Text · Opinion parliamentary committee draft
On the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2019/1242 as regards strengthening the CO₂ emission performance standards for new heavy-duty vehicles and integrating reporting obligations, and repealing Regulation (EU) 2018/956
Full title
On the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2019/1242 as regards strengthening the CO₂ emission performance standards for new heavy-duty vehicles and integrating reporting obligations, and repealing Regulation (EU) 2018/956
Document TRAN-PA-748959 · COM(2023)0088 – C90025/2023 – 2023/0042(COD)
- Kind
- Opinion parliamentary committee draft TRAN-PA-748959
- Date
- 11 May 2023
- Committee
- Committee on Transport and Tourism
- Rapporteur
- Andris Ameriks
- Dossier
- 2023-0042
More facts (2)
- Formats
- Official page PDF Word
- Reference
- COM(2023)0088 – C90025/2023 – 2023/0042(COD)
In short
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This is the Committee on Transport and Tourism's draft opinion on the Commission proposal to strengthen CO₂ emission performance standards for new heavy-duty vehicles. It calls on the environment committee to take its amendments into account. The rapporteur supports the reform, including bringing urban buses into the regulation, and asks for a shorter timeline for the Commission to adopt delegated acts on bus exclusions. The draft opinion asks that revenue from excess emission premiums and administrative fines be assigned to a specific budget line 'automotive sector support' of the Social Climate Fund. It proposes tightening the zero-emission vehicle definition to 1 g/(t∙km) or 1 g/(p∙km), and moving the Commission's review of the regulation from 2028 to 2027.
Position. The Committee on Transport and Tourism calls on the Committee on the Environment, Public Health and Food Safety to take its amendments into account. The rapporteur supports the reform, including urban buses, and proposes changes on the zero-emission definition, the review date and the use of premium revenue.
Key points
- The rapporteur says transport greenhouse gas emissions are still rising in the EU and account for a quarter of total emissions, with road transport over 70% and heavy-duty vehicles over 27%.
- The rapporteur states the reform can lower the total cost of ownership of zero-emission vehicles and channel investment into zero-emission technologies.
- The rapporteur welcomes including urban buses in the amending regulation and asks the Commission to shorten the timeline for adopting delegated acts on excluding a limited share of buses.
- The rapporteur asks that the transition consider social and economic impacts, affordability and accessibility of transport, connectivity of rural, peri-urban and urban areas, and avoid transport poverty.
- The rapporteur asks that measures for workers in the automotive sector be provided in Just Transition plans and Social Climate plans, and that income from excess emissions premiums and administrative fines go to the Social Climate Fund.
- The rapporteur seeks a 90% reduction in transport greenhouse gas emissions by 2050 compared with 1990, as stated in the European Green Deal.
- Amendment 1 adds Russia's invasion of Ukraine to Recital 1; Amendment 2 adds people living in peripheral areas to the groups affected differently by the transition.
- New recitals say the Commission should consider charging and refuelling infrastructure in its review, that efficiency gains have been outpaced by freight demand, and that decarbonisation investment should not worsen transport poverty.
- New recitals say member states' progress on alternative fuel infrastructure matters for the urban bus target, and that affordability, driving range, charging times and loading capacity could slow the shift to zero emissions.
- New recitals call for key enabling conditions, attention to social impacts and employment, and particular attention to micro, small and medium-sized enterprises and affected regions.
- Amendment 12 lowers the zero-emission threshold to 1 g/(t∙km) or 1 g/(p∙km); Amendment 13 defines zero-emission vehicles as having no combustion engine or one emitting not more than 5 g/kWh or 5 g/km of CO₂.
- Amendment 16 moves the Commission's review to 2027 and requires it to report on registrations, charging and refuelling infrastructure, CO₂-differentiated road charges, allowance prices and other support measures, and to consider reviewing CO₂ targets and waiving premiums.
Who is affected
- Heavy-duty vehicle manufacturers, who must meet the CO₂ standards and the zero-emission vehicle definition.
- Transport operators and users, mostly SMEs, who would benefit from more affordable zero-emission vehicles.
- Workers in the automotive sector, for whom Just Transition and Social Climate plans should provide measures.
- People on lower incomes, users with special needs and those in peripheral areas, who face inequalities in access to transport.
