some
extent a measure of effectiveness of the EU infrastructure policy.
This goal has been based on the modelling scenarios carried out to support the impact
assessment of the White Paper130. All scenarios assumed that the long distance road freight
transport will continue to grow. To achieve the 60% CO2 reduction target by 2050 relative to
1990, part of the road freight growth (corresponding to 30% volumes over long distances by
2030) would need to be shifted to other modes. For monitoring purposes at EU level this
goal can be expressed as percentage points decrease in the modal share of road freight over
300 km in the total freight transport over 300 km. More specifically, this implies a 4
percentage points decrease by 2030 and 9 percentage points decrease by 2050 relative to the
2005 shares based on the on the modelling scenarios carried out to support the impact
assessment of the White Paper.
According to the available data by Eurostat, 28% of freight transport activity is performed on
distances below 300 km and 72% of activity on distances above 300km. Short distance freight
activity is mostly performed by road transport, which corresponds to 78% of the total short
distance activity. Above 300 km, the situation is reversed as maritime shipping is the main
mode used for long distance transport. It should be noted, however, that a part of the maritime
activity refers to cargo types in which sea shipping is specialized (e.g. liquid bulk transport)
and another part corresponds to container transport, which would play a bigger role in modal
127
128
129
See: http://ec.europa.eu/clima/policies/international/negotiations/paris/index_en.htm
130
shift from road to waterborne transport. Rail transport provides 10% of short distance freight
transport and 13% of long distance freight transport. Inland waterways transport represents
instead 8% of short distance freight transport and 3% of long distance freight transport.131
Considering that the type of cargo plays an important role in the way it is transported, an
indicator currently under development by Eurostat for 'modal shift potential' could be more
useful to measure this goal. This indicator will measure the number of containers transported
by road in journeys longer than 300 km which could be shifted to other modes. Aviation is not
highlighted in this indicator, as it is a mode of transport which focuses mostly on high-value
goods of limited weight.132
It is also worth indicating that a first step towards this goal has been made in the previous
years by increasing the support to relevant infrastructure133 (TEN-T projects focus on
multimodality) as well as the development of cross-border freight corridors. From 2014
onwards, the new Connecting Europe Facility (CEF) framework continues to support
multimodal transport, specifically supporting innovative and sustainable freight transport
services and the performance of multimodal logistic chains. The initial allocation foreseen for
freight transport services amounts to 150-200 million for the 7-year period (2014-2020). The
first CEF call received (end of February 2015) 64 proposals in this priority for a total funding
of 189 million (some other projects under other priorities may also have aspects of
multimodality, but are not taken into account in the above number).
(4) By 2050, complete a European high-speed rail network. Triple the length of the
existing high-speed rail network by 2030 and maintain a dense railway network in all
Member States. By 2050 the majority of medium-distance passenger transport should
go by rail.
This goal should be considered as a tool for monitoring the impacts of the infrastructure
policy aiming at the development of high-speed rail and rail connections in general.
In 2013 the total length of railway lines was around 215,000 km; on about 7,300 km highspeed trains can travel faster than 250 km/h134. Compared to 2008, 1,500 km additional high
speed lines have been built. Considering also the traffic performed with high speed rolling
stock135, around 26% of the total rail passenger transport activity is performed with high speed
trains. Nonetheless, overall progress with the extension of high-speed rail network has not
been substantial since the adoption of the White Paper.
Concerning the modal shift in passenger travel on medium distances, the relevant indicator is
yet to be developed. As rail transport is expected to be the most efficient mass transport mode
in the medium distance, this is where the modal shift should primarily take place as a result of
131
132
According to Eurostat 2013 trade statistics, aviation sector covers about 23% of EU external trade by value,
but only 0.8% of EU external trade by weight.
133
For the period 2007-2013 there was an increase in allocations on transport of 65% compared to the previous
programming period 2000-2006. For the period 2014-2020 this amount is to be even higher.
134
Source: DG MOVE (2015),EU transport in figures Statistical Pocketbook 2015, based on data from Union
Internationale des Chemins de Fer (UIC), national sources and estimates.
135
High speed passenger activity includes also tilting trains, able to reach a speed of 200 km/h without
necessarily requiring a high speed infrastructure.
22
support and development of rail transport. This of course does not deny the economic viability
and advantages of rail transport in longer or shorter distances, in particular for sub-urban
travels.
Eurostat is working on the proper definition of the indicator and on ways to collect mobility
data, considering as "medium distance" passenger transport activity between 300 and 1,000
km expressed in passenger-kilometres. According to a 2015 JRC survey on mobility136, cars
are the most common mode of transport for trips falling under this category, followed by rail
transport.
Figure 1. Modal split of trips between 300 and 1,000 km by purpose of the trip EU28
Source: JRC Science and Policy Report EU Survey on issues related to transport and mobility, 2015
(5) A fully functional and EU-wide multimodal TEN-T core network by 2030, with a
high quality and capacity network by 2050 and a corresponding set of information
services.
This goal reflects the infrastructure pillar of the White Paper strategy. With the adoption of
TEN-T and CEF regulations, the framework for transport infrastructure development has been
set. Currently, the relevant investment projects are being prepared. It is obviously too early to
assess the progress towards this goal, which would be most likely closely monitored in the
evaluations of the CEF programme.
The multimodal nature of the TEN-T and its equipment for intelligent and innovative services
has been defined with a view to creating the infrastructural basis for a sustainable transport
system that enables increasing mobility while significantly reducing carbon emissions. Such
an integrated approach stimulates a more efficient use of infrastructure and broadens the basis
for clean fleets. Corresponding projects are identified in the framework of the core network
corridor work and, more broadly, are stimulated through corresponding funding priorities
under the CEF.
(6) By 2050, connect all core network airports to the rail network, preferably highspeed; ensure that all core seaports are sufficiently connected to the rail freight and,
where possible, inland waterway system.
136
Davide Fiorello, Loredana Zani (2015), EU Survey on issues related to transport and mobility, JRC Science
and Policy Report, EUR 27334
23
This goal also monitors the progress in the deployment of the TEN-T. The main transport
nodes are often serious bottlenecks for transport in the EU. The intermodal connections are a
must if a truly multimodal transport is to operate efficiently in the EU. Urban nodes and
multi-modal terminals are key components of TEN-T development and, therefore, received
due attention in the core network corridor work. They have been amongst the funding
priorities of the first CEF call with a number of path-breaking projects having been
supported. Funding will continue under the forthcoming calls. Similarly to the previous goal it
is too early to assess the progress of this goal.
(7) Deployment of the modernised air traffic management infrastructure (SESAR) in
Europe by 2020 and completion of the European Common Aviation Area. Deployment
of equivalent land and waterborne transport management systems (ERTMS, ITS, SSN
and LRIT137, RIS). Deployment of the European Global Navigation Satellite System
(Galileo).
Intelligent transport systems, i.e. digital traffic management and information systems, are an
intrinsic part of the future transport. With various initiatives to support these systems, the goal
to deploy them on the ground is an obvious one. The progress in achieving this goal can only
be assessed qualitatively at the moment.
Significant progress has been made towards modernising and harmonising Europe's air traffic
management (ATM) infrastructure through the SESAR project138. A number of 'SESAR
solutions' developed and validated through the R&D phase of the project are now being
deployed in the operational environment thanks to the SESAR deployment framework set up
by the Commission in 2013139. The first set of SESAR solutions have been included in the
Pilot Common Project140 and are being deployed in synchronisation throughout the Union.
Moreover, the Pilot Common Project prescribes the deployment of the initial infrastructure for
the System Wide Information Management (SWIM) the ATM internet that enables seamless
information interchange between providers and users of ATM information.
The on-going efforts to create a Digital Inland Waterway Area (DINA) and Digital
Multimodal Nodes (DMN) and the existing Union Maritime Information and Exchange
system (the operation of Vessel Traffic Management Information System (VTMIS) and
maritime national single windows) helps unlocking the potential of and interconnecting
information systems on infrastructure, people, vessels, management and cargo components of
maritime transport and will do so for inland waterway infrastructure. DINA/DMN are still in
early stages of development. A concept document will be presented as part of the waterborne
year initiatives in 2017, followed by a revision of the RIS Directive.
The European ERTMS Coordinator, Mr. Karel Vinck, is now engaged in high-level
discussions with the Member States in order to finalise a new, revised version of the ERTMS
European Deployment Plan in 2016. The objective is to have a realistic and committed
programme for the deployment of ERTMS. Moreover, the implementation of the
137
138
See: http://ec.europa.eu/transport/modes/air/sesar/index_en.htm
139
140
141
See: http://www.gsa.europa.eu/egnos/what-egnos
142
See: http://www.gsa.europa.eu/galileo/why-galileo
143
Directive 2010/40/EU
25
The recent European Parliament own initiative report144 called for more efforts in this respect
not only at the EU, but in particular local level. There is no quantitative indicator for this goal
and it would need to be assessed in a more qualitative way at a later stage.
(9) By 2050, move close to zero fatalities in road transport. In line with this goal, the
EU aims at halving road casualties by 2020. Make sure that the EU is a world leader
in safety and security of transport in all modes of transport.
This goal is regularly monitored with well-established indicators. The number of road
casualties in Europe has decreased substantially since 2001, but there are big differences
among Member States. Until recently the overall trend was close to the reference path
necessary for halving the number of causalities in 2020 compared to 2010 (see Figure 2), but
the latest data indicate that the pace of improvement has stalled with the annual number of
fatalities in the EU staying around 26,000 for the last three years145. Furthermore, 'the low
hanging fruits' have been already picked and further efforts would be needed to continue the
positive developments.
