EN    EN EN EN    EN  EUROPEAN COMMISSION  
Brussels, 13.1.2011 
COM(2011) 1 final 
2011/0002 (COD)   
Proposal for a 
DIRECTIVE OF THE EUROPEAN PA RLIAMENT AND OF THE COUNCIL  
amending Directive 2000/25/EC as regards the application of emission stages to narrow-
track tractors 
(Text with EEA relevance) 
SEC(2011) 44 final SEC(2011) 43 final EN 2   EN EXPLANATORY MEMORANDUM  
1. CONTEXT OF THE PROPOSAL  
• Grounds for and objectives of the proposal 
This proposal provides for an amendment to European Parliament and Council 
Directive 2000/25/EC of 22 May 2000 on action to be taken against the emission of 
gaseous and particulate pollutants by engi nes intended to power agricultural or 
forestry tractors. 1 
The objective of Directive 2000/25/EC is  to guarantee the free movement of 
agricultural and forestry tractors whilst reducing permissible exhaust emission levels 
of engines in order to prot ect the health and well-being  of citizens as well as the 
environment.  
The Directive defines successive stages reducing the exhaust emission limits largely 
coherent with the provisions of Directive 97/68/EC of th e European Parliament and 
of the Council of 16 December 1997 on th e approximation of the laws of the 
Member States relating to measures agains t the emission of gaseous and particulate 
pollutants from internal combustion engine s to be installed in non-road mobile 
machinery 2. 
Following the definition of further reductions of the limits of gaseous and particulate 
polluting emissions from internal combusti on engines to be installed in non-road 
mobile machinery adopted with Directive 2004/26/EC of the European Parliament 
and the Council3, Directive 2000/25/EC was ame nded by Commission Directive 
2005/13/EC of 21 February 2005 4. 
The new limits of gaseous and particul ate polluting emissions were defined to 
provide reductions in excess of 90% of the previously regulated values, with a view 
to have secondary exhaust after treatment systems for both PM and NO X adopted on 
the vast majority of the engines and machin es covered by the respective directives by 
the time the most advanced stage becomes compulsory. 
In view of those challenges and given the uncertainties about the actual technical 
feasibility of those goals , Directive 2004/26/EC provi ded for the Commission to 
conduct a technical review, in  particular to “consider the available technology, 
including the cost/benefits, with a view to  confirming Stage III B and IV limit values 
and evaluating the possible need for additional flexibilities, exemptions or later introduction dates for certain types of equipment or engine s and taking into account 
engines installed in non-road mobile mach inery used in seasonal applications” 
5. 
                                                 
1 OJ L 173, 12.7.2000, p. 1. 
2 OJ L 69, 27.2.98, p. 1. 
3 OJ L 146, 30.4.2006, p.1. 
4 OJ L 55, 1.3.2005, p. 35. 
5 OJ L 146, 30.4.2004, article 2. EN 3   EN Directive 2000/25/EC, as amended, in Article 4 (8) established a link to the technical 
review provided for in Directive 2004/26/EC in  order to investigate the issues related 
to agricultural tractors and in  particular those in categor ies T2, T4.1 and C2 (the so-
called narrow-track tractors, ma ximum width less than 1,15 m). 
The results of the technical evaluation conf irmed the feasibility of the challenging 
limits set by the co-legislators in the vast majority of engines intended for installation 
on non-road machinery and on agricultural tractors. However, for the agricultural tractors in categories T2, T4.1 and C2 an amendment of the requirements was 
deemed necessary. 
• General context 
In order to fulfil the oblig ations set by Article 2 of Directive 2004/26/EC and by 
Article 4(8) of Directive 2000/25/EC, EC - DG ENTR awarded a contract to DG JRC 
to investigate all the aspects requested by those Directives. 
For the issue of agricultural tractors, DG JRC assessed the situat ion of categories T2, 
T4.1 and C2 with literature research, and direct evaluati on of the vehicles visiting 
five manufacturers of different sizes a nd employing different technologies, one of 
them can be classified as a SME. Their production covers the vast majority of narrow-track tractors placed on the European market. 
