Changes from report parliamentary committee draft to plenary report

DRAFT EUROPEAN PARLIAMENT LEGISLATIVE RESOLUTION

on the amended proposal for a directive of the European Parliament and of the Council amending Directive 1999/62/EC, Council Directive 1999/37/EC and Directive (EU) 2019/520 as regards the CO2 emission class of heavy-duty vehicles with trailers and clarifying and simplifying certain provisions

Changed(COM(2025)0589 – C10-0235/2025 – COM(2023)0189 – C9-0164/2023 – 2023/0134(COD))

▸7 unchanged paragraphs

(Ordinary legislative procedure: first reading)

The European Parliament,

– having regard to the Commission proposal to Parliament and the Council (COM(2023)0189) and the amended proposal (COM(2025)0589),

– having regard to Article 294(2) and Article 91(1) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C10-0235/2025),

– having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

– having regard to the reasoned opinion submitted, within the framework of Protocol No 2 on the application of the principles of subsidiarity and proportionality, by the Spanish Parliament, asserting that the draft legislative act does not comply with the principle of subsidiarity,

– having regard to the opinions of the European Economic and Social Committee of 20 September 2023 and of 3 December 2025,

Change 1

Added– after consulting the Committee of the Regions,

– having regard to Rule 60 of its Rules of Procedure,

Changed– having regard to the report of the Committee on Transport and Tourism (A100000/2026),(A10-0131/2026),

1. Adopts its position at first reading hereinafter set out;

2. Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;

3. Instructs its President to forward its position to the Council, the Commission and the national parliaments.

Change 2

RemovedTitle 1: amending Directive 1999/62/EC to clarify and simplify certain provisions

AddedRecital 17: (17) This Directive should clarify how to allocate retrofitted zero-emission vehicles to CO2 emission classes. In the absence of harmonised Union methodologies for determining the CO2 emissions of retrofitted vehicles, such vehicles should be classified in a manner that avoids market distortions. However, once such methodologies are established, retrofitted vehicles should be allocated to CO2 emission classes on the basis of their verified emissions performance, in a technologically-neutral manner, including where relevant as dual-propulsion or low-emission vehicles. Regulation (EU) 2019/1242 sets targets for manufacturers to reduce the CO2 emissions of new heavy-duty vehicles. Under that regulation, manufacturers particularly benefit from placing zero-emission vehicles on the market. Directive 1999/62/EC incentivises demand for those vehicles by granting reduced charges in accordance with CO2 emission class 5. An existing drawback of zero-emission vehicles is that they have a lower operational range than conventional vehicles. To increase the vehicle’s operational range, it is possible to retrofit zero-emission vehicles by replacing a battery pack with a fuel generator in order to increase the vehicle’s operational range. Such retrofitted vehicles thus become hybrid vehicles. Under Directive 1999/62/EC, vehicles are classified into CO2 emission classes according to the vehicle documentation that is produced by manufacturers before the vehicle’s first registration. This means…

RemovedRecital 1: deleted / (deleted)

AddedRecital 17 a (new): (17a) The deployment of electrified auxiliary technologies for light and heavy-duty vehicles, including electrified transport refrigeration units, can significantly contribute to the decarbonisation of the road transport sector, achieving emission reductions of up to 15 % compared to vehicles of the same category equipped with fossil fuel-based refrigeration systems. Such technologies could therefore play an important role in reducing greenhouse gas emissions from road freight transport. Member States should be able to ensure that this potential is appropriately taken into account, in particular by providing for proportionate reductions in tolls or user charges for vehicles equipped with electrified transport refrigeration units. Such economic relief would ensure the competitiveness of the sector, while supporting operators who commit to decarbonise.

RemovedRecital 2: deleted

AddedRecital 18: (18) This Directive should clarify how to allocate dual-fuel vehicles to CO2 emission classes. Article 24(2), point (g), of Commission Regulation (EU) 2017/2400, obliges manufacturers to issue a customer information file for dual-fuel vehicles starting from 1 January 2024. However, certain dual-fuel vehicles were registered before that date without a customer information file. Vehicles that were first registered before that date cannot access more favourable toll rates and may suffer from a competitive disadvantage to similar vehicles that were registered at a later time. It is possible for manufacturers to determine the CO2 emissions of a vehicle that has already been registered by performing a new simulation that takes into account the latest requirements of Regulation (EU) 2017/2400. Member States should accept the result of those simulations as a proof of the vehicle’s CO2 emissions. The Commission should prevent the use of illegitimate simulation results by overseeing manufacturers’ use of this option. A manufacturer that decides to use this option should therefore notify it to the Commission. Member States should only accept this document if it is received directly from a manufacturer, if the document is in digital format, as this is less vulnerable to fraud, and if a positive Commission Decision has been addressed to that manufacturer. The classification of such vehicles should be based on their verified CO2 emissions performance and should respect the principle of tec…

