Opinion of the Committee of the Regions on the 'Proposal for a Council Decision on the Promotion of sustainable and safe mobility` (97/C 244/07)

THE COMMITTEE OF THE REGIONS,

having regard to the Commission proposal to the Council [COM(96) 654 final - 96/0306 (SYN)] ();

having regard to the decision taken by the Council on 14 February 1997, under Article 129d and the first paragraph of Article 198c of the Treaty establishing the European Community, to consult the Committee of the Regions on the matter;

having regard to its decision on 12 March 1997 to direct Commission 3 - Transport and Communications Networks - to draw up the relevant opinion;

having regard to the draft opinion (CdR 64/97 rev.) adopted by Commission 3 on 10 April 1997 (rapporteur: Mr Gustâv),

adopted the following opinion at its 18th plenary session on 11 and 12 June 1997 (meeting of 12 June).

1. General comments

1.1. EU transport policy must be developed and given practical substance in order to promote sustainable and safe mobility throughout the whole transport sector. Most transport activity, whether of people or goods, takes place locally and regionally. Traffic-related problems such as environmental damage, traffic jams, traffic infringement and accidents have a considerable impact on citizens at local and regional level. On the one hand, transport policy must be more market-oriented and pay greater attention to customers' requirements, values, attitudes and preferences. On the other hand, the transport sector must be developed in such a way as to promote sustainable and safe mobility.

1.2. The Committee of the Regions would therefore emphasize that a coordinated, integrated transport policy must be developed through a partnership between the EU, the Member States, the regions and municipalities. The subsidiarity principle is vital here. The EU should provide increased opportunity for exchanges of know-how and experience at local and regional level, and set up joint forums for elected representatives and experts from the regions and municipalities to exchange views. For its part, the Committee of the Regions is prepared to play an active role in this.

1.3. The development of the trans-European transport network must be promoted in various ways, and the regions and municipalities must have considerable influence over planning and implementation at regional and local level. Trans-European networks will not function effectively unless they are efficiently linked up with the regional and local transport systems. Improved communications will strengthen Europe's ability to compete on world markets and boost social cohesion within the EU. Transport and communications systems must be expanded regardless of administrative borders.

1.4. Infrastructure and transport are one of the ways we build up and develop our society. Improved communications can boost employment and promote economic growth. As a society, we must strike a balance between investment in different types of transport and investment in infrastructure and transport.

1.5. The whole transport sector is still characterized by regulations and monopolies. It is not sufficiently market-led and, from the customer's angle, coordination between different transport systems is often unsatisfactory. The whole door-to-door journey should be looked at from the customer's point of view. This analysis should cover the whole quality chain:

- customer quality expectations;

- projected quality;

- contract obligations regarding quality;

- performed quality;

- perceived quality.

1.6. The competent transport authorities and transport companies must constantly measure customer quality expectations and perceptions. In order to be able to identify any weak links in the journey chain, quality expectations and perceptions should be measured using the same methods for the whole journey, from door to door. In order to make public transport (including rail transport) more attractive, it is important that the competent transport authorities and transport companies should state exactly what they are prepared to promise their customers. These promises must be made public so that customers know what they are entitled to expect. It is important that their expectations are met. If a supplier's goods or services exceed customer expectations, then the customer is more likely to come back for more. If a transport company is unable, in a particular case, to keep its promises to customers, then it is important that customers should be compensated so that they still feel satisfied with the service.

1.7. Public transport (including rail transport) is to a large extent subsidized by the taxpayer throughout the European Union. In spite of these large tax subsidies and, in many cases, low prices, many would-be customers choose to travel by car. The choice of transport is largely conditioned by standards and quality. Value for money is the motto. Although, in many cases, public transport is cheap, the customer does not feel it provides sufficient value for money. If standards and quality are raised, then prices can also be increased. Passenger preferences and willingness to pay must be analysed. In the future, passengers will have to pay more for improved infrastructure and transport. A fair and effective price structure, which takes external effects into consideration, would provide society with the resources to build up and improve infrastructure and transport.

1.8. All links and connections in the journey-chain must be of satisfactory quality. Improvements to software policies are often cheaper, more cost effective and quicker to implement than investment in new technology.

1.9. It is important that new technologies such as information technology should be planned with the customer in mind. A certain amount of European standardization is needed both to provide adequate solutions from the customers' angle and to boost the global competitiveness of European industrial firms.

1.10. In this connection, the Committee of the Regions would refer to earlier opinions on the Commission Green Papers on 'A Citizens' Network` and 'Towards fair and efficient pricing in transport`.