Figure 2. Road fatalities in the EU since 2001
The goal to reduce fatalities, however, may not give the full picture of the safety level on
European roads. There are calls to supplement it with an additional goal to reduce the number
of serious injuries from road accidents. Data on serious road injuries is already collected and
the Member States' performance is to be benchmarked and reported on.
(10) Move towards full application of 'user pays' and 'polluter pays' principles and
private sector engagement to eliminate distortions, including harmful subsidies,
generate revenues and ensure financing for future transport investments.
144
145
Given the limited progress in this area this goal is far from being achieved. There is also no
specific indicator to monitor the progress, so only a qualitative evaluation is possible. In any
case, the move towards the 'user pays' and 'polluter pays' principles is expected to be a more
gradual and long-term process than initially intended.
Action point 39 of the White Paper identified a number of initiatives deemed necessary to
move towards first partial then full internalisation of external costs by 2020. Looking at their
level of implementation can be a measure of progress towards the goal. It has become evident
that the implementation of the planned initiatives would imply significant reforms and
restructuring of transport charges and relevant taxes, the sensitivity of which appears to have
been underestimated. As indicated above in section 3.1, the attempt to revise motor fuel
taxation through amendments to the Energy Taxation Directive146 failed.
The lack of progress at the EU level has as its flipside the coexistence of different national
solutions, with potential negative consequences in a number of areas: market distortions and
inefficiencies, poor responses to negative externalities of transport, lack of appropriate
incentives for users, consumers and business, ensuing (possibly inappropriate) mobility
choices and unequal treatment of transport modes. The Commission may address some of
these issues in the upcoming road initiatives.
146
147
http://ec.europa.eu/priorities/docs/pg_en.pdf
148
This includes the 2030 energy and climate change framework as agreed by the European Council of October
2014.
27
Source: Eurostat
149
See: Davide Fiorello, Loredana Zani (2015), EU Survey on issues related to transport and mobility, JRC
Science and Policy Report, EUR 27334
28
7.03% of total employment in the EU150, corresponding to more than 14 million people in
absolute terms. Compared with 2008, the share of transport value added increased from
6.77% to 6.95% in 2013, mostly due to transport manufacturers performance. Within the
same period, the share of persons employed in transport has decreased from 7.19% to 7.03%,
suggesting that the transport sector has still not recovered to the pre-crisis level, in terms of
labour force.
Transport is also a prominent investment priority in the EU 2014-2020 financial framework.
Under the cohesion policy 70 billion is to be dedicated for sustainable transport investments
for 2014-2020 (plus 11 billion contribution to the CEF for projects of common interest in the
cohesion countries). Additional 24 billion for 2014-2020 are provisioned under the CEF
(including 11 billion from the Cohesion Funds), plus more investments could be supported
by the EFSI. The total expected investment in transport mark an increase compared to the
substantial contribution in the 2007-2013 financial framework, which envisaged 82 billion
(23.7% of the total allocation) to be spent on transport.151
Transport remains the second biggest budget item after house-related expenditures (i.e.
housing, electricity, gas and other fuels, 24.7%). In 2013 households in the EU spent about
12.8% of their income on transport-related goods and services. Its share has declined slightly
since 2008 when it accounted for 13.4% of the EU household expenditures152. Also the public
spending on transport has decreased. In 2013, the public expenditure on inland infrastructure
corresponded to 0.74% of the EU GDP, below the 2008 level of 0.94%. By including also the
amount spent on transport infrastructure maintenance, in 2013 the European public
expenditure reached the level of 1.03% of European GDP, which was well below the 2008
levels of 1.29%153.
Modal split
The modal split has not significantly changed since 2008. In the freight sector, road
represented the most important mode of transport in 2013, accounting for almost half (49.4%)
of the overall freight transport activity154 (compared to 50.1% in 2008), followed by intra-EU
maritime transport (31.3%, 0.4% higher than 2008) and rail (11.7% as in 2008) (see Figure 4).
Inland navigation represented 4.4% of the total (0.5% higher than 2008). In the passenger
sector, private cars are the most used mode of transport for personal mobility, covering 72.3%
of the total distance travelled by Europeans in 2013 (72.4% in 2008). Intra-EU aviation is the
second most used mode of travel (9% compared to 8.7% in 2008), used especially for long
distances. Buses and coaches cover 8.1% of European mobility (8.5% in 2008), followed by
rail, tram and metro that cover respectively 6.6% and 1.5% of passenger activity (in 2008,
150
Of which 4.97% corresponding to transport services (including postal and courier activities) and the rest to
transport equipment manufacturing, while 10.9 million jobs correspond to transport services and 3.9 million
to transport equipment. Gross value added statistics are estimates based on Eurostat National Accounts,
calculated under the new ESA2010 methodology. Labour force values are based on Eurostat Labour Force
Survey.
151
http://ec.europa.eu/regional_policy/sources/activity/statistics/2007_transport.pdf
152
153
DG MOVE calculations and estimates based on data on infrastructure expenditure collected by ITF/OECD.
Data for Cyprus and Ireland is missing for infrastructure investment. The coverage for maintenance
expenditure is limited; therefore the shares should be interpreted as estimates.
154
The modal share of road transport in inland transport was 71.9% in 2013.
29
6.3% and 1.4%). The role of sea passenger transport and powered two-wheelers (motorcycles,
mopeds, scooters etc.) is less prominent (0.6% and 1.9% respectively of European mobility,
similarly as in 2008).
Figure 4. Modal shares for freight and passenger transport in 2013
Source: DG MOVE, EU Transport in Figures 2015 (tkm tonne kilometre, pkm passenger kilometre). P2W
stands for powered two-wheelers (such as motorcycles and mopeds).
Environmental performance
Transport activity continues to raise concerns about its environmental sustainability. EU
transport was responsible for 33% of final energy consumption (353 Mtoe) in 2014. Adding
maritime bunker fuels, energy used in transport totalled 394 Mtoe. Road transport is by far the
largest energy consumer, accounting for 73.4% of the total. Aviation is the second largest
energy consumer with a share of 12.6%, followed by maritime transport (10.6%), rail
transport (1.6%, 66% of which is used for electric traction), and finally inland navigation
(1.1%)155.
Figure 5: Share of transport energy demand by source and mode in 2014 (%)
Other
0.8%
Maritime
10.6%
Rail
1.6%
Inland
navigation
1.1%
Aviation
12.6%
Road
73.4%
Source: Eurostat
155
Source: Eurostat
30
The share of transport in final energy demand did not change significantly compared to 2008,
when it represented 32% of the total energy demand, despite a 7% decrease in its levels. Road
was still the mode contributing the largest share of energy consumption in transport in 2008
(71.1%), followed by maritime (12.6%) and aviation (12.4%).
Figure 6: Share of transport energy demand by source and mode in 2008 (%)
Other
0.8%
Maritime
12.6%
Rail
1.7%
Inland
navigation
1.4%
Aviation
12.4%
Road
71.1%
Source: Eurostat
The use of oil remains one of the main sources of GHG emissions. In the EU, transport
currently depends on oil and oil products for about 94% of its energy needs. The EU imports
87.4% of its petroleum and petroleum products from abroad, which makes transport, and the
wider economy, very reliant on the world markets. At the same time, oil is expected to be
increasingly sourced from uncertain supplies in future decades. Road transport depends on oil
products for 95% of its energy use and rail transport for about 33%. Almost all energy
consumed in waterborne transport and aviation is petroleum-based.
Since 2008 emissions in transport have decreased by about 10%.156 In 2013, GHG emissions
from transport represented about 24% of the total emissions, similarly to the share observed in
2008.157 Road transport is by far the largest emitter and in 2013 it accounted for 72.2% of all
GHG emissions from transport. Road transport emissions decreased by about 8% during
2008-2013 but their share slightly increased (+1.9 percentage points relative to 2008) due to
the relatively higher reductions observed in shipping and rail transport. Maritime and air
transport follow with shares of 13.4% and 12.9% respectively. Emissions from maritime
bunkers decreased by 23% during 2008-2013, leading to a 2.2 percentage points cut in their
share in total transport emissions. Rail transport contributed only 0.6% of GHG emissions,
similarly to 2008.158
156
157
This share includes the international maritime. Excluding international maritime, transport provides about
21% of the total greenhouse gas emissions. International maritime is outside the scope of the targets
established in the climate and energy packages for 2020 and 2030.
158
Emissions from rail transport do not include emissions from producing the electricity used in rail.
31
Figure 7: Greenhouse gas emissions from transport by mode in 2008 and 2013159
In the area of air pollution a lot of progress has been made thanks to the Euro standards:
nitrogen oxides (NOx) emissions from road transport decreased by 56% during 1990-2013
and particulate matter (PM2.5) emissions by 50%. Compared to 2008 NOx emissions from
road transport went down by 24% and PM2.5 emissions by 27%. Nevertheless, road transport
still represented the largest source of NOx emissions in 2013, accounting for 39% of total EU
emissions, and was an important source of PM2.5 emissions (13%).161 These shares were 41%
and 17% in 2008, respectively. Costs to society for local pollution are still very high at
about 0.4% of GDP, according to a study by CE Delft162, and new evidence from OECD
provides even higher estimates (up to 6 times higher). Consequently, air quality in cities
remains a fundamental challenge for public health.
Other externalities
Altogether, external costs of transport amount to about 4% of GDP (lower estimates; the most
important components being accidents, congestion, air pollution, climate change and
noise)163. Various modes of transport are to a different extent responsible for externalities.
Most of the negative externalities come from road transport (GHG emissions, local air and
noise pollution, accidents and congestion). Aviation and maritime contribute mainly to
externalities related to climate change and pollution, while rail noise (and also noise from
aviation) is a problem in certain parts of Europe.