RemovedRecital 3: deleted / (deleted)

AddedRecital 18 a (new): (18a) Pursuant to Directive (EU) 2025/2205 of the European Parliament and of the Council1a, alternativelyfuelled vehicles of category M1 referred to in Article 4(1) point (a) of Regulation (EU) 2018/858 of the European Parliament and the Council1b with a maximum mass of up to 4,25 tonnes can be driven with a category B licence. However, pursuant to Directive 1999/62/EC, as amended by Directive (EU) 2022/362, passenger cars are defined only as vehicles with a technically permissible maximum laden mass of up to 3,5 tonnes, with any vehicles exceeding that threshold being, by default, classified under other categories associated with heavy-duty vehicles. This regulatory misalignment creates a legal and practical inconsistency, whereby a vehicle recognised as a passenger car for driving licence purposes may be considered a light commercial vehicle or even a heavy-duty vehicle under the charging framework of Directive 1999/62/CE. As a result, such passenger cars exceeding 3,5 tonnes would be subject to toll levels and road user charges not intended for passenger vehicles, thereby contradicting the objectives of Directive 1999/62/CE. It is therefore essential to ensure alignment between these Directives in order to guarantee legal certainty, consistency in classification, and the proper application of the charging framework. / 1a Directive (EU) 2025/2205 of the European Parliament and of the Council of 22 October 2025 on driving licences, amending Regulation (EU) 2018/1724 of the E…

RemovedRecital 4: deleted

AddedRecital 19 a (new): (19a) The deployment of zero-emission heavy-duty vehicles is progressing slower than expected, hindered by persistent barriers such as limited grid capacity, lengthy permission procedures, and high charging infrastructure costs. As a result, zero-emission exemptions are currently of limited practical applicability, particularly in long-haul transport. In this context, transitional low-emission technologies, especially factory-equipped range-extender vehicles, can contribute to reducing CO₂ emissions. / Without prejudice to existing provisions, this Directive should introduce measures to recognise the temporary role of low-emission technologies. For low-emission vehicles, Member States should be able to temporarily apply reductions of up to 75% compared to the charges applicable for CO2 emission class 1, where and as long as an exemption of charges for zero-emission vehicles is in place. The temporary nature of the reduction supports a technologically open approach, as well as the decarbonisation of the road sector in the short term, while the enabling conditions for zero-emission technologies are being developed.

RemovedRecital 5: deleted

AddedRecital 19 b (new): (19b) In order to ensure the harmonised and practical implementation of CO₂-related data processing, structured cooperation is necessary between Member States, competent authorities, vehicle manufacturers, operators and infrastructure operators. A dedicated technical task force coordinated by the European Commission and including national experts should support the identification of practical implementation steps and common technical specifications. In this context, the respective roles and responsibilities with regard to the collection, validation, and transmission of CO₂-related data should be clearly defined in order to avoid, first and foremost, a disproportionate administrative burden on the operators, while promoting interoperability and data reliability and, therefore ultimately, legal certainty between Member States.

RemovedRecital 6: deleted

RemovedRecital 7: deleted / (deleted)

RemovedRecital 8: deleted / (deleted) / (deleted)

RemovedRecital 9: deleted

RemovedRecital 10: deleted / (deleted) / (deleted)

RemovedRecital 19 a (new): (19a) Currently, road charges for vehicle combinations comprising a motor vehicle and a trailer are differentiated on the basis of the CO2 emissions of the motor vehicle, irrespective of the characteristics of the linked trailer, in particular of its effect on the CO2 emissions of the vehicle combination as a whole. Although a trailer does not consume energy by itself, it requires energy from the towing motor vehicle to be moved. The optimisation of the energy efficiency of trailers leads to a reduction in the CO2 emissions of conventional vehicles and to an increase in vehicles’ autonomy. Such optimisation of trailers derives from the improvements of aerodynamic performance, rolling resistance and weight of trailers. The energy efficiency potential is approximately 7.5% for drawbar trailers and 15% for semi-trailers when compared to the energy efficiency of a reference trailer from the year 2020. Therefore, trailers could play an important role in the decarbonisation of the road freight transport sector.