2. Comments on the individual articles of the proposal for a Council decision

2.1. Comments on Article 1

'This decision concerns the definition and implementation of the common transport policy and the trans-European transport network with a view to ensuring and encouraging sustainable and safe mobility.`

2.1.1. The Committee of the Regions would emphasize that customer demand, customer attitudes, values and preferences must of necessity underpin EU transport policy. A more market-oriented transport policy would provide the regions and municipalities with a more important role, which would also be in keeping with the subsidiarity principle.

2.1.2. The Committee of the Regions feels that deregulation and increased competition can play an active role in making transport more market oriented. A fair, effective pricing system can help to promote sustainable and safe mobility while providing society with the resources to improve infrastructure and transport.

2.1.3. The Committee of the Regions notes that traffic policy must be coordinated with environmental policy and other policy areas, and that this coordination must take place at all levels: EU, national, regional and municipal. Many regions are prey to conflict over land-use, and the pros and cons must be debated within the framework for local and regional spatial planning.

2.2. Comments on Article 2

'The Commission shall be responsible for the implementation of Article 1 and, to this end, may take such measures as it deems necessary, namely:

- systematic gathering, processing and dissemination of information relating to transport activities in the Community and to transport activities involving the Community and third countries;

- involvement in the organization of specialized conferences and seminars by bodies pursuing objectives compatible with those of the Community;

- provision of support, possibly on a regular basis, for analytical work carried out by national or international, public or private organizations, provided that such work contributes effectively and directly to the attainment of the objectives pursued under the common transport policy;

- introduction of incentives and support measures to promote technical harmonization designed to ensure the interoperability of the trans-European transport network and the optimum functioning of the internal transport market;

- support for initiatives seeking to ensure greater effectiveness in the definition, development and promotion of the trans-European transport network vis-à-vis its technical, environmental and financial aspects and its expansion to third countries;

- encouragement of training operations in the training sector with a specific view to promoting and improving transport safety and respect for the environment;

- technical and financial assessment of measures taken by the Commission or by third-countries to promote mobility;

- performance of cost-benefit analyses in respect of actions and projects.`

2.2.1. An important source for development and innovation is provided by exchanges of know-how, experience and ideas between different countries and regions. The Committee of the Regions feels that the regions and municipalities should be more closely involved in the Commission's various activities; this particularly applies to the local and regional elected representatives.

2.2.2. The Committee of the Regions would emphasize that whilst it is extremely important to build up the trans-European networks, this must take place in close consultation with the regions and municipalities concerned.

2.2.3. The Committee of the Regions notes that in many countries there are no strong organizations to look after consumer interests in publicly-funded transport, i.e. local and regional public transport (including rail transport), in stark contrast to the prevalence of strong organizations to defend the interests of motorists and the road haulage business. Elected representatives at local and regional level are in close contact with citizens, and have a key role to play where the interests of different groups have to be weighed up.

2.2.4. The Committee of the Regions notes that new technologies, including information technology, can improve the quality of transport systems and increase the competitiveness of public transport. The Commission should provide support for a certain amount of harmonization in order both to meet customer needs and to make European industry more competitive. At the same time, the Committee would point out that considerable improvement can be achieved with existing technology by steadfastly targeting quality and service.

2.2.5. The Committee of the Regions feels that the Commission's action could highlight quality issues more clearly. The Commission should develop a programme for more systematic quality initiatives and encourage the competent authorities and transport companies to measure customer quality expectations and perceptions as a matter of course. Common quality assessment methods would make it easier to identify weak links in the journey-chain and create a European transport network for all citizens.

2.2.6. The Committee of the Regions would point out that, in any action taken, the Commission must respect powers enjoyed by the Member States in line with the subsidiarity principle.

2.3. Comments on Article 3

'1) With a view to implementing these measures, the Commission may:

- conclude contracts with private or public bodies, subject to compliance with the procedures governing public contracts;

- co-finance any project initiated by public or private bodies, whether or not international, up to a maximum of 50 % of the total cost of the project, with no possibility of exceeding this limit except in cases where the exceptional Community scope of the actions warrant it;

- contribute to the operating budgets of public or private international organizations of which it is a member or might become a member, and which operate in the transport sector.

2) Where the nature of the actions and the circumstances so warrant it, appropriate publicity measures shall be taken with a view to calling for proposals and setting out the procedures governing Community contributions to such actions.