Congestion has a negative impact on the environment since it leads to increased air and noise
pollution, and generates higher fuel consumption. The time wasted in traffic jams also
prevents the benefits of agglomeration effects to fully materialise. As a result, the congestion
159
160
http://www.eea.europa.eu/data-and-maps/data/data-viewers/greenhouse-gases-viewer
161
EEA (2015), European Union emission inventory report 19902013 under the UNECE Convention on Longrange Transboundary Air Pollution (LRTAP), EEA Technical report No 8/2015.
162
163
CE Delft et al. (2011), External Costs of Transport in Europe - Update Study for 2008.
CE Delft et al. (2011), External Costs of Transport in Europe... op. cit.
32
has a negative impact on productivity, competiveness of the economy and quality of life164.
Overall congestion costs are estimated at 1% of GDP.165
Road transport, which still causes the vast majority of all deaths due to transport and traffic,
has recorded a decrease in the number of road accidents involving personal injury by 11%
between 2009 and 2014, continuing the overall positive trend (about 25% reduction between
1991 and 2014)166. More importantly, the number of road fatalities also went down, by some
26% between 2009 and 2014. However, no progress was achieved between 2013 and 2015
(preliminary data), which might indicate a deceleration of the trend.167
Other developments to be considered
There are several socio-economic and technological developments that have emerged or
become more prominent since the 2011 White Paper. Firstly, the collaborative economy
paradigm increasingly affects the way transport services are organised with various bike and
car sharing schemes being deployed across the EU168. It generates new employment
opportunities and enables people to work according to flexible arrangements. At the same
time, these flexible work arrangements may not be as regular or stable as traditional
employment relations. Also the increasing automation and digitalisation of transport169 offers
new opportunities for transport services (e.g. by reducing the number of accidents, energy
consumption and pollution, as well as by cutting costs associated with congestion), but also
raises new challenges170, especially in terms of cyber security171 and user acceptance.
Moreover, further changes in the way world economy and industry operates e.g. increasingly
complex business structures and supply chains, growing importance of software, 3D printing
or shift to circular economy will require further optimisation of transport services and changes
in design of transport vehicles and infrastructure. The aforementioned elements have also an
impact on the employment in the transport sector, in terms of opportunities, required skills
and working conditions. Furthermore the increasing role of active modes (walking and
cycling) in the urban transport mix172 has to be better considered in transport policies and
receive the necessary support to take advantage of its potential benefits173. Last but not least,
164
165
Panayotis Christidis, Juan Nicols Ibez Rivas, (2012), Measuring road congestion, JRC Technical Notes,
European Commission JRC-IPTS
166
DG MOVE (2015) EU transport in figures Statistical Pocketbook 2015, based on CARE database data,
national statistics and international sources, as well as estimates.
167
168
See: Roland Berger (2014), Shared Mobility. How new businesses are rewriting the rules of the private
transportation game
169
170
171
172
See: https://ecf.com/what-we-do/cycling-all-policies/national-cycling-policies
173
Informal meeting of EU ministers for Transport, Declaration on Cycling as a climate friendly Transport
Mode, Luxembourg, October 7th, 2015
33
the recent migration challenges, which already pose risks to the functioning of the Schengen
area, can also have strong impact on transport activity in Europe.
A more detailed analysis of the main trends and challenges is presented in Annex I.
5. Conclusions
The socio-economic context and challenges have not evolved substantially compared to 2011,
but it has also become evident that the technological changes have been taking up pace, also
affecting consumer behaviour.
Significant progress has been made on the Commission side in the ten years programme, with
major legislative proposals and extensive analytical work done in support of possible political
actions in the future. Moreover, several action points of the programme have been further
developed under various Commission strategies supporting the ten priority areas of the
current Commission, notably the Energy Union and the Digital Single Market. With respect to
the White Paper goals the time passed since the adoption of that document is in most of cases
still too short to properly assess progress achieved. The monitoring is ongoing and efforts are
made to further develop or improve the relevant indicators.
Finally, there is a strong expectation from various stakeholders that the challenges are
addressed more via focus on implementation, increased, but also well-justified investments in
transport infrastructure, and better consideration of the needs of transport users and workers in
any policy initiatives related to transport. Stakeholders also consider a stronger Single
European Transport Area and technological developments as part of the solution.
34
For instance future trends in employment in transport have been analysed in a dedicated study: JRC (2014),
Future employment in transport. Analysis of labour supply and demand, JRC Technical Report
175
DG ECFIN (2014), The 2015 Ageing Report, Underlying Assumptions and Projection Methodologies,
European Economy 8|2014
176
exposed to ozone (O3) levels above WHO guidelines. Health impact estimates associated with
long-term exposure to PM2.5 show that this pollutant was responsible for 432,000 premature
deaths in Europe in 2012, a level similar to that estimated in previous years. The estimated
impacts of nitrogen dioxide (NO2) (widely exceeded across Europe with 93% of all
exceedances occurring close to roads) and O3 exposure were around 75,000 and 17,000
premature deaths respectively.177 The average contribution of urban and local traffic to PM10
concentration is 35% while it is up to 64% in the case of NO2 concentrations178.
Collaborative economy
Carsharing is a recent but rapidly expanding trend that has been changing the mobility
patterns in the last couple of years, in particular in urban areas. It is part of a wider concept of
collaborative economy where offering and borrowing private goods or exchanging services
has been replacing the idea of owning and buying. The idea of sharing things is not new, but
the scale of it has thanks to new IT technologies pushed the concept of sharing to an
entirely new dimension, leading to new disruptive business models. In particular, mobility has
been a fast developing segment of the collaborative economy, which raises questions
concerning the appropriate regulatory approach, including the level and focus of regulation.179
Box 1: Different forms of carsharing and ridesharing
Despite the short history of the concept, there are already various models of carsharing/ ridesharing systems.
Round-trip carsharing is the most common 'classical' scheme. The shared cars are distributed across a network of
locations within a metropolitan area. Users generally reserve a car ahead of when they wish to use one, in
general via smartphone apps or a dedicated website, and are supposed to return the car to the same place that it
was accessed. In this scheme the fleet of carsharing cars is centrally owned (or leased) by a professional
carsharing operating entity. Zipcar is the biggest company offering such services. In the peer-to-peer carsharing
scheme the principles are broadly the same but the fleet is de-centralised and owned by private individuals, while
the main role of the peer-to-peer carsharing operator is to provide an online marketplace to connect vehicleowners with prospective vehicle-renters. Another variant includes a point-to-point free-floating carsharing (or
flexible carsharing), which enables one-way journeys within a specified geographic zone and can be reserved
spontaneously. The car fleet is centrally-owned by the system operator. Car2go is an example of a company
offering such services. One can also distinguish a station-based point-to-point carsharing services, meaning that
the user picks up a car from one parking station and returns it to another. Autolib is the largest point-to-point
station-based carsharing.180 The borders of this market segmentation are not very strict and other business
models are also emerging. For instance BlaBlaCar could be described as a ridesharing company, offering state of
the art web and mobile platforms to connect drivers of cars with empty seats to passengers looking for a ride.
An important market segment, which sometimes is not considered as a carsharing per se, includes transportation
network companies (TNCs) which offer real-time and app-based on-demand ride services for single or a small
number of passengers. They use Internet and mobile platforms (smartphone apps) to match on-demand drivers
and passengers in real-time just before the trip is to take place. Such companies include Uber, Lyft, and Sidecar.
The services also include a rating system for drivers and passengers and app-based payment. In contrast, taxis
are vehicles for hire that are typically regulated with respect to license entry, fares, and service quality as well as
subject to labour law. Traditional taxi services operate through passenger hailing, where they typically enjoy a
legal monopoly, or pre-arrangement of a ride (traditionally by calling a dedicated phone number), where they
compete with TNCs. Most taxi services do not offer apps for real-time vehicle location or payment, but it can be
177
EEA (2013), Air quality in Europe 2015 report, EEA Report No 5/2015
178
EEA (2012), The contribution of transport to air quality TERM 2012, EEA Report no. 10/2012
179
Roland Berger (2014), Shared Mobility. How new businesses are rewriting the rules of the private
transportation game
180
Scott Le Vine, Alireza Zolfaghari, John Polak (2014), Carsharing: Evolution, Challenges and Opportunities,
Centre for Transport Studies, Imperial College London, ACEA.
36
expected that this service might be soon added to taxi services (e.g. in France a taxi availability register it is
already in the pipeline).181
Within a short period of time carsharing has become a major global industry. In 2014, car
share programs were available in over 30 countries, and in hundreds of cities. The success of
one-way carsharing services is encouraging new companies to consider offering this service
model (original equipment manufacturers (OEMs), rental or leasing companies, mobility
solution providers). In particular, several automakers have entered this market with good
results, building substantial membership levels in only a few years. Some estimates predict
that global carsharing services revenue will grow from $1.1 billion in 2015 to $6.5 billion in
2024.182
Carsharing provides various benefits for its users and the society. It enables personal mobility
with a car without the costs of owning a private vehicle. As some studies show, with
carsharing increasingly becoming a viable alternative, more people could forego a purchase of
a vehicle. Consequently, the increasing number of carsharing services also offers a potential
congestion-relief.183 It is less certain, though, if TNCs services would have the same impact as
they make car ownership potentially more profitable to some people and encourage others to
use cars instead of public transport. Another possible positive development could materialise
through the adoption of plug-in electric vehicles (PEVs) in carsharing services, which is
expected to increase as car manufacturers promote this technology for carsharing.