- Micro, small and medium-sized enterprises along the automotive supply chain and affected regions and communities.
Figures and deadlines
- Transport accounts for a quarter of total EU greenhouse gas emissions.
- Road transport represents more than 70% of transport emissions.
- Heavy-duty vehicles account for more than 27% of road transport emissions.
- The rapporteur seeks a 90% reduction in transport greenhouse gas emissions by 2050, with respect to 1990.
- Amendment 12 sets the zero-emission threshold at 1 g/(t∙km) or 1 g/(p∙km) of CO₂.
- Amendment 13 sets a limit of 5 g/kWh or 5 g/km of CO₂ for vehicles with a combustion engine.
- Amendment 16 moves the Commission's review from 2028 to 2027.
- Amendment 17 requires the Commission to adopt delegated acts on Article 3b(2) not later than 18 months after entry into force.
Text
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Jump to an amendment (18)
Short justification
Despite EU climate and energy policies are leading to a significant reduction in greenhouse gas emissions in all sectors, transport greenhouse gas emissions are still increasing in the EU, accounting for a quarter of the total of the European GHG emissions. Within this framework, road transport represents the most relevant figure (more than 70%), with heavy-duty vehicles accounting for more than 27%. A key factor behind this figure has been the growth in freight demand and activity from 2000, which is still expected to increase in the future.
Given the above, the amendment of the existing binding CO2 emission reduction targets for heavy-duty vehicles will be functional for the achievement of the goals of the green transition also in light of the current geopolitical context: as highlighted in the REPowerEU plan, Russian invasion of Ukraine has indeed made the case to reduce EU dependency on fossil fuel stronger than the past.
Secondly, the reform has the potential to bring transport operators and users benefits. A wider deployment of more energy-efficient vehicles, achieved by triggering manufacturers to increase their supply of zero-emission vehicles, will lead to more affordable zero-emission vehicle models, with an overall decrease of the total cost of ownership of such vehicles.
Thirdly, the reform could play a role in strengthening the EU’s industrial technological and innovation leadership, in particular in the ongoing global transition towards zero-emission mobility, channelling investments into zero-emission technologies.
A valuable point of the proposal is the inclusion of urban buses into the amending Regulation. The CO2 emission reduction in urban areas will bring several positive aspects, improving air quality of cities as well as individual health of European people. In light of this, and with regard to the possibility of exclusion of a limited share of buses set in art. 3b (2) of the Proposal, the Rapporteur underlined the importance of shortening the timeline for the Commission for adopting delegated acts on this particular matter in order to provide certitudes to the economic operators.
On the other hand, the transition from fossil-fuelled vehicles to zero-emission vehicles needs to take into account the social and the economic impacts that can cause, in order to ensure that no one is left behind in the transition towards the goal of a climate-neutral Europe. Inequalities in access to transport networks affect the daily life of millions of people, especially on lower incomes, users from groups with special needs and from peripheral areas. Closely related to this is the issue of connectivity between rural, peri-urban, and urban areas, especially in case of geographic specificities, as in the case of islands, outermost regions and territories, rural or remote areas, less accessible peripheries, mountainous areas. Thus, the path to decarbonisation of transport needs to consider proper measures in order to ensure the affordability and accessibility of transport, to avoid transport poverty and to ensure equal access to urban centres.
Furthermore, the Rapporteur underlines that social impacts of the transition with regard also to automotive sector must be seriously taken into account, allowing the process of phasing out fossil fuel-powered vehicles to go hand in hand with measures for workers in this specific sector. These measures should be provided for in the Just Transition plans and the Social Climate plans. Therefore, the Rapporteur proposes the income from excess emissions premiums and administrative fines to be considered as revenue assigned to the recently adopted Social Climate Fund with a view to contributing to a socially fair transition towards climate neutrality.
With this opinion, the Rapporteur seeks to ensure that the future heavy duty vehicle fleet will play his part in leading to a 90% reduction in GHG emissions from transport by 2050, with respect to 1990, as stated in the European Green Deal while providing benefits for European transport operators and users, most of which are SMEs, resulting from a wider deployment of more energy-efficient vehicles.