3) The extent of the Community's involvement is determined mainly on the basis of:

- the usefulness of the action as a means of achieving the objectives of the common transport policy and the trans-European transport network;

- the Community scope of the action and the extent of the multinational involvement;

- the exemplary or innovative nature of the action and the possibilities for its diffusion and extension across the Community;

- the contribution made by the action to the promotion of cooperation with third countries.`

2.3.1. The Committee of the Regions notes that international and national trade associations often oppose deregulation and competition. Organizations whose task it is to look after producers' interests cannot be expected to view satisfaction of consumer interests as their overriding objective. It is therefore important that the Commission should work in partnership with progressive and forward-thinking bodies which share the EU's long term objectives for European transport policy.

2.3.2. The Committee of the Regions feels that it is essential that the Commission should not just co-finance the projects of national or international bodies, but should also, indeed especially, provide funding for the projects of local and regional bodies. Most transport activity takes place at local and regional level and the regions and municipalities are the first to be on the receiving end of traffic problems. At local and regional level there are forward-looking, innovative driving forces which should be stimulated. The Commission should encourage projects for cooperation between municipalities and regions in the various countries in order to speed up the development of EU transport policy.

2.3.3. The Committee of the Regions sees deregulation and competition not so much as an objective in itself, but rather as a means of achieving improved transport for less outlay. It is important that the single market should be fully implemented throughout the transport sector as a whole. Unprofitable transport sectors requiring public subsidy should be open to tender in a competitive European market, in accordance with the EU directive on public procurement. The Commission should encourage exchanges of know-how and experience on these issues, particularly regarding the quality of passenger services.

2.3.4. In line with the subsidiarity principle, however, the Commission measures do not cover the conclusion of bilateral transport agreements with countries outside the European Union.

2.4. Comments on Article 4

'Each final payment shall be preceded by a detailed check on the services provided, taking into account the contractual obligations entered into by the beneficiary and the principles of basic economics and sound financial management. Anti-fraud provisions (monitoring of the execution of the contract, periodic reports, financial control measures, etc.) shall be inserted into all contracts concluded between the Commission and third countries.`

2.4.1. The Committee of the Regions would emphasize that, further to the usual auditing measures, it is vital that each activity and project should be assessed on the basis of declared objectives. Whilst the detailed cost effectiveness analysis is essential, the Committee of the Regions would once again emphasize the need for the analytical work to consider not just the exigencies of customers and the market, but also the impact on society as a whole. Transport systems must comply with market requirements as far as possible whilst making sustainable and safe mobility a priority.

2.5. Comments on Articles 5-7

2.5.1. The Committee of the Regions feels no need to comment on these articles.

3. COR amendments to the proposed Articles

3.1. The Committee of the Regions calls for the following amendments to be made to the proposal:

3.2. Article 2, third indent:

- provision of support, possibly on a regular basis, for analytical work carried out by local, regional, national or international, public or private organizations, provided that such work contributes effectively and directly to the attainment of the objectives pursued under the common transport policy;

3.3. Article 3, second indent:

- co-finance any project initiated by (public or private) local, regional, national or international bodies, up to a maximum of 50 % of the total cost of the project, with no possibility of exceeding this limit except in cases where the exceptional Community scope of the action so warrant it.

4. COR concluding comments

4.1. The proposal envisages relatively limited resources, some ECU 8,000,000 per year, for the follow-up and assessment of EU transport policy. Given both the transport sector's total assets and the considerable public investment at local, regional, national and EU level, it is important that the EU should earmark the requisite resources for a subsequent follow-up and assessment of Community transport policy.

4.2. The EU should press for a switch from a production-oriented system to one which is market and customer-oriented. Improved transport is vital to European business to be able to on world markets. Mobility must be improved for everyone, particularly for the elderly, people with disabilities and those without cars. A far sighted sustainable transport system presupposes a more forceful transport policy. Shortcomings in transport safety are a serious problem for public health. With due regard to the responsibilities of the Member States, stringent means of action are needed to reduce the number of people killed and injured. If public transport is to be more attractive, then quality and service issues must be given a much higher profile. A fair and efficient pricing system could limit the side-effects of traffic, boost productivity in transport systems and provide society with more resources to improve infrastructure and transport. A closer partnership in which the Commission and the regions and municipalities pool their efforts could lead to improved transport systems, greater wellbeing and an enhanced quality of life for all. The Committee of the Regions is prepared to play an active role in this partnership.

Brussels, 12 June 1997.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ C 28, 29. 1. 1997, p. 21.