RemovedRecital 19 b (new): (19b) The main challenge related to the CO2 differentiated tolling of vehicle combinations concerns its practical implementation. In particular, the real-time identification of the trailer used in a vehicle combination and the effective enforcement of differentiated charging schemes require the availability and validation of appropriate technical solutions. Those challenges cannot be addressed solely through additional regulatory provisions. It is therefore appropriate to encourage the development, assessment and testing of technical solutions, including through pilot projects, in order to generate the necessary technical evidence and operational experience. Such pilot projects should support the preparation of any future legislative proposals and ensure that CO2 differentiated tolling for vehicle combinations can be implemented in a reliable, interoperable and proportionate manner across the Union.

RemovedRecital 19 c (new): (19c) In order to ensure the harmonised and practical implementation of CO₂-related data processing, structured cooperation is necessary between Member States, competent authorities, vehicle manufacturers, operators and infrastructure operators. A dedicated technical task force coordinated by the European Commission and including national experts should support the identification of practical implementation steps and common technical specifications. In this context, the respective roles and responsibilities with regard to the collection, validation, and transmission of CO₂-related data should be clearly defined in order to avoid, first and foremost, a disproportionate administrative burden on the operators, while promoting interoperability and data reliability and, therefore ultimately, legal certainty between Member States.

RemovedRecital 20: (20) Directive 1999/62/EC should therefore be amended accordingly,

Directive 1999/62/EC

Change 3

RemovedArticle 1 – paragraph 1 – point 1 – point a, Article 2 – paragraph 1 – point 28: ‘(28) ‘CO2 emissions’ of a heavy-duty vehicle means its specific CO2 emissions (gCO2/t-km) if it is a heavy goods vehicle or its specific CO2 emissions (gCO2/p-km) if it is a coach or a bus, as provided in its customer information file, as defined in Part II of Annex IV to Commission Regulation (EU) 2017/2400*;’ / * Commission Regulation (EU) 2017/2400 of 12 December 2017 implementing Regulation (EC) No 595/2009 of the European Parliament and of the Council as regards the determination of the CO2 emissions and fuel consumption of heavy-duty vehicles and amending Directive 2007/46/EC of the European Parliament and of the Council and Commission Regulation (EU) No 582/2011 (OJ L 349, 29.12.2017, p. 1, ELI: http://data.europa.eu/eli/reg/2017/2400/oj)

AddedArticle 1 – paragraph 1 – point 1 – point -a (new), Article 2 – paragraph 1 – point 21: (-a) point 21 is replaced by the following: / (21) ‘light-duty vehicle’ means a vehicle with a technically permissible maximum laden mass not exceeding 3,5 tonnes and alternativelyfuelled vehicles of category M1 referred to in Article 4(1) point (a) of Regulation (EU) 2018/858 with a maximum mass not exceeding 4,25 tonnes;

RemovedAvoiding such precisions in the reference can help covering previous versions of the customer information file given that the numbering of sections changed following revision to Regulation (EU) 2017/2400.

Directive 1999/62/EC

Change 4

RemovedArticle 1 – paragraph 1 – point 1 – point g, Article 2 – paragraph 1 – points 42 and 43: deleted / (deleted) / (deleted) / (deleted) / (deleted)

AddedArticle 1 – paragraph 1 – point 1 a (new), Article 7 – paragraph 9 – point d a (new): (1a) in Article 7(9), the following point is added: / ‘(da) vehicles of categories N2 and N3 referred to in Article 4(1) point (b) of Regulation (EU) 2018/858 of the European Parliament and the Council, if equipped with an electrified transport refrigeration unit.’

Directive 1999/62/EC

Change 5

RemovedArticle 1 – paragraph 1 – point 2 – point b, Article 7ga – paragraph 2 – subparagraph 3: Member States shall reclassify the vehicles that have been classified in CO2 emission class 1 or 2 with an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 43% by instead using an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 30% at the latest by [date of entry into force of this Directive + two months].