Notwithstanding the potential benefits, new business models in the field of passenger
transport have also led to discussions on a number of issues, notably of a legal nature. One of
the main questions is whether to treat TNCs companies as IT and/or transport operators (this
issues is currently being looked at by the CJEU184). In the absence of any sector specific EU
legislation in relation to taxi and TNCs, these services are regulated by national and local
authorities. When regulating these services and when applying the respective national rules,
EU Member States are bound by the general principles of Union law, such as proportionality,
non-discrimination on the basis of nationality and freedom of establishment. Furthemore,
potential issues might emerge with the growing ridesharing market segment where a
passenger benefits from a trip that would not be undertaken if not for passenger(s).
Automation and connected vehicles
New technologies have allowed for driver assistance and autonomous operations of vehicles
and in the future could lead to the emergence of fully automated cars. This technological
change is taking place very rapidly and vehicle technology is practically ready for
deployment, while there is still a lack of harmonised framework conditions (legal, coexistence with conventional means of transport, social implications, required interoperable
infrastructure and interfaces). The shift to automation concerns all modes of transport, with
181
Susan Shaheen, Michael Galczynski (2014), Autonomous carsharing/ taxi pathways, Transportation
Sustainability Research Center, UC Berkeley
182
https://www.navigantresearch.com/research/carsharing-programs
183
Peter Viechnicki, Abhijit Khuperkar, Tiffany Dovey Fishman, & William D. Eggers (2015), Smart mobility.
Reducing congestion and fostering faster, greener, and cheaper transportation options, Deloitte Consulting
184
Reference for preliminary ruling by Juzgado Mercantil n 3 de Barcelona (Spain) of 7 August 2015 in case C434/15.
37
highest public attention currently being paid to aviation (drones or unmanned aerial vehicles)
and road transport.
Concerning drones, the technology is already there, fully functional and offering a multitude
of applications. The world market is forecast to more than double to 4 billion per year by
2022 and Europe is expected to represent about 25% of it.185 In terms of jobs, for Europe,
employment is estimated to increase to about 150,000 jobs by 2050 in manufacturing with
additional jobs created in drone operator services.186
With respect to automated cars, similar developments can be observed. Relevant vehicle
technology is largely available or close to market readiness. Progress in achieving required
framework conditions is expected to be more gradual: road infrastructure, legal and ethical
issues, co-existence with conventional cars and appropriate use of interoperable
communication and information technologies are needed. With the expansion of the
automated driving the whole industrial sector will need to evolve and adapt in a fast pace to
stay ahead in global competitiveness while including all stakeholders and addressing societal
needs187. The introduction of cooperative ITS is partially a parallel trend, already close to
deployment, which will also largely foster the transition to automation. Full automation in
certain areas (i.e. highways, ports and bus lanes) could already be operational in the near
future. Various companies and countries are running pilot projects for both passenger cars and
trucks in anticipation of this substantial change.
In comparison with the development of these technologies, the legislative framework appears
to be lagging behind. Issues that are not fully resolved at the moment include security,
liability, privacy protection (especially in case of drones), employment (truck and bus drivers,
pilots etc.) and safety. Moreover, the impact on jobs might turn out to be substantial, but it is
difficult to predict when and to what extent these new technologies could replace drivers and
pilots. Also the approach and management of risk may need to be substantially reconsidered
before autonomous vehicles may fully enter the transport market.
Digitalisation and mobility as a service
Smartphones, apps, big data and internet give access to and enable processing huge amounts
of data to offer better services to customers. Data can be collected through various means:
ticketing systems, sensors attached to vehicles, traffic signals, surveys, social media and
smartphones apps. Mobile broadband can make this data accessible at any place and time and
also brings major opportunities for better passenger services in trains, predictive maintenance,
etc. However, it can also bring some challenges, such as spectrum interferences.
Continuous digitalisation has made it possible to treat mobility as a service a mobility
distribution model in which a customers major transportation needs are met by services
integrating transportation infrastructures, transportation services, information and payment
services, and others more. This approach is possible thanks to the increased use of ICT in
transport, the removal of barriers between different transport modes and their users, as well as
the emergence of new collaborative economy solutions. The focus in this approach is not on a
transport mode, but on mobility, which is seen as a traveller service with physical
185
SWD(2015) 262 final, after TEAL group 2013 Market Profile and Forecast
186
Estimate provided by ASD, the AeroSpace and Defence Industries Association of Europe.
187
transportation products, rather than a transportation product with additional services. There
are several factors necessary to support the growth of mobility as a service: a good public
transport, a mobile broadband roaming policy and strong broadband connections. This
concept has already been developed in Helsinki188 and is considered by other cities.
Further changes in supply chains: globalisation, ICT and 3D printing
Global competitive pressure, availability of effective ICT changing consumer behaviour and
an increasing customisation of products have driven the changes of supply chains in the last
15 years and these trends are expected to continue189. Three main aspects will have an
influence on transport policy, all resulting in changes in freight transport operations (tkm).
Firstly, the need for industry to be competitive on global markets will foster further expansion
of global supply chains, which in turn will result in high share of transportation of
intermediary products as well as in increased number of global supply channels to final
consumers. The reduction in trade barriers and improving connections with third countries
will further fuel this trend.
Secondly, the availability and improvement of ICT will make it easier for companies to
organise global and multimodal transport chains, and for the users/consumers to 'shop'
globally. Industry is currently developing a wide range of different solutions mostly based on
better cooperation and better use of available data (use of physical internet and big data, shift
to synchro-modality190, horizontal collaboration etc.), where ICT has an important role to
play. However, while enabling an increase of efficiency of supplies and transport chains, this
evolution may also lead to increase need for transportation, as consumer behaviour adapts to a
changed market environment.
Thirdly, the development of 3D printing might simplify and reduce the complexity of supply
chains and lead to a decreasing need for transportation. Instead of traditionally manufactured
items that often have dozens or even hundreds of parts that must be produced separately,
delivered to a factory, and then assembled, products could be made on a 3D printer with far
fewer parts. With 3D printing becoming more common, many products, their parts, or input
raw materials can be made locally, reducing or eliminating the need to ship them to market.
The same applies to repair or substitution of products which in many cases already today is
done via a software update, i.e. without any physical transport activity.
In response, freight transport companies will need to follow product market developments and
adjust the range of their activities and services to adapt to the new paradigm. 191 This will have
a clear impact on transport demand and infrastructure needs.
Circular economy
In light of the resource scarcity, price volatility of raw materials and increasing problem of
waste, the circular economy offers an opportunity to reinvent the existing economy, making it
188
See: http://maas.fi/
189
Ecorys et all (2015), Fact-finding studies in support of the development of an EU strategy for freight
transport logistics Lot 1: Analysis of the EU logistics sector.
190
See: Lorant A. Tavasszy, Behzad Behdani and Rob Konings (2015), Intermodality and Synchromodality
191
http://www.strategyand.pwc.com/perspectives/2015-commercial-transportation-trends
39
more sustainable and competitive. It gives the potential to decouple economic growth from
resource constraints and bring benefits to European businesses, industries, and citizens alike.
Transport vehicle manufacturing is a sector where the circular economy model has already
been applied e.g. Renault has been remanufacturing some of its automotive engines for which
it uses 80 percent less energy and almost 90 percent less water192. Infrastructure and transport
waste can also be valuable resources, if properly collected and recycled.
Moreover, circular economy will affect transport and logistics services. Recycling and
restoration of old products/components, while reducing the demand for transport of new
goods or production inputs will require transportation of goods back from users to producers
(reverse logistics193) and expand aftermarket supply chains, which means that demand for
transport might increase. At the same time reverse logistics could contribute to a greater
efficiency of transport operation by increasing load factors (less empty runs).
It is worth noting that the collaborative economy might facilitate development of circular
economy, as transfer of ownership would be limited and manufacturers could own or
influence development of their product (via intermediaries that could rent and maintain
certain products) throughout its life cycle, thus it would be easier to maintain, upgrade and
recycle products when needed.
Increasing role of active modes in the urban transport mix
Walking and cycling are certainly not new phenomena, but their importance in urban mobility
has been gaining prominence in recent years and many observers see high potential for their
further expansion in new fields, e.g. for freight transport via cargo-bikes. The importance of
walking as an inexpensive, emission-free, accessible for all form of mobility has been gaining
recognition and pedestrian zones are being created or extended in various cities across
Europe.
Cycling is more and more considered as a specific mode of transport with a high potential to
address many urban mobility challenges194, also due to recent technological and societal
developments. The incorporation of IT technologies has allowed for improvement and
increased popularity of bike sharing schemes. Such programmes are already available in 800
cities across the world and have become a part of the landscape in many European cities.
Electric power assisted bicycles (or pedelecs) make cycling more attractive to people who live
in hilly areas or who could find it difficult or tiring to ride a bicycle. Further technological
developments increase the range of bicycle as a viable mode of transport and also make it an
attractive mean for last-mile freight transportation. In addition, cycling is more positively
perceived in the society than in the past, and the growing number of cyclists on roads has a
snow-ball effect and encourages more people to use bicycles.
192
http://www.mckinsey.com/insights/manufacturing/remaking_the_industrial_economy
193
http://www.reverselogisticstrends.com/reverse-logistics.php
194
http://www.eu2015lu.eu/en/actualites/communiques/2015/10/07-info-transports-declaration-velo/07-InfoTransport-Declaration-of-Luxembourg-on-Cycling-as-a-climate-friendly-Transport-Mode---2015-10-06.pdf
40
Moreover, there is a growing evidence base on the benefits of walking and cycling in terms of
lower congestion and pollution, as well as health benefits for the users195. Facilitation of
walking is also an indispensable integral part of the efforts to promote public transport196.
