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| 29.6.2023 | EN | Official Journal of the European Union | C 228/81 |

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Opinion of the European Economic and Social Committee on the transition to a long-term sustainable transport system

(exploratory opinion requested by the Swedish Presidency)

(2023/C 228/11)

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| Rapporteur: | Stefan BACK |
| Co-rapporteur: | Mateusz SZYMAŃSKI |

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| Referral | Swedish Presidency, 14.11.2022 |
| Legal basis | Article 304 of the Treaty on the Functioning of the European Union Exploratory opinion |
| Plenary Assembly decision | 14.12.2022 |
| Section responsible | Transport, Energy, Infrastructure and the Information Society |
| Adopted in section | 12.4.2023 |
| Adopted at plenary | 27.4.2023 |
| Plenary session No | 578 |
| Outcome of vote (for/against/abstentions) | 159/0/1 |

1.   Conclusions and recommendations

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| | 1.1. | The transition to a long-term sustainable transport system must be carried out in a way that makes citizens and business — including both industry and the transport sector — buy into both the objective of a 90 % emission reduction in the transport sector by 2050 and the ways and means used to get there. |

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| | 1.2. | To achieve this, the transition must be implemented in a way that makes citizens and business see it as acceptable financially, from a social viewpoint and in practice, and therefore be ready and willing to support it actively. If that does not happen, there is a serious risk of not only failure, but at worst of social unrest. |

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| | 1.3. | In our view, in order for the transition to succeed, the following conditions must be fulfilled: | | | | --- | --- | | — | business must feel that they are not burdened with excessive costs and that they will retain competitiveness, not only inside the EU; | | | | | --- | --- | | — | employees must experience the transition as acceptable and be given the possibility to adapt to new working conditions in a socially acceptable manner; | | | | | --- | --- | | — | citizens both in agglomerations and rural areas must be granted accessibility and mobility at a reasonable cost and under good general conditions. | |

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| | 1.4. | While there seems to be general agreement about the 2050 objective, the ways and means so far foreseen to get there appear less consensual. This is for instance the case regarding heavy-duty transport, where it appears that electrification possibilities are very limited and availability of alternative fuels insufficient. |

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| | 1.5. | Use of renewable energy in transport should take into account the different types of renewables and their different sources in order to be independent of selected suppliers and countries. Dependencies related to raw materials and components used in the production of electric cars must also be taken into account. |

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| | 1.6. | Developing multimodality is essential to get the best out of each mode, including the new zero-emission modes of transport. Digitalisation, capacity optimisation and coordination will help make transport work as a coherent system. |

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| | 1.7. | Transport infrastructure, and in particular infrastructure for the distribution of alternative fuels, investment and efficiency in infrastructure use are a prerequisite for changes in transport, including with regard to transport accessibility, use of clean fuels, integration of modes of transport, implementation of innovations and new modes of transport. The European Economic and Social Committee (EESC) underscores the problem of coherence between the timeline for deployment of alternative fuels and hydrogen infrastructure and the time limits set for implementation of the TEN-T network, and the silence of EU legislation regarding rural areas not covered by the TEN-T. |

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| | 1.8. | To enable the various countries to develop transport sustainably, it is needed to take into account their specific characteristics and preferences. |

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| | 1.9. | The sustainable development of transport, as set out in EU documents, may be jeopardised by external factors, but the intended changes must be encouraged in order to ensure that the results are achievable in an acceptable manner. |

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| | 1.10. | Socially sustainable transport must be accessible, inclusive and affordable to avoid the problem of mobility poverty. The EESC believes that public transport has a key task in the transformation process. Its inclusive nature makes it possible to achieve both environmental and social objectives. |

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| | 1.11. | The transformation will not succeed without employee participation, currently in short supply in the sector. It is therefore important that the transport sector becomes known for high-quality jobs which would make working in transport more attractive. Social dialogue and collective bargaining are key in this regard. |

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| | 1.12. | The EESC underscores the importance of wide consultations with all concerned and of awareness-raising at all stages of the transition. |

2.   Background

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| | 2.1. | The Swedish Presidency has requested an exploratory opinion regarding the transition to a long-term sustainable transport system. |

The opinion should be seen against the backdrop of the ambitious objectives of the Green Deal — 90 % reduction of the CO2 emissions of transport by 2050 and 55 % by 2030 — which start being implemented through the Fit for 55 package. Getting there will also improve safety.