The tractors covered by the research emerged as typical European products 
developed to meet the requirements of speci alised agriculture in southern European 
(specifically Mediterranean) agriculture . The overwhelming majority of these 
tractors is sold in the EU. 
The results of this analysis were pr esented during successive GEME meetings 
starting from June 2006 and confirmed in th e draft final Report issued in December 
2007 and published on the CIRCA website.  
Contrary to other issues where multiple options were indicated, the only conclusion 
of DG JRC was that the tractors in categ ories T2, T4.1 and C2 should be exempted 
from stages IIIB and IV of Directive 2000/25/EC. This conclusion received the support of some Member Stat es and no negative reaction. 
These findings by JRC were confirmed in an Impact Assessment study performed by 
Arcadis in 2008-2009 under contract for EC  - DG ENTR. The Arcadis study clearly 
indicated the advantage for environment of the proposed postponement: without it 
users would not be in a position to buy up-to -date tractors of St age IIIA and would 
continue using (very) old machines (‘sta ge 0’ level). In addition Arcadis shows 
negative impacts of economic and social na ture if the proposal were not adopted. 
• Existing provisions in the area of the proposal 
The following two directives are relevant in this respect:  
- European Parliament and Council Directive 97/68/EC of 16 December 1997 on 
the approximation of the laws of the Member States relating to measures against the EN 4   EN emission of gaseous and particulate polluta nts from internal combustion engines to 
be installed in non-road mobile machinery, as amended. 
- European Parliament and Council Directive 2000/25/EC of 22 May 2000 on 
action to be taken against the emission of  gaseous and particulate pollutants by 
engines intended to power agricultural or  forestry tractors and amending Council 
Directive 74/150/EEC, as amended. 
• Consistency with other policies and objectives of the Union 
Directive 97/68/EC is based on the Comm unity programme of policy and action in 
relation to the environment and sustainable development.6 
Directive 2000/25/EC represents  the transposition to the agricultural tractors sector 
of the same goals and policy. 
This proposal is consistent with the cu rrent Community environmental policy and 
objectives as detailed in the Sixth E nvironmental Action Programme (COM(2001) 
31 final) 7, which lists improvement of the air quality as a priority objective to be 
attained, inter alia , by enforcing product-specific exhaust emission limits. The Sixth 
Environmental Action Programme defi nes a policy making method based on 
participation and sound knowle dge, according to which: 
“Broad involvement of stakeholders will be central to the successful implementation 
of the Sixth Programme, and in every stage  of the policy process from agreeing 
targets to putting measures into practice.  Sound scientific k nowledge and economic 
assessments, reliable and up to-date data and information and the use of indicators 
will underpin the drawing-up, implementation and evaluation of environmental policy” 
The proposed delay is fully aligned with th is method of policy making: it covers the 
Stage IIIB and IV limits laid down in th e Directive 2000/25/EC for tractors of 
categories T2, T4.1 and C2 insofar as th ese have been found to be technically 
impossible to meet by all stakeholders  and the DG JRC independent study. 
2. R
ESULTS OF CONSULTATIONS WITH INTERESTED PARTIES AND IMPACT 
ASSESSMENT  
• Consultation of interested parties 
Member States and stakeholders have been presented the issue and the results of the 
DG JRC investigation during various mee tings of the Experts Group on Non-road 
mobile machinery engines. Among othe r meetings, on 21 November 2008 Member 
States have been consulted during a m eeting of the Committee for Adaptation to 
Technical Progress - agricultural tractors. Support was expressed by Austria, Finland, 
Germany, Greece, Italy, Spain, Sweden and the United Kingdom; no negative 
                                                 
6 Resolution of the Council and the representatives of  the Governments of the Member States, meeting 
within the Council of 1 February 1993 (OJ C 138, 17.5.1993, p. 1). 
7 OJ C 154E , 29.5.2001, p. 218. EN 5   EN positions were recorded. In addition, a mee ting with industry representatives took 
place on 2 September 2010 in order to review the latest technological developments. 