Finally, the bicycle sector has a potential to boost jobs and growth and support EU industry
through new technology and services. It is estimated that cycling related manufacturing and
services currently employ around 650,000 people and considering that EU based
manufacturers are leaders in electric bike technologies there is a big potential for growth in
this sector.197 All these factors are convincing many local and national authorities to promote
more active modes through infrastructure adjustments and various systems of incentives (e.g.
kilometric reimbursement for bike use).
Increasing security threats
Recent military conflicts and tensions in different parts of the world have increased the threats
of terrorist attacks in the EU. Means of transport are one of the common targets of these
attacks and will require special prevention and surveillance measures. In this context, the
vulnerabilities of different transport modes will pose further challenges. In addition, of
specific concern in 2015 was the rise in the problem of stowaways in vehicles either by
persons acting on their own initiative, or placed there by people-smugglers. The disruptions
and uncertainty that this creates is negatively affecting both road and rail freight operations in
the EU.
Moreover, the progressing digitalisation, automation and increasing role of software in
transport will amplify cybersecurity threats. Cyber-attacks may lead to delays of services,
damage to physical systems, data theft or even passenger injury/loss. There are also concerns
that remotely controlled aircrafts and self-drive cars may be subject to hacking or hi-jacking
from the distance. Similar concerns arise in the maritime area, because of growing
digitalisation of sea navigation.
There are various initiatives on-going to tackle cyber security issues and the EU established a
dedicated agency the European Union Agency for Network and Information Security for
this purpose. So far, however, a common and coordinated defence against cyber threats
(together with the competent EU bodies, national aviation administrations, national cyber
security agencies, industry, operators, cooperate internationally) is lacking.
195
http://www.ecf.com/press-corner/cycling-facts-and-figures/
196
197
ECF (2014), Cycling works. Jobs and Job Creation in the Cycling Economy
41
Annex II: Schematic table on the state of play of the 2011 White Paper
programme
(1)
Cancelled
On-going
Advanced
Completed
State of play
in the legislative
process
"Technical (Regulation
2016/796, Directive
2016/797 and Directive
2016/798) adopted on
11 May 2016.
Achieve a truly seamless Single European Sky and deploy the future air traffic management
system (SESAR) in the agreed timeframe: FABs implementation is late. Letter of formal
notice has been sent to seven FABs out of nine FABs. A Commission legislative proposal
(SMA II initiative) to accelerate the implementation of SES known as SES2+ presented in
June 2013.
Regulation on SESAR
Deployment framework
(Reg.(EU) No 409/2013);
Revision of slot regulation: part of the airport package. General approach in Council in
October 2012. EP 1st reading in December 2012.
Regulation on allocation
of slots, Council GA
October 2012, first
reading concluded in the
EP in December 2012,
on-hold.
Better quality services: Ground-handling proposal, part of the airport package adopted on
01/12/2011. General approach in Council in March 2013. EP first reading in April 2013.
Proposal withdrawn by the Commission in January 2015
Proposal withdrawn
(2)
(3)
42
Develop an approach on airport capacity, including better integration with the railway
network: communication on airport capacity, part of the airport package, presented in
December 2011. Integration between airports on the core TEN-T network and the railway
network included in the TEN-T covered by the guidelines adopted in December 2013.
Multimodality (including rail/air integration) discussed by the European Observatory on
Airport Capacity and Quality, with recommendations adopted in 2013. In 2015, more reports
and recommendations adopted by the same Observatory on the following: airport capacity
in the EU from a strategic perspective, delays to air transport in Europe; economic impact of
unaccommodated demand and environmental variables influencing airport capacity.
A maritime "blue belt" and market access to ports:
Interoperability of ICT system and Blue Belt: Communication on Blue Belt in July 2013
(Staff Working Document on Blue Belt adopted in May 2012), referring to two legal
measures, one for simplifying the procedure for Regular Shipping Services (RSS); the other
one for facilitating the transport of EU goods between EU ports (Customs Goods Manifest).
The new RSS scheme applies as of March 2014. The Customs Goods Manifest was
introduced in the customs legislation and can be used as of 1 May 2016.
SWD adopted on
24/05/2012
Communication adopted on
08/07/2013
Commission Implementing
Regulation (EU) No
1099/2013 adopted
05/11/2013
Commission Implementing
Regulation (EU) 2015/2447
adopted 24/11/2015
Review restrictions of port services: included in the ports policy review in May 2013.
Restrictions to cargo handling dealt with on an individual country basis through direct treaty
application and infringement procedures.
Transparency of ports financing: included in the ports policy review in May 2013, which
includes a section on financial transparency in ports. Work on-going on possible
modernisation of state aid rules applicable to ports.
Since 2011, the Commission has contributed to increasing transparency on ports financing
through the adoption and publication of 26 Commission decisions that analysed and
approved the provision of investment aid to ports.
A suitable framework for inland navigation:
(4)
(5)
(6)
Regulation on market
access to port services &
financial transparency.
European Parliament
and Council 1st
Reading ongoing
Regulation on market
access to port services &
financial transparency.
European Parliament
and Council 1st Reading
ongoing
Directive on technical
requirements for inland
waterways (NAIADES II)
still to be adopted. EP
1st Reading completed
in April 2014. The
Council agreed on it in
March 2016.
Regulation on reserve
Fund adopted on
15/05/2014
Council Directive
2014/112/EU adopted on
19/12/2014
Road freight:
Review market situation with a view to eliminate restrictions to cabotage: A Report on the
State of the Union Road Transport Market was adopted on 14/04/2014 (COM(2014)222).
An ex-post evaluation of the existing rules on access to the occupation of road transport
operator (Reg. 1071/2009) and on access to the international road haulage market (Reg.
1072/2009) has been launched as part of the 2015 REFIT exercise. A legislative proposal
simplifying and clarifying the rules is planned for adoption in 2017.
Report adopted on
14/04/2014
Tachograph adopted
19/07/2011
Tachograph Directive
adopted on 04/02/2014
(7)
43
Framework for information exchange and transport management along the multimodal
freight transport logistics chain, including single window, electronic waybill: Online public
consultation and stakeholder workshop took place early 2013. Study to assess benefits
and costs finalised May 2013. Relevant FP7 projects finalised in 2014. Relevant
International co-operation on-going. E-transport included in the Digital Single Market
strategy. In order to implement it the Digital Transport and Logistics Forum was launched
on 1-2 July 2015. Work of the Forum might result in recommendations for legislative action
or soft measures.
(9)
(10)
Proposals adopted on
23/03/2012
Establish EU-wide minimum service and quality standards for workers in the whole aviation
chain (including ATM and ground-handling). Encourage the European social partners to
address prevention of conflicts and disturbance of minimum service in the whole aviation
value chain: the issue is discussed in a social dialogue. Declaration on minimum level of
service in ATM to be prepared and agreed by stakeholders by the end of 2016
(11)
An evaluation of the EU approach to jobs and working conditions across
transport modes:
Appraisal of social dialogue: Aspects of social dialogue included in the study on jobs and
working conditions (see below). The study was completed in Spring 2015. Strengthening
social dialogue is a priority for the years to come.
44
No specific legislative
instrument
Study
Study
Training, certification, working conditions and career development: A study on jobs and
working conditions across all modes of transport was completed in Spring 2015. The work
included a modelling-based quantitative analysis of employment and skills issues backed by
a qualitative analysis of potential shortages. A study on employment and working
conditions in air transport and airports was also finalised in October 2015.
Concerning the maritime sector, a study has been launched assessing the feasibility, added
value and available options for setting in motion a network/ networks and/or reinforcing
existing ones between institutions and organizations from EU and non-EU providing
education and training for the needs of marine and maritime professions (including
seafarers, port logistics, ship-building, etc).
1.3. Secure transport
(12)
Cargo security:
Implement action plan on air cargo security: New implementing rules on inbound cargo
adopted in August 2011, laying down detailed measures for the implementation of the
common basic standards on aviation security in respect of air cargo and mail.
Complete and EU-wide one-stop security system for air cargo: the mutual cargo recognition
with US signed in 2012 permits EU-wide one-stop security also for US bound cargo.
(13)
Study
Commission
Implementing Regulation
(EU) No 859/2011
adopted on 25/08/2011
Exchange of letters
between US/TSA
(17/05/2012) and EU/EC
(13/06/2012)
1) An IATA initiative,
"Checkpoint of the Future"
has been finalised
Security of land transport: Expert group LANDSEC established in May 2012 Last meeting LANDSEC 12 held on 11/04/2016
(15)
"End-to-end" security:
Commission Decision
2012/286/TEU (31/05/2012)
Increasing the level of security along the supply chain ("end-to-end" security certificates):
1) Topics considered by the expert group of land transport security (LANDSEC). Action
voided in DG MOVE for the time being.
2) The EU strategy and action plan to improve customs risk management and security of
the supply chains presented in in the Communication in August 2014.
Joint security assessment: These are topics to be considered by the expert group of land
transport security (LANDSEC), but no progress so far. Their views will influence possible
actions.
Integrating the potential effects of terrorist and criminal attacks in mobility continuity plans:
linked to Action (23)
A) Commission
Implementing Regulation
(EU) No 278/2014 of
19/03/2014
B) Commission
Implementing Regulation
(EU) 2015/187 of
06/02/2015
3) Commission
Implementing Regulation
(EU) 2015/1998 of 5
November 2015 and
Commission
Implementing Decision
C(2015) 8005 final of 16
November 2015
45
Roadworthiness package
proposed on 13/07/2012
SWD(2014) 297 final
adopted on 03/10/2014
Commission Delegated
Directive 2014/45/EU;
Directive 2014/46/EU;
Directive 2014/47/EU
adopted on 03/04/2014
Decision 585/2014/EU
Regulation (EU) No
305/2013 adopted on
26/11/2012
adopted on15/05/2014
Regulation (EU)
2015/758 adopted on
29/04/2015
Comprehensive strategy of action on road injuries: the EU strategy on injuries was adopted
in March 2013.