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| | 2.2. | As agreed, a 55 % CO2 reduction for cars and a 50 % reduction for vans is to be achieved by 2030 and a 100 % reduction for new cars and vans by 2035. The Commission is to propose allowing vehicles with CO2 neutral fuels after 2035 and assess the social and economic effect of the agreement in 2026. Further key proposals relevant for the transport part of the Fit for 55 package where trialogue agreements have been reached concern emission trading, which includes road, aviation and maritime transport, and a review of the directive on renewable fuels and the Regulation on infrastructure for the distribution of renewable fuels (AFIR). |

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| | 2.3. | A proposal for a revision of the Regulation with guidelines for the Trans-European Transport Network (TEN-T) aiming at more rapid and efficient implementation of the network and promoting sustainability, a communication on city mobility and a proposal on IT communication were presented in December 2021. A common approach on the TEN T proposal was agreed in the Transport Council of Ministers in December 2022. |

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| | 2.4. | The Commission work programme for 2023 includes a greening freight package, with revisions of the Weights and Dimensions Directive for Heavy-Duty Vehicles and the Combined Transport Directive. |

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| | 2.5. | In March 2023, the Commission presented a communication on a European hydrogen bank, focusing on financing. |

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| | 2.6. | A communication on a common European data space for mobility is planned for 2023. |

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| | 2.7. | The deals reached in ongoing trialogues on the Fit for 55 package may have a decisive effect on the possibilities to reach the Green Deal objectives set for 2050. This is also the case for the abovementioned proposals planned for 2023 and their fate is in the hands of the co-legislators. Finding an efficient way to manage the transition period both regarding technical and system development and social aspects is particularly important for success. |

3.   General comments

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| | 3.1. | Transport covers a large number of issues, many of them specific for each transport mode. Essential elements for implementing and, as appropriate, speeding up the transition of transport are basically: emission reduction, development of renewables, digitalisation, improved efficiency and alternative means of transport in city mobility. These elements and the availability of adequate infrastructure for fuels appear to be common to all modes and to both goods and passenger transport. It is important that adequate resources — private or public — are provided for research and development of zero- and low-emission vehicles, renewable fuels and digital solutions for transport. |

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| | 3.2. | It is important that all relevant legislation should as far as possible be consistent with the objectives of the green transition and promote the reduction of emissions, but in a way that does not harm the social interests of workers. |

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| | 3.3. | It is important to pay due attention to the important social consequences of transforming transport, both for the workforce and for users, and to make certain that negative effects on workers are avoided, while ensuring the availability and affordability of transport for users, as well as efficient and reasonably priced logistics chains. Adequate solutions to these matters are important for the acceptance of the transition by the workforce, the general public and business. |

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| | 3.4. | Given the very high level of ambition, and bearing in mind that transport demand is expected to rise, and by 2050 to become more than twice as big as today, good and credible management of the transition becomes essential, also bearing in mind that it is important that implementation measures are feasible and seen as feasible and that the right signals go out on the market. |

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| | 3.5. | Credibility will also be essential for people to be ready to modify habits and lifestyle in a way that promotes the transition, such as willingness to invest in vehicles with new propulsion systems, preference for car-sharing, increased use of collective transport, increased use of active means of mobility such as cycling or walking, particularly in cities, willingness of freight transport companies to exchange information to improve the possibilities of efficient use of resources by capacity-sharing. |

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| | 3.6. | Awareness-raising is important, as well as following up on such activities to ensure their impact. Civil society organisations and relevant stakeholders are important here. |

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| | 3.7. | Urbanisation and development of e-commerce will mean a change in transport needs and patterns, as reflected for instance in the abovementioned TEN-T proposal and the communication on urban mobility. Urban areas provide a good context for promoting active and green mobility modes and green freight transport solutions. |

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| | 3.8. | In a 27-Member-States EU where elements such as nature, demography, population density, general living conditions and cost level of businesses vary considerably, it may be necessary for practical and feasibility reasons to accept that one size does not necessarily fit all and that it may be necessary to be flexible and accept different solutions to the extent that these do not in real life disturb the functioning of the internal market. Examples of this could be the overall size of vehicle combinations or the extent to which forestry products may be used in the production of biofuels and the share of biofuels in the overall renewable energy for transport offer. |

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| | 3.9. | Technological neutrality should be an overarching principle when conceiving and implementing solutions at EU and national level in order to make it possible to take account of national specificities. |