• Collection and use of expertise 
Scientific/expertise domains concerned  
Exhaust emissions from NRMM engi nes and agricultural tractors. 
Main organisations/experts consulted  
DG JRC; Experts Group on exhaust emissi ons from NRMM engines and working 
group on agricultural tractors. 
Means used to make the exper t advice publicly available  
Publication on CIRCA website of the JRC a nd Arcadis reports on technical review of 
NRMM engines exhaust emission legislation. Communication at the meetings of the 
Commission experts group on emissions from  Non Road Mobile Machinery engines 
(GEME) and of the working group and Committee on agricultural tractors. 
• Impact assessment 
The Commission undertook a formal impact assessment in 2010, based on the 
previously mentioned technical studies a nd taking into account recent technological 
developments. The conclusion was that techni cal solutions are likely to be feasible, 
although not in the timeframe set in current legislation. A delay of 3 years for Stage IIIB and Stage IV requirements was assessed as the preferred option. 
3. L
EGAL ELEMENTS OF THE PROPOSAL  
• Summary of the proposed action 
It is proposed that the da tes given in Article 4 of Directive 2000/25/EC for type 
approval and initial entry into service of St ages IIIB and IV shall be delayed by three 
years for tractors of categories T2, C2 a nd T4.1 as defined in Directive 2003/37/EC. 
• Legal basis 
This proposal is based on Article 114 of the Treaty. 
• Subsidiarity principle 
The objectives of the propos ed action, namely, to ensure the ongoing functioning of 
the internal market by requiring agricultural tractors to comply with harmonised environmental exhaust provisions, cannot be  sufficiently achieved by Member States 
acting alone and can therefore,  by reason of their scale and effects, be better achieved 
at Union level. 
This proposal therefore complies with the subsidiar ity principle as set out in Article 5 
of the Treaty. EN 6   EN • Proportionality principle 
The proposed amendment does not go beyond what is necessary to achieve the 
objectives set out above.  
Independent experts and stakeholders concur that the stage IIIB and IV limits for the 
agricultural tractor types covered by th e proposed amendment are not technically 
feasible. Severe disruption to the internal market and to the agricultural sectors using 
those tractors in the Union would thus result  if the entry into force of the relevant 
stage IIIB and IV limits were not delayed.  
Even though strong technical arguments ha ve been made by industry for the 
complete exemption of these tractors, th ey have not been included. The proposal 
therefore describes the absolu te essential amendments cons idered necessary to ensure 
an appropriate balance of burdens on industry alongside ensuring that the 
environmental objectives, wherever possible, have been met. 
This proposal therefore complies with the proportionality princi ple as set out in 
Article 5 of the Treaty. 
• Choice of instruments  
Proposed instruments: directive. 
Other means would not be adequate for the following reason: amendment to an 
existing Directive. 
4. BUDGETARY IMPLICATION  
The proposal has no implication for the Union budget. EN 7   EN 2011/0002 (COD) 
Proposal for a 
DIRECTIVE OF THE EUROPEAN PA RLIAMENT AND OF THE COUNCIL  
amending Directive 2000/25/EC as regards the application of emission stages for 
narrow-track tractors 
(Text with EEA relevance) 
THE EUROPEAN PARLIAMENT AND THE CO UNCIL OF THE EUROPEAN UNION, 
Having regard to the Treaty on the functioning of the European Union, and in particular 
Article 114 thereof, 
Having regard to the proposal from the European Commission8, 
After transmission of the draft legislative act to the national Parliaments, Having regard to the opinion of the Eu ropean Economic and Social Committee
9, 
Having regard to the opinion of  the Committee of the Regions10 
Acting in accordance with the or dinary legislative procedure, 
Whereas: (1) Directive 2000/25/EC of the European Parliament and of  the Council of 22 May 2000 
on action to be taken agains t the emission of gaseous an d particulate pollutants by 
engines intended to power ag ricultural or forestry tractors and amending Council 
Directive 74/150/EEC
11 regulates exhaust emissions from engines installed in 
agricultural and forestry tractors. The stage of emission limits currently applicable for type approval of the majority of compressi on ignition engines is referred to as Stage 
IIIA. The Directive provides that those limits  will be replaced by the more stringent 
Stage IIIB limits, entering into force progres sively as of 1st January 2010 as regards 
the type approval and as of 1
st January 2011 with regard to the placing on the market 
of those engines. 