The Committee on Transport and Tourism calls on the Committee on the Environment, Public Health and Food Safety, as the committee responsible, to take the following into account:
| Text proposed by the Commission | Amendment |
|---|---|
| (1) Tackling climate and environmental-related challenges and reaching the objectives of the Paris Agreement, adopted in December 2015 under the United Nations Framework Convention on Climate Change (UNFCCC), are at the core of the Communication on the “European Green Deal”, adopted by the Commission on 11 December 201910 . The necessity and value of the European Green Deal have only grown in light of the very severe effects of the COVID-19 pandemic on the health and economic well-being of the Union’s citizens. | (1) Tackling climate and environmental-related challenges and reaching the objectives of the Paris Agreement, adopted in December 2015 under the United Nations Framework Convention on Climate Change (UNFCCC), are at the core of the Communication on the “European Green Deal”, adopted by the Commission on 11 December 201910 . The necessity and value of the European Green Deal have only grown in light of the very severe effects of the COVID-19 pandemic on the health and economic well-being of the Union’s citizens and the Russia's invasion of Ukraine. |
| 10 Commission Communication of 11 December 2019 on the European Green Deal, COM(2019) 640 final. | 10 Commission Communication of 11 December 2019 on the European Green Deal, COM(2019) 640 final. |
| Text proposed by the Commission | Amendment |
|---|---|
| (2) The European Green Deal combines a comprehensive set of mutually reinforcing measures and initiatives aimed at achieving climate neutrality in the Union by 2050, and sets out a new growth strategy that aims to transform the Union into a fair and prosperous society with a modern, resource-efficient and competitive economy, where economic growth is decoupled from resource use. It also aims to protect, conserve and enhance the Union's natural capital, and protect the health and well-being of citizens from environment-related risks and impacts. At the same time, this transition affects women and men differently and has a particular impact on some disadvantaged groups, such as older people, persons with disabilities and persons with a minority racial or ethnic background. It must therefore be ensured that the transition is just and inclusive, leaving no one behind. | (2) The European Green Deal combines a comprehensive set of mutually reinforcing measures and initiatives aimed at achieving climate neutrality in the Union by 2050, and sets out a new growth strategy that aims to transform the Union into a fair and prosperous society with a modern, resource-efficient and competitive economy, where economic growth is decoupled from resource use. It also aims to protect, conserve and enhance the Union's natural capital, and protect the health and well-being of citizens from environment-related risks and impacts. At the same time, this transition affects women and men differently and has a particular impact on some disadvantaged groups, such as people living in peripheral areas, older people, persons with disabilities and persons with a minority racial or ethnic background. It must therefore be ensured that the transition is just and inclusive, leaving no one behind. |
| Text proposed by the Commission | Amendment |
|---|---|
| (5a) The New EU Urban Mobility Framework communication4a underlines that public authorities should ensure the availability of efficient, interoperable and user-friendly recharging and alternative fuels refuelling infrastructure. The availability of such infrastructure is key in order to achieve the objective of decarbonisation of urban mobility. The Commission should, in the review of the effectiveness and impact of this Regulation, take into account also the deployment of charging and refuelling infrastructures suitable for heavy-duty vehicles in Member States. | |
| 41a Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions, The New EU Urban Mobility Framework, COM(2021) 811 final of 14.12.2021 |
| Text proposed by the Commission | Amendment |
|---|---|
| (5a) The European Environment Agency analysis of 2022, shows that the efficiency gains that have been achieved in vehicles and transport operations in terms of emissions have been outpaced by the growing demand for freight transport, ultimately leading to continued growth in emissions. |
| Text proposed by the Commission | Amendment |
|---|---|
| (5a) The investments for the decarbonisation of the passenger means of transports should not have a negative impact to the access to mobility with the risk to increase the problems of transport poverty. |
| Text proposed by the Commission | Amendment |
|---|---|
| (13a) The Member States progress on alternative fuel infrastructures has a particular relevance in the achievement of the target set for this Regulation for urban buses. |