Attention paid to vulnerable users: The above mentioned roadworthiness package also
covers mopeds and motorcycles. Accident causation study for accident involving powered
two-wheelers and cyclists to prepare a report in 2019.
Review of the infrastructure safety management directive launched to better adapt road
infrastructure to vulnerable road users. The cooperative C-ITS platform, established in
November 2014, includes representatives of the motorcyclists industry in order to make
sure that the C-ITS deployment strategy is shaped taking in mind vulnerable road users.
The VRUITS project assessing the specific needs of VRUs in relation to ITS applications
has developed specifications for ITS applications and recommended best practices to
address HMI (Human-Machine Interface) development for VRUs. Field trials for a selected
number of applications have taken place.
(17)
A European strategy for civil aviation safety:
SWD(2013) 94 adopted on
19/03/2013
Regulation (EU) No
376/2014 adopted on
03/04/2014
Adapt regulatory safety framework for the development of new technologies (SESAR):
Ongoing activity in EASA. EASA will become involved in the common projects in order to
ensure parallel development of certification tasks.
Implementation of the EU aviation safety strategy: The Commission proposed revised rules
on EU aircrew fatigue. The proposed revision of the EASA basic regulation aims at
improving the efficiency of the EU aviation safety system and more risk-based approach as
well as extending EU aviation safety rules to drones
Commission Regulation
(EU) No 83/2014 published
on 29/01/2014
Proposal for a revision of
Regulation 216/2008 COM(2015) 613 07/12/2015
Exchange of safety information with ICAO and other international partners: In the context of
the Air Safety List, regular exchanges of relevant safety information take place with ICAO
and with FAA, as well as with Boeing and Airbus. Agreement reached with IATA to also
make use of safety information contained in the safety assessments it conducts on its
member airlines.
Modernising passenger ship safety legislation: REFIT fitness check on EU passenger ship
safety legislation concluded in October 2015. Joint EU proposal to IMO on increasing
damage stability standards adopted in November 2015. Legislative proposals simplifying
Directive 2009/45/EC, 98/41/EC and 1999/35/EC foreseen for June 2016. Further actions
include the development of Small Craft Code and the review of Directive 2003/25/EC,
planned for 2017.
SafeSeaNet: Revision/recast done in steps. 1st step done in 2014. 2nd step linked to the
implementation of the national single windows (by 1 June 2015) in the framework of the
joint 2016 REFIT evaluation of the VTMIS and the Reporting Formalities Directives.
Operational Guidelines on Places of Refuge for the accommodation of ships in need of
assistance were published in November 2015
Feasibility in creation of an EU register and EU flag for maritime and inland waterway
transport: Assessment of Member States registers is ongoing.
46
Ambition of the NL
Presidency to adopt the
proposal before the
Summer as part of the
EBCG package.
(19)
Rail safety:
Enhancing the role of ERA: Proposal on ERA included in 4th railway package, see 1 above.
Commission Regulation
445/2011 adopted on
10/05/2011.
4th railway package adopted 30/01/2013
(20)
"Technical pillar
(Regulation 2016/796,
Directive 2016/797 and
Directive 2016/798)
adopted on 11 May
2016. Provisional
agreement on the
market pillar on 19
April 2016.
"Technical pillar
(Regulation 2016/796,
Directive 2016/797 and
Directive 2016/798)
adopted on 11 May
2016. Provisional
agreement on the
market pillar on 19
April 2016.
"Technical pillar
(Regulation 2016/796,
Directive 2016/797 and
Directive 2016/798)
adopted on 11 May
2016. Provisional
agreement on the
market pillar on 19
April 2016.
Commission Directive
2012/45/EU of 03/12/2012
and Commission Directive
2014/103/EU of 21/11/2014
Commission Implementing
Decision 2012/188/EU of
04/04/2012; 2013/218/EU of
6/05/2013 and 2015/217/EU
of 10/042014.
Passengers' rights:
Common principles in all transport modes: Communication "A European vision for
Passengers: communication on Passenger Rights in all transport modes" adopted in
December 2011.
Improving the quality of transport for the elderly and disabled: Interpretative Guidelines on
the application of Regulation 1107/2006 concerning the rights of disabled persons and
persons with reduced mobility when travelling by air adopted in June 2012.
Passenger rights for multimodal trips and in the event of bankruptcy: Communication on
passenger protection in the event of airline insolvency adopted in March 2013. An IA on the
new legislative proposal is planned.
Improve the level playing field at international level: Guidelines of ICAO adopted. ICAO and
OSJD negotiations ongoing.
Communication
COM/2011/0898 final
adopted on 19/12/2011
SWD(2012) 171 final
adopted on 11/06/2012
(22)
47
Communication COM(2013)
129 final adopted on
18/03/2013
ICAO guidelines adopted at
the 38th ICAO Assembly
(24/9/13 to 4/10/13)
Revision of the
Regulation on
Passengers rights. EP
1st Reading completed
on 6 February 2014. Still
examined by the
Council.
Intelligent systems for interoperable and multimodal scheduling and third party access to
travel-data: ITS Specifications within the ITS Directive for the provision of EU-wide
multimodal travel information services supporting the access and exchange of interoperable
data and services across Europe have been developed together with an expert nominated
by Member States along with a supporting study conducting a cost-benefit analysis. Various
related projects are on-going or planned under Horizon 2020. Delegated act on the
provision of EU-wide multimodal travel is being finalised. A CEF program support action will
be launched end 2016/ beginning 2017.
(23)
Mobility continuity plans:
A technology roadmap:
Clean, safe and silent vehicles: Communication on STTP adopted in 2012, and work on the
first roadmap on 'electrification' of transport was completed in early 2015. Follow-up work
on a Strategic Transport R&I Agenda started in 2015.
A large-scale R&D-initiative for rail under H2020 adopted in April 2014 (Shift2Rail Joint
Undertaking) and formally established in July 2014. Strategic Shift2Rail Master Plan
outlining the key rail R&I priorities until 2030 was endorsed by the Council in February 2015
and followed by first calls for proposals end 2015.
Horizon 2020 Work Programme 2014-15 covered Smart, green and integrated
transport)and Work Programme 2016-17() includes three relevant calls for proposals:
Mobility for Growth, Automated Road Transport and Green Vehicles.
Technologies to improve transport security and safety: ITS Specifications related to eCall
adopted on November 2012 (Priority Action "d" of the ITS Directive). Decision on Public
Safety Answering Points for the deployment of eCall adopted in May 2014. Regulation on
type-approval for deployment of eCall vehicle systems adopted in April 2015. A staff
working document on the deployment of ITS in-vehicle technologies to increase road safety
adopted in October 2014. Horizon 2020 Work Programme 2016-17 includes a specific
section on transport safety.
48
Directive 2014/94/EU
adopted 22/10/2014
Decision 585/2014/EU
adopted on15/05/2014
Regulation (EU)
2015/758 adopted on
29/04/2015
Deployment of smart mobility systems: A progress report and a review of the ITS Action
Plan adopted in October 2014. A Commission implementing decision has been adopted for
a standardisation mandate for Urban ITS. A pre-study identifying urban ITS standard to be
developed is currently on-going. The Horizon 2020 Work Programme 2016-17 includes
specific research topics and Innovation Actions on ITS, ICT infrastructure and smart electric
mobility in cities. CEF has generated a project portfolio of 280 million.
Deployment of an open standard electronic platform for vehicle on-board units: The issue
discussed in the C-ITS platform in order to find a way forward. It is also part of the eCall
Regulation (EU) 2015/758 (that requires the Commission to adopt a legislative initiative no
later than 9 June 2017. External study on access to in-vehicle data launched mid-2016.
Demonstration projects for alternative fuels: The Commission is funding three major
projects aiming to demonstrate the use of electric passenger cars (Green e-motion), light
duty vehicles for freight transport (FREVUE) and busses (ZEUS). The LNG Blue corridor
project will carry out an extensive demonstration of LNG trucks and the corresponding
infrastructure through four European corridors. Alternative fuels and propulsion systems for
urban road transport are also demonstrated within the new generation of CIVITAS
demonstration projects.
Smart mobility partnerships and demonstration projects for sustainable urban transport:
Since 2002, the Commission has supported cities in demonstrating new technologies and
innovative concepts for better and more sustainable urban mobility through its CIVITAS
Initiative. Some 60 cities have tested some 700 measures over the last ten years. Two new
CIVITAS demonstration projects, 2MOVE2 and Dyn@mo, started at the end of 2012, with 8
cities involved. The Horizon 2020 Work Programme 2016-17 also foresees innovation
actions aimed at increasing the take up of innovative solutions for sustainable urban
mobility.
Appropriate standards for CO2 emissions of vehicles: In 2014, the Commission adopted a
strategy on CO2 emissions of HDVs, including establishing a monitoring and reporting
system, with support of the VECTO computer simulation tool. Evaluation work is ongoing in
preparation of a review of the regulations setting emission performance standards for cars
and vans to establish post-2020 targets. The Commission will envisage including CO2
criteria as an incentive for the use of cleaner vehicles in a foreseen revision of the
Eurovignette directive on charging of heavy good vehicles (planned for 2017). In addition to
addressing CO2 emissions, the Commission is considering ways to identify and promote
vehicles with significantly low pollutants emissions, including of NOx.