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| | 3.10. | During the last few years Europe has been exposed to crisis situations affecting the functioning of the transport system, such as the COVID-19 pandemic which affected passenger transport and posed a challenge to the functioning of freight transport links. The war in Ukraine and the sanctions provoked by it have had considerable effects on energy availability and pricing, including with respect to transport fuels. It cannot be excluded that the energy problems and pricing may have effects on the possibilities of developing renewable fuels while at the same time creating circumstances that promote, for instance, the development of collective transport. |

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| | 3.11. | This highlights the importance of avoiding dependence on one single supplier of a source of energy. |

CO2 requirements — renewable fuels/means of propulsion — availability and options

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| | 3.12. | The European Commission focuses on electricity produced from renewables and green hydrogen as main energy sources. The recent agreement on the renewable energy Directive sets a 2030 minimum global share of 42,5 % renewables, with 29 % on transport, including a binding combined sub–target of 5,5 % advanced biofuels/RFNBOs with a minimum requirement of 1 % RFNBOs. This question brings up the amendments to the land use and forestry (LULUCF) Regulation which restricts the use of forest products for biofuel production, and the use of biomass waste in agriculture and food industries to produce fuels. This is an important part of an overall solution for energy supply, as are geothermal energy possibilities and new aviation fuels. |

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| | 3.13. | The upcoming proposal for CO2 emission limitations on heavy-duty vehicles brings up the possible limitations of electric propulsion, in particular for long distance transport, as well as the question of the adequacy of supply for alternative fuels for such vehicles and their total cost of ownership. Against that background, the automotive industry has raised the question of an alternative option of developing low-carbon/low-emission fossil fuels as a means to bring down emissions without requiring the renewal of vehicle fleets and without requiring a dedicated infrastructure. A combined strategy based on both pillars is likely to provide an optimal way to meet the target. This strategy would allow the rapid development of low- and zero-emission fuels including various kinds of hydrogen and the inherent possibilities of emission reductions in those transport segments where electrification is not currently an option. |

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| | 3.14. | The EESC also recommends a more comprehensive method for assessing the CO2 emissions of vehicles, namely replacing the current ‘tank to wheel’ method with a ‘well to wheel’ method, which provides a better basis for the CO2 emission assessment. |

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| | 3.15. | A key issue is the availability of infrastructure for renewables and hydrogen distribution which is key to the use renewables in transport, including with the high capacity needed for heavy-duty vehicles. The trialogue agreement on AFIR i.a. sets deployment objectives for cars, vans and heavy-duty vehicles for the core and comprehensive TEN-T, starting in 2025, for hydrogen in 2030. Coverage for heavy-duty vehicles shall be complete in 2030. This may create a problem of coherence as the TEN-T core network shall be completed by 2040 and comprehensive network by 2050. The availability in rural areas not covered by the TEN-T may also pose a problem. In any case, the frequent delays in the implementation of infrastructure projects raises the need to ensure that investment is a priority and that efficient monitoring is ensured. |

Efficiency as a means of transition

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| | 3.16. | Efficiency improves transport sustainability and may be achieved through better loading capacity, improved infrastructure that makes transport quicker or improved terminal infrastructure that makes loading/unloading or change of mode go quicker. New technologies and new ways of using means of transport, for instance car-sharing, may reduce, in particular, urban traffic volumes. Possibilities to use facilities that improve efficiency should not be conditioned on, for instance, the environmental qualities of a vehicle since that would limit the scope of the relevant improved sustainability. |

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| | 3.17. | This means, for instance, that the improved loading capacity resulting from accepting larger and heavier vehicles and/or vehicle combinations should not be conditioned on environmental qualities of a vehicle such as zero-emission nor should it be linked to specific use. |

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| | 3.18. | It is, however, equally important that low- and zero-emission vehicles, airplanes or ships are granted a level playing field by ensuring as far as possible that technical prescriptions ensure that they have the same loading capacity as other vehicles, ships and airplanes. Boosting the use of non-fossil fuels calls for ambitious aims to provide security for investors. |

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| | 3.19. | Digitalisation is another important means of improving efficiency. Exchange of information between businesses could contribute toward improved efficiency, enable the integration of means of transport, coordination of operations and hence improved sustainability. |

Multimodality and transition

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| | 3.20. | Given that a key element of the Green Deal is the improvement of the sustainability of all modes, each of which may be seen as part of a system. Therefore, the objective ought to be promoting efficient and seamless multimodality where each mode can give its best with improved overall sustainability as a result. Digitalisation, capacity optimisation and coordination will help make modes work as a coherent system. Access to networks should be equal for all modes and multimodality facilitated. Each mode of transport should be equally treated and benefit from modernisation to improve efficiency and contribute to decarbonisation and a more sustainable and resilient transport sector. |