| Text proposed by the Commission | Amendment |
|---|---|
| (14a) Differently from passenger car sector, commercial vehicles are essential and flexible tools for moving goods and people and remain vital for the European economy. Affordability for customer, reduced driving ranges, long charging times and reduced loading capacity are elements that could prevent the rapid shift towards zero emission technologies. |
| Text proposed by the Commission | Amendment |
|---|---|
| (14b) A full set of key enabling conditions need to be developed to sustain a rapid shift towards zero emissions. Providing customers with the right level of resources to close the price gap with conventional vehicles and the availability of a sufficiently dense and heavy-duty suitable charging and refuelling infrastructure are essential enablers. |
| Text proposed by the Commission | Amendment |
|---|---|
| (14c) The green transitions should also address the importance of the social dimension to ensure that new technologies will not affect affordability and accessibility to all. When adopting new CO2 standards for heavy-duty vehicles it is important to take into account the significant economic and social consequences of the green transitions and the need to safeguard employment and preserve the competitiveness of Union industry. |
| Text proposed by the Commission | Amendment |
|---|---|
| (14d) Particular attention should be given to the impact that this transition will have on micro, small and medium-sized enterprises (SMEs) along the automotive supply chain and to affected regions and communities which might be more vulnerable due to the presence of an intensive automotive industry. |
| Text proposed by the Commission | Amendment |
|---|---|
| (18) The possibility of assigning the revenue from the excess emission premiums to a specific fund or relevant programme has been evaluated as required pursuant to Article 15(4) of Regulation (EU) 2019/1242, with the conclusion that this would significantly increase the administrative burden, while not directly benefit the automotive sector in its transition. Revenue from the excess emission premiums should therefore continue to be considered as revenue for the general budget of the Union in accordance with Article 8(4) of Regulation (EU) 2019/1242. | (18) Revenue from the excess emission premiums should be considered as revenue assigned to a specific budgetary line ‘automotive sector support’ of the Social Climate Fund, with the objective to ensure a just transition towards a climate-neutral economy, in particular to mitigate any negative employment impact of the transition in the automotive sector in all affected Member States, in particular in the regions and the communities most affected by the transition. |
| Text proposed by the Commission | Amendment |
|---|---|
| (a) a heavy-duty motor vehicle with not more than 5 g/(t∙km) or 5 g/(p∙km) of CO2 emissions as determined in accordance with Article 9 of Regulation (EU) 2017/2400; | (a) a heavy-duty motor vehicle with not more than 1 g/(t∙km) or 1 g/(p∙km) of CO2 emissions as determined in accordance with Article 9 of Regulation (EU) 2017/2400; |
The proposed limit of 5 g/(t∙km) would allow hydrogen dual-fuel engines running partially on diesel to qualify as zero-emission. Only hydrogen engines with a limited usage of diesel as pilot fuel to ignite the fuel-air mix should be part of the zero-emission category. As far as the proposed limit of 5 gr per passenger per kilometer is concerned, certain urban bus with a large passenger capacity could be include in the ZEV categories while emitting a relevant quantity of CO2 for this reason the limit has been reduced to 1 gr.
| Text proposed by the Commission | Amendment |
|---|---|
| (b) a heavy-duty motor vehicle fulfilling the conditions of point 1.1.4 of Annex I to this Regulation if no CO2 emissions have been determined according to Regulation (EU) 2017/2400; | (b) a heavy-duty motor vehicle without a combustion engine or with a combustion engine emitting not more than 5 g/kWh of CO2 as determined in accordance with Regulation (EC) No 595/2009 and its implementing measures or emitting not more than 5 g/km of CO2 as determined in accordance with Regulation (EC) No 715/2007 of the European Parliament and of the Council and its implementing measures, if no CO2 emissions have been determined according to Regulation (EU) 2017/2400; |
| Present text | Amendment |
|---|---|
| (ca) paragraph 4 is amended as follows: | |
| 4. The excess CO2 emissions premiums shall be considered as revenue for the general budget of the European Union. | "4. The excess CO2 emissions premiums shall be assigned to a specific budgetary line ‘automotive sector support’ of the Social Climate Fund." |
| Text proposed by the Commission | Amendment |
|---|---|
| 4. The amounts of the administrative fines shall be considered as revenue for the general budget of the Union. | 4. The amounts of the administrative fines shall be considered as revenue for the specific budgetary line ‘automotive sector support’ of the Social Climate Fund. |