(2) Directive 2004/26/EC of the European Par liament and of the Council of 21 April 2004 
amending Directive 97/68/EC of the Europ ean Parliament and of the Council of 16 
December 1997 on the approximation of the la ws of the Member States relating to 
measures against the emission of gaseous and particulate pollutants from internal 
                                                 
8 OJ C […], […], p. […]. 
9 OJ C […], […], p. […]. 
10 OJ C […], […], p. […]. 
11 OJ L 173, 12.7.2000, p. 1 EN 8   EN combustion engines to be installe d in non-road mobile machinery12, provides in 
Article 2 (b) that the Commission shall c onsider the available technology, including 
the cost-benefit, with a view to confir ming stage IIIB and IV limit values and 
evaluating the possible need for additiona l flexibilities, exemptions or later 
introduction dates for certain types of equipment or engine s and taking into account 
engines installed in non-road mobile mach inery used in seasonal applications. In 
Article 4 (8), Directive 2000/25/EC provides for a review clause in order to take into 
account the specificities of tractor s of categories T2, T4.1 and C.2. 
(3) Directive 97/68/EC was the su bject of several technical st udies. As a result of these 
technical studies carried out in 2007, 2009 and 2010 and confirmed by the impact 
assessment carried out by the Commission, it was established that it is not technically 
feasible for tractors classified within th e categories T2, C2 and T4.1 to meet the 
requirements of stages IIIB and IV already at  the dates foreseen in the Directive.  
(4) In order to prevent Union le gislation from prescribing technical requirements which 
cannot be met yet and in orde r to prevent that tractors of categories T2, C2 and T4.1. 
can no longer be type-approved and placed on the market or put into service, it is therefore necessary to provide  for a transitional period of three years, within which 
tractors classified in categories T2, C2 a nd T4.1 may still be type-approved and placed 
on the market or put into service. 
(5) Directive 2000/25/EC should therefore be amended accordingly. 
HAVE ADOPTED THIS DIRECTIVE: 
Article 1 
In Article 4 of Directive 2000/25/EC, th e following paragraph is added:  
"9. By way of derogation from points (d) and (e) of paragraph 2 and from paragraph 3, for 
tractors of categories T2, C2 and T4.1, as de fined in Annex II, Chapter A, point A.1 and 
Annex II, Chapter B, Appendix 1, Part I, poi nt 1.1 of Directive 2003/37/EC and equipped 
with engines of categories L to R, the dates set out in points (d) and (e) of paragraph 2 and in 
paragraph 3 shall be postponed for three years.  Until such dates, the requirements of Stage 
IIIA in this Directive sh all continue to apply. " 
Article 2 
Transposition 
1. Member States shall adopt and publish, by [6 months minus 1day as from entry into 
force] at the latest, the laws, regulations  and administrative pr ovisions necessary to 
comply with this Directive. They sha ll forthwith communicate to the Commission 
the text of those provisions. 
They shall apply those provisions from [6  months as from entry into force] . 
                                                
 
12 OJ L 225, 25.6.2004, p. 3. EN 9   EN When Member States adopt those provisions,  they shall contain a reference to this 
Directive or be accompanied by such a reference on the occasion of their official publication. Member States shall determin e how such reference is to be made. 
2. Member States shall communicate to the Commission the text of the main provisions 
of national law which they adopt in the field covered by this Directive. 
Article 3 
This Directive shall enter into force on the tw entieth day following that of its publication in 
the Official Journal of  the European Union . 
Article 4 
This Directive is addressed to the Member States. 
Done at Brussels, […] 
For the European Parliament For the Council 
The President The President […] […]