Overarching approach

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| | 3.21. | To improve sustainability, the basic approach should be making optimal use of solutions that are available and working. Certainly, resources must be devoted to developing new and innovative solutions, in a technologically neutral manner. It is equally important not to hamper the use of options already available. The transition of transport must be credible and realistic — and achieve measurable results. |

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| | 3.22. | Therefore, solutions to be worked on should be socially credible and acceptable. This means that concrete and coordinated plans must be made and be subject to a social dialogue between the parties concerned on how to enable the workforce to adapt to new competence requirements and avoid transitory unemployment. |

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| | 3.23. | It is important that solutions are financially credible. This means that, for instance, the cost of using low- or zero-emission fuels must be financially bearable for consumers and allow operations at an acceptable level of profit for commercial operators. Direct financial support is a kind of solution that should be avoided. A better solution is granting tax breaks for consumers or businesses that invest in sustainable solutions. |

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| | 3.24. | The role of the public procurement system is emphasised as a means to promote sustainable objectives when public investments are made. The option of introducing labour law compliance as a specific requirement should be promoted. EU transport co-funding should be aligned with national policies and planning, as compatible with the EU framework. |

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| | 3.25. | Safety and security are essential to any sustainable transport system. They affect all transport users and service providers. Standards must therefore be constantly improved in all modes. |

Participation and consultation

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| | 3.26. | It is important for a successful green transition to achieve consensus through social dialogue and broad consultation with all stakeholders and the general public. This approach will help in defining problems, finding solutions acceptable to all concerned and creating confidence in and general support for planned measures. It must be seen as an indispensable condition for succeeding in negotiating the complex process of transforming the transport sector and improving the transparency of legislative procedures and the quality of legislation. |

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| | 3.27. | The EESC emphasises the need to keep organised civil society closely involved in initiatives promoting sustainable transport and suggests developing early cooperation with all stakeholders further still. |

4.   Specific comments

Social aspects — transport accessibility

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| | 4.1. | Socially sustainable transport must be accessible, inclusive, safe and affordable to avoid mobility poverty. It must respond to the specific needs of different groups, for instance women. Accessibility means, inter alia, adequate territorial planning, including regarding the interface between agglomerations and surrounding rural areas and with due regard to dedicated solutions for elderly people and for persons with reduced mobility (moving walkways, hill trains, etc.). The offer of ecological transport for urban tourism should be improved. The EESC underscores the need to promote and develop sustainable urban mobility plans. |

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| | 4.2. | The EESC calls for special attention to female users in order for transport to contribute to gender equality, including by focusing on safety in public transport. |

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| | 4.3. | There should be support for shared and active transport, in particular in cities, including promotion of green modes using intelligent transport systems, mobility as a service concept and improving road safety. Quality of life issues must be taken into account, such as the need to reduce noise pollution. |

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| | 4.4. | The EESC believes that public transport has a key task in the transformation process. Its inclusive nature makes it possible to achieve both environmental and social objectives. It can be complemented by micromobility solutions. |

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| | 4.5. | Pricing of public transport must be affordable and fair while not leading to thinning of links or of staff with due regard to all stakeholders. As a matter of public service, public transport must not be based on profitability alone, nor must it lead to transport exclusion. This implies a socially justifiable need to also maintain unprofitable connections to maintain social cohesion, for instance through public service obligations. This may call for combustion engine propulsion to maintain an adequate service level. |

Social aspects — the workforce

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| | 4.6. | A major problem of the transport sector is the shortage of human resources, which may pose a problem to the development of the sector, including the planned green transition. In this context attention is drawn to the importance of ensuring satisfactory working conditions and ensuring fair pay and working conditions in the sector, including for platform workers. While labour relations remain a national competence, there is nevertheless a reason to draw attention to the possibilities of collective bargaining to reach agreement on attractive working conditions in the transport sector including wages and occupational safety and health at national and transnational level. |

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| | 4.7. | New technologies can bring new opportunities in this regard. The importance of training and lifelong learning is underscored, in particular as a means to enable the workforce to keep up with new competence requirements due to the green transition, including digitalisation of the sector. |

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| | 4.8. | Measures such as those set out in 4.3 and 4.5 above will give the sector an attractive image and attract young people and women to the transport sector. |

Brussels, 27 April 2023.

The President of the European Economic and Social Committee

Oliver RÖPKE

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