| Text proposed by the Commission | Amendment |
|---|---|
| The Commission shall, in 2028, review the effectiveness and impact of this Regulation and submit a report to the European Parliament and to the Council with the result of the review. | The Commission shall, in 2027, review the effectiveness and impact of this Regulation and submit a report to the European Parliament and to the Council with the result of the review' |
| The Commission shall report to the European Parliament and to the Council on the state of the enabling conditions for the market adoption of zero-emission heavy-duty vehicles in the Union. In this report, the Commission shall assess in particular, but not limited to, the following elements: | |
| (a) registrations of zero-emission heavy-duty vehicles in Member States, | |
| (b) the deployment of charging and refuelling infrastructure suitable for heavy-duty vehicles in Member States [REFERENCE TO XXX AFIR], | |
| (c) the implementation of road user charges differentiated by CO2 emissions in Member States [REFERENCE TO XXX Eurovignette] | |
| (d) the level of the average price of allowances under the new the emissions trading system covering road transport [REFERENCE TO XXX ETS2] | |
| (e) other measures that support the uptake of zero-emission heavy-duty vehicles. | |
| Based on the results of the above assessment and on the evidence of lack of any of the above conditions, the Commission should consider to make a proposal to review the CO2 targets and waive the excess CO2 emissions premiums as set by the Art. 8 of this Regulation. |
A comprehensive review only in 2028, is too close to the change of EU legislature in 2029. The market adoption of zero-emission heavy-duty vehicles depends on enabling conditions that allow road hauliers to operate the vehicles seamlessly and more profitably than conventional diesel trucks. The availability of charging and refuelling infrastructure, effective carbon pricing measures and road user charges differentiated by CO2 emissions are crucial enabling conditions that are outside of the direct control of vehicle manufacturers.
| Text proposed by the Commission | Amendment |
|---|---|
| The power to adopt delegated acts referred to in Article 3b, Article 11(2), Article 13(4) second subparagraph, Article 13c(3), Article 13d(2), Article 13e(4), Article 13f(2) and Article 14(1) shall be conferred on the Commission for a period of five years from [OP, please insert the date of entry into force of this Regulation].; | The power to adopt delegated acts referred to in Article 3b, Article 11(2), Article 13(4) second subparagraph, Article 13c(3), Article 13d(2), Article 13e(4), Article 13f(2) and Article 14(1) shall be conferred on the Commission for a period of five years from [OP, please insert the date of entry into force of this Regulation]. |
| The Commission shall adopt delegates acts referred to in Article 3b(2) not later than 18 months after the entry into force of this Regulation. |
Annex I – point 2 – point 2.3 – point 2.3.2 – paragraph 3 – subparagraph 2 – subparagraph 2 – subparagraph 3
| Text proposed by the Commission | Amendment |
|---|---|
| Vout is the total number of newly registered zero-emission heavy-duty vehicles, which are not in the sub-groups referred to by the definition of Vin , and with a maximum of 0,035 of Vtotal; | Vout is the total number of newly registered zero-emission heavy-duty vehicles in category N, which are not in the sub-groups referred to by the definition of Vin , and with a maximum of 0,035 of Vtotal; |
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- Licensed CC BY 4.0.
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Cite as
European Parliament (2023). “DRAFT OPINION on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2019/1242 as regards strengthening the CO₂ emission performance standards for new heavy-duty vehicles and integrating reporting obligations, and repealing Regulation (EU) 2018/956”. Text, 11 May 2023. docId TRAN-PA-748959. EU Parl Watch Research. https://news.eu-parl.st-solutions.dev/texts/TRAN-PA-748959 (retrieved 27 September 2026). Data: EP Open Data API: document record, https://data.europarl.europa.eu/api/v2/documents/TRAN-PA-748959 (CC BY 4.0).
BibTeX
@misc{epw-text-tran-pa-748959,
author = {{European Parliament}},
title = {{DRAFT OPINION on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2019/1242 as regards strengthening the CO₂ emission performance standards for new heavy-duty vehicles and integrating reporting obligations, and repealing Regulation (EU) 2018/956}},
year = {2023},
date = {2023-05-11},
howpublished = {\url{https://news.eu-parl.st-solutions.dev/texts/TRAN-PA-748959}},
url = {https://news.eu-parl.st-solutions.dev/texts/TRAN-PA-748959},
urldate = {2026-09-27},
publisher = {EU Parl Watch Research},
note = {Text. docId TRAN-PA-748959. Data: EP Open Data API: document record (CC BY 4.0)}
}