Vehicle standards for noise emission levels: A regulation to reduce noise produced by cars,
vans, buses and coaches adopted in April 2014 and it should help reduce noise by around
25%.
Revised test cycle to measure emissions: A Real Driving Emission project (RDE) has been
carried out with the objective to develop a new testing procedure to measure selected
regulated pollutants under real world conditions. A Commission Regulation amending
Commission Regulation (EC) No 692/2008 as regards emissions from light passenger and
commercial vehicles (Euro 6) has been adopted. Beginning 2017, the European Unions
emissions type-approval procedure for passenger cars will include a new Real-Driving
Emissions (RDE) test conducted using on-board portable emissions measurement systems
(PEMS).
Public procurement strategies for clean vehicles: Full transposition of Directive 2009/33/EC
on the promotion of clean and energy-efficient road transport vehicles was completed in
November 2013. The first monitoring report on the application of the Directive was
published on 18 April 2013. An external ex-post evaluation was completed in 2015. A
review is scheduled for 2017.
Interoperability of charging infrastructure: Directive 2014/94/EU requires the use of certain
standards (e.g. Type 2 and COMBO 2 for normal and respectively fast charge recharging
49
SWD(2013) 27finalised on
28/02/2013
Communication on HDV
COM(2014)285 adopted
21/05/2014
Regulation (EU)
540/2014 adopted
16/04/2014
CPT proposed on
24/01/2013
Directive 2014/94/EU
adopted 22/10/2014
PE (2015)725;
Standardisation Mandate M/
533: EC implementing
Decision C 2015 (330) CENCENELC Work Programme
Guidelines and standards for refuelling infrastructures: Following the adoption of Directive
2014/94/EU a standardisation mandate was addressed to the European Committee for
Standardisation (CEN/CENELEC) in March 2015.
CPT proposed on
24/01/2013
PE (2015)725
Standardisation Mandate M/
533; EC implementing
Decision C2015 (330) CENCENELC Work Programme
Final report of the C-ITS
platform first phase
published on 23 January
2016
Specifications for smart charging and payment systems: Smart Ticketing Guidelines
adopted by the Urban ITS Expert Group in December 2012. No other action planned.
Directive 2014/94/EU
adopted 22/10/2014
(27)
Travel information:
Commission Decision
C(2013) 5984 final on
setting-up ESSF adopted on
24/09/2013
Commission Implementing
Decision (EU) 2015/253 of
16/02/2015
Commission Delegated
Regulation (EU) 2015/962
adopted on 18/12/2014
Review of the labelling directive: A revision of the 1999 car labelling directive on hold.
Market take-up of fuel-efficient, safe and low-noise tyres: The tyre type-approval
requirements in General Safety Regulation (EC) 661/2009 for lower rolling resistance,
rolling noise and wet grip safety have been implemented since 1 November 2012 for all tyre
segments. This regulation, coupled with mandatory consumer information incorporated in
Regulation (EC) 1222/2009 on tyre labelling, have already lead to 80% of tyres sold on the
European market showing in a transparent manner their safety and performance levels to
consumers.
(29)
Carbon footprint calculators:
Eco-driving requirements: Recast of the driving licence directive to include also eco-driving
requirements for busses and trucks finalised in 2012. For cars the changes were
considered 2014 but for subsidiarity reasons not pursued.
50
Commission Directive
2012/36/EU adopted on
19/11/2012
Limiting the maximum speed of light commercial road vehicles: Study from 2013 on speed
limiters for light commercial vehicles concluded with recommendation for future typeapproval.
2.3. Integrated urban mobility
The 2013 Urban Mobility Package was presented as communication with a series of
accompanying SWD and adopted in December 2013. It focuses on guidelines and support
to cities for sustainable urban mobility planning (SUMPs). An annual conference on SUMPs
was launched in 2014 (third edition took place in Bremen in April 2016).
(31)
Urban mobility plans:
Preparing urban mobility audits and urban mobility plans: A communication on competitive
and resource efficient urban mobility adopted in December 2013 with an annex that that set
out the concept of Sustainable Urban Mobility Plans. The work to develop indicators on
urban performance and a possible European mobility scoreboard based on common targets
is on-going.
Linking EU funds to cities with urban mobility audit certificates: Financial support for urban
transport activities within the framework of cohesion policy has not been linked to a formal
requirement of having SUMPs in place, but . it has been highly recommended. In addition,
ESI-funds PAs and OPs insist on the necessity that urban mobility measures are part of an
integrated, sustainable urban development plan (Article 7 ERDF regulation). Investment into
urban transport under Thematic Objective 7 ('sustainable transport') requirement the
existence of comprehensive transport plans or frameworks, which address public transport
at regional and local level. This is also in line with the CoA report Effectiveness of EUsupported public urban transport projects of 8 April 2014.
European support framework on implementing urban mobility plans: A communication on
competitive and resource efficient urban mobility adopted in December 2013. In 2014, the
Commission launched an EU Platform on Sustainable Urban Mobility Plans, which provides
assistance and a venue for cooperation and exchange of experience for the relevant actors
and stakeholders. (www.mobilityplans.eu).
Smart cities and Communities Innovation Partnership: In its Communication from 2012 the
Commission put forward the concept for a Smart Cities and Communities European
Innovation Partnership.. The Strategic Implementation Plan of the EIP was adopted in
October 2013. An Invitation for Commitments was launched early 2014, which attracted 380
commitments from cities, companies and research organisations to undertake actions.
Currently, most of the 380 commitments are working together in 6 action clusters. This is
supported by a very active EIP 'marketplace' and numerous events.
Validated framework for urban road user charging: SWD on urban vehicle access
regulations accompanied the communication 2013 on urban mobility from December 2013.
Guidelines tackling the most pressing issues like user information and enforcement are
under preparation. A two year study started beginning of 2015 and, with the advice from
local policy makers and stakeholders, should lead to developing six non-binding guidance
documents on urban access regulation by the end 2016/beginning 2017.
(33)
A strategy for near "zero-emission urban logistics" 2030:
Best-practice guidelines for monitoring urban freight flows: Part of the 2013 Urban Mobility
Package. A two year study started beginning of 2015 and, with the advice from local policy
makers and stakeholders, should lead to developing six non-binding guidance documents
on urban freight transport by the end 2016/beginning 2017.
Define a strategy for zero-emission urban logistics: SWD 'A call to action on urban logistics'
accompanied the communication 2013 on urban mobility from December 2013 (see above).
Core network of strategic European infrastructure: Core network concept and maps
included in the Regulation on Union guidelines for the development of the trans-European
transport network adopted by the legislator in December 2013. The Communication on
Core Network Corridors and Connecting Europe Facility was adopted in January 2014.
51
TEN-T Guidelines
Regulation proposal
COM(2011) 650 final/2
on 19/10/2011
Communication on Building
the Transport Core Network
COM(2013) 940 adopted on
7/01/2014
Regulation (EU) No
1315/2013 on TEN-T
Guidelines Regulation
adopted on 11/12/2013
Concentrate EU action on components of TEN-T with highest EU added value (crossborder links, multimodal connections, key bottlenecks): Priorities listed in the Commission
proposal for a Regulation on Union guidelines for the development of the trans-European
transport network .
Energy efficiency needs and climate resilience taken into account in EU-funded transport
infrastructure: A 10% increase in the co-funding rates for projects that contribute to reaching
climate mitigation objectives, enhancing climate resilience or reducing the greenhouse gas
emissions was included in Art. 10 of the Commission proposal for a CEF regulation . This
provision, however, was not retained by the legislators in the adopted regulation. However,
10% of funds for transport from operational programmes is to be allocated to projects in the
field of sustainable transport.
(35)
Multimodal freight corridors for sustainable transport networks:
TEN-T Guidelines
Regulation proposal
COM(2011) 650 final/2
on 19/10/2011
SWD(2014) 48 on ERTMS
presented on 14/02/2014
SESAR Pilot Common
Project (Regulation (EU)
716/2014)
Approval of the SESAR
Deployment Programme
Regulation (EU) No
1315/2013 on TEN-T
Guidelines Regulation
adopted on 11/12/2013
Regulation (EU) No
1316/2013 adopted on
11/12/2013
Multimodal freight corridor structures: The geographical alignment of the Corridors was
achieved and completed with the entry into force of the Connecting Europe Facility
Regulation in December 2013. In March 2014 the Commission appointed new European
Coordinators for each of the Corridors, plus ERTMS and MoS. The first work plans were
prepared by the European Coordinators for their respective corridors and approved by
Member States in May 2015.In parallel, work plans were prepared by the European
Coordinators responsible for the horizontal priorities (ERTMS and Motorways of the Sea).
Multimodal transport and single wagon load: Study on policy options for wagonload
finalised in 2014, two studies on last-mile issues (single European Information Portal;
support program features for last-mile) started in Jan 2015.
(36)
Ex-ante project evaluation criteria:
Regulation (EU) No
1316/2013 adopted on
11/12/2013
Regulation (EU) No
1316/2013 adopted on
11/12/2013
TEN-T Guidelines
Regulation proposal
COM(2011) 650 final/2
on 19/10/2011
CEF regulation proposal
COM 2011(665) on
19/10/2011
Regulation (EU) No
1315/2013 on TEN-T
Guidelines Regulation
adopted on 11/12/2013
Regulation (EU) No
1316/2013 adopted on
11/12/2013
Regulation (EU) No
1316/2013 adopted on
11/12/2013
Ex-ante project evaluation criteria: The consistency of the selection criteria for Cohesion
Fund financed TEN-T projects and CEF financed projects have been ensured by the
Common Provisions Regulation annex (part on transport and TEN-T). The Commission
presented in December 2014 a revised Guide for Cost-Benefit Analysis of Investment
Projects to ensure that support goes to projects that have been carefully prepared and offer
best value for money and clear EU added value.