AddedArticle 1 – paragraph 1 – point 1 b (new), Article 7 – paragraph 10 a (new): (1b) in Article 7, the following paragraph is inserted: / ‘10a. Member States, taking into account the VECTO methodology, shall ensure that the application of the CO2-based classification and differentiation of charges for heavy-duty vehicles takes into account the actual use of vehicle combinations in logistic systems. / To this end, particular attention shall be paid to: / (a) the proportion of empty journeys and the loading rate; / (b) the multi-use of vehicles and trailers; / (c) the loading efficiency of the trailer and specific use like side-opening trailers used for military or commercial use; / (d) the impact on the efficiency and resilience of the transport system; / (e) life-cycle emissions.’

RemovedCorrecting a mistake in the Commission proposal since vehicles in class 3 do not need to be reclassified.

Directive 1999/62/EC

Change 6

RemovedArticle 1 – paragraph 1 – point 2 – point c a (new), Article 7ga – paragraph 8 a (new): (ca) the following paragraph is added: / (8a) By [two years from the date of entry into force of this Directive], the Commission shall carry out an evaluation of the application of this Directive, in particular the possible introduction and functioning of CO2 differentiated tolling for vehicle combinations taking into account the CO2 emissions performance of trailers. / In the context of that evaluation, the Commission shall, in particular: / (a) assess the documents issued pursuant to Commission Regulation (EU) 2022/1362* certifying the performance characteristics of trailers, and examine their potential use as a reliable basis for CO2 differentiated tolling; / (b) assess the technical feasibility of implementing differentiated tolling, including the availability, reliability and interoperability of technical solutions enabling the real-time identification of trailers within vehicle combinations and ensuring effective enforcement; / (c) examine the interoperability implications of differentiated tolling, taking into account the requirements laid down in Directive (EU) 2019/520 of the European Parliament and of the Council**, in particular with regard to ensuring that on-board equipment (OBE) remains interoperable across the Union, including where tolling arrangements take trailers into account. / The Commission shall also take into account the results of any pilot projects or practical trials carried out at Union or national level in this area, as well as the administrative …

AddedArticle 1 – paragraph 1 – point 2 – point a, Article 7ga – paragraph 1: The measures applied pursuant to this Article shall respect the principle of technological neutrality.

Directive 1999/62/EC

Change 7

RemovedArticle 1 – paragraph 1 – point 3, Article 7gc: deleted / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted) / (deleted)

AddedArticle 1 – paragraph 1 – point 2 – point a a (new), Article 7ga – paragraph 1 – subparagraph 5: (aa) in paragraph 1, the fifth subparagraph is replaced by the following: / ‘Without prejudice to the reduction of rates provided for in paragraph 3, Member States may provide for reduced rates of infrastructure or user charges, or exemptions to pay infrastructure or user charges for zero emission vehicles of any vehicle group from 24 March 2022 until 30 June 2031. Within this period, Member States may apply a reduced rate of infrastructure or user charge for low-emission vehicles up to 75%, should a higher exemption to pay infrastructure or user charges for zero emission vehicles be in place. From 1 July 2031, such reductions for zero-emission vehicles shall be limited to 75 % compared to the charge applicable to CO2 emission class 1, and for low emission vehicles they shall be limited to up to 50% compared to the charge applicable to CO2 emission class 1, as defined in paragraph 2.’

Directive 1999/62/EC

Change 8

RemovedArticle 1 – paragraph 1 – point 4, Article 7j – paragraph 2a – subparagraph 1: deleted / (deleted)

AddedArticle 1 – paragraph 1 – point 2 – point b, Article 7ga – paragraph 2 – subparagraph 3: Member States shall reclassify the vehicles that have been classified in CO2 emission class 1 or 2 with an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 43% by instead using an emission reduction trajectory based on a CO2 emissions reduction target for 2030 of 30% at the latest by [date of entry into force of this Directive + two months].

Directive 1999/62/EC

Change 9

RemovedArticle 1 – paragraph 1 – point 6, Article 9d – subparagraph 1: deleted / (deleted)

AddedArticle 1 – paragraph 1 – point 2 – point b, Article 7ga – paragraph 2 – subparagraph 4: Member States shall consider as eligible for classification in a CO2 emission class all vehicles for which the road user can provide evidence of the CO2 emissions in a customer information file issued in accordance with Article 9 of Regulation (EU) 2017/2400, based on their verified CO2 emissions performance, applied in a technologically neutral manner. If the date of the first registration of a vehicle is before the start of the emission reduction trajectory of the vehicle sub-group to which the vehicle belongs, the values of the first year of the emission reduction trajectory for that sub-group shall apply.