Streamlining procedures for projects of overriding European interest: simplified procedures
included in TEN-T proposal (see 34). This provision was not retained by the co-legislators in
the adopted Connecting Europe Facility Regulation. A study on the topic on-going.
PPP-screening: PPP included in the Commission proposal on CEF (see 37)
Infrastructure funding framework: CEF Regulation (was adopted in December 2013. For the
2014-2020 period, strong emphasis in the investment priorities is placed on action
"supporting a multimodal Single European Transport Area by investing in the TEN-T" in
both the ERDF regulation and in the Cohesion Fund regulation.
The Investment Plan for Europe announced in 2014, underpinned by the European Fund for
Strategic Investments, will complement the funding framework by catalysing private
investments in the field of transport.
EU support for efficient use of infrastructure and decarbonisation: Cf. point 34.
The revised cohesion policy approach requires a strong result orientation and links access
to EU financing to the fulfilment of ex-ante conditions: for support under Thematic Objective
7 (sustainable transport), Member States are required to put a comprehensive framework
for transport investments is in place, e.g. in the form of a comprehensive transport master
plan.
Link TEN-T funding to progress towards the completion of the TEN-T core network: The
TEN-T guidelines and the Connecting Europe Facility have been adopted. Financing for
transport infrastructure will triple for the period 20142020 to 26.3 billion. This EU funding
will be tightly focused on the core transport network where there is most EU added value.
(38)
Private sector engagement:
52
Enabling framework for the development of PPPs: The CEF Regulation introduced a new
generation of financial instruments aimed to boost the support of private finance and capital
markets in general for sustaining investment in long term transport infrastructures.
Moreover, the regulation foresees that existing financial instruments, such as the Loan
Guarantee Instrument for the TEN-T projects (LGTT) or Project Bonds Instrument (see
below) will be merged with those under the CEF Regulation which aim at attracting private
project sponsors with the public sector involvement and facilitate the implementation of the
complex infrastructure projects.
Encourage Member States to use more PPPs: The Commission supports the procuring
authorities of the Member States to prepare the projects through the PPP procurement
through the calls for proposals under the TEN-T programme. The calls for proposals for the
EU grant encompass preparatory activities of the procuring authorities, such as the financial
and legal feasibility studies, development of the cost benefit, value for money assessments
and public-private comparators, as well as the usage of the innovative financial instruments
such as the risk sharing instruments of LGTT or Project Bonds. These are facilitating
studies, which aim at enhancing the public sector's knowledge about procurement
procedures and PPP implementation.
New financing instruments for the transport sector*, notably EU project bonds: The
Commission has established the pilot phase of the Europe 2020 Project Bonds Initiative,
adopted by the Regulation 670/2012 with the aim to revive and expand capital markets to
finance large European infrastructure projects in the fields of transport, energy and
information technology.
The new "European Fund for Strategic Investments" (EFSI) which is intended to support an
ambitious investment plan in the EU for a global amount of 315 billion investment by
means of new financing instruments is also to be used to develop transport infrastructure.
3.3. Getting prices right and avoiding distortions
(39)
Revise motor fuel taxation: Proposal for Energy Taxation Directive in 2011. The proposal
was withdrawn due to the lack of consensus in the Council
Mandatory infrastructure charge for heavy-duty vehicles: Proposal for a directive on fair and
efficient road pricing postponed without date. New proposal to revise Eurovignette is under
preparation. Mandatory charging for HGV's could be considered in the options to be
analysed as part of the impact assessment (to be confirmed)
Compatibility of car road charging schemes with the EU Treaties: Measures protecting the
rights of occasional users (limits on the pro rata price of short term vignettes vs. long term
vignettes, and requirements on transparency in setting and changing tolls) will be
considered in the impact assessment on the revision of the Eurovignette
Internalisation of external costs: Inventory of internalisation measures published in July
2013. The 2011 revision of the Eurovignette Directive introduced optional internalisation of
noise and air pollution costs and variation of charges to tackle congestion. The on-going
revision of Eurovignette directive that could further promote the internalisation of local
external costs in road transport.
Airport congestion was mentioned in the proposal on airport slots (December 2011).
Regulation on noise-related operating restrictions at airports was adopted in April 2014.
Regulation on Monitoring Reporting and Verification mechanism for CO2 emissions from
maritime transport adopted in April 2015.
Rail: Implementing Regulation on Noise Differentiated Track Access Charges was adopted
in March 2015 and following an IA a SWD on Rail freight noise reduction was published in
December 2015. The evaluation of the Environmental Noise Directive is on-going.
CEF Delegation
Agreement with EIB on
17 July 2015
Regulation 670/2012
adopted 11/07/2012
Regulation (EU)
2015/1017 adopted on
25/06/2015
Ex-ante assessment
completed and presented to
the CEF Committee in July
2014. Terms and conditions
of the Delegation Agreement
discussed with the EIB
Framework for earmarking revenues from transport: The proposal on fair and efficient road
pricing currently on hold. A Communication on the application of national road infrastructure
charges levied on light private vehicles adopted in May 2012. More detailed provisions will
be considered in the IA on the revision of the 'Eurovignette' Directive (on-going).
Guidelines on public funding to different transport modes: The new Aviation Guidelines
were adopted on 20 February 2014 and entered into force on 4 April 2014.
This action is also covered by the Communication from the Commission on interpretative
guidelines concerning Regulation (EC) No 1370/2007 on public passenger transport
services by rail and by road, adopted in March 2014 and the Communication from the
Commission on the interpretation of Council Regulation (EEC) No 3577/92 applying the
principle of freedom to provide services to maritime transport within Member States
(maritime cabotage), adopted in April 2014.
The Commission also intends to amend and extend Commission Regulation (EU) No
651/2014 declaring certain categories of aid compatible with the internal market in
application of Articles 107 and 108 of the Treaty ("the General Block Exemption
Regulation") to include investment aid in ports and airports. The adoption is planned by the
end of 2016.
53
Proposal adopted in
13/04/2011, withdrawn in
March 2015
Communication adopted on
03/07/2013
Proposal for a regulation
COM/2011/0828 final on
1/12/2011
Commission Implementing
Regulation (EU) 2015/429
setting out the modalities to
be followed on the
application of the charging
for the cost of noise effects
SWD(2015) 300 published
on 22/12/2015
Proposal for a regulation
COM(2013) 480 final on
28/06/2013
COM(2012)199 adopted on
14/05/2012
Full and mandatory internalisation of external costs for road and rail; internalisation of local
pollution and noise in ports and airports; internalisation of local pollution at sea:
consideration of internalisation for inland waterways. Regarding road it is still an unlikely
option. Regarding internalisation of external costs for airports, this is something that could
be discussed by the Thessaloniki Forum of Airport Charges Regulators from 2016 - too
early for legislative initiative.
Regarding rail, see bullet on "Internalisation of external costs" above
4. The external dimension
(40)
54
Communication COM(2012)
556 final adopted on
27/09/2012
COM(2014) 527 adopted
21/08/2014
Communication COM(2012)
556 final adopted on
27/09/2012
Communication COM (2015)
598 final adopted on
07/12/2015
Adoption of EU Maritime
Security Strategy in
2014
early 2011 and is financially supported by the Commission. As far as the Western Balkans
are concerned the Commission continues co-operation in the context of the South East
European Transport Observatory (SEETO). The Commission also follows closely acquis
approximation in these countries on a bilateral basis through the Stabilisation and
Association Process and expects that the future implementation of the Transport
Community Treaty with Western Balkans will further strengthen the cooperation with the
region. Furthermore, the maps of the Western Balkans and Turkey were adopted together
with the revision of the TEN-T. Regarding Turkey, a high level dialogue was set up in 2013
and two high level technical meetings covering a large number of transport issues took
place in 2014. Finally in 2013, a Euromed ministerial conference took place. In the
framework of the Regional Transport Action Plan (RTAP) for the Mediterranean region, the
first high-level conference on the financing of the future Trans-Mediterranean transport
Network (TMN-T) took place in December 2014.
Cooperation with Mediterranean partners for a maritime strategy: MEDAMoS project to
extend EU maritime transport policy to Mediterranean neighbours is concluded. However,
work is still ongoing to develop a mutually agreed indicative map of the TransMediterranean Transport Network (TMN-T) as an extension to the TEN-T. Work will be
taken forward through the working groups of the Euromed transport forum and relevant
stakeholders. SAFEMED 3 projects now implemented by EMSA. Co-operation within the
Union for the Mediterranean was further boosted with a Union for the Mediterranean
Ministerial meeting on Blue economy held in autumn 2015.
EU Strategy for the Adriatic and Ionian Region was presented in June 2014 and
incorporated into the Macro-Regional Strategy.
Removal of exemptions for liner shipping conferences: Following the abolition of the EU
block exemption for container shipping cartels ("conferences") in 2008, the sector is now
fully subject to the EU antitrust rules. DG COMP conducted unannounced inspections in
May 2011 at 12 global container shipping companies (both EU and non-EU) to check
compliance (ongoing investigation). The EU approach to abolish conferences has been
supported and promoted during bilateral and multilateral maritime transport dialogue
meetings with third countries (US, China, Japan, Korea, Canada etc.).
Since 2011, DG COMP has continued advocacy with international counterparts as
appropriate.
Research and innovation partnerships: SESAR and NextGen (US) cooperation has been
progressing and bringing results, for example many of the green procedures tested under
the collaboration project Atlantic Interoperability Initiative to Reduce Emissions (AIRE) have
been implemented into day-to-day operations.
55