Opinion of the Committee of the Regions on 'A sustainable transport strategy for local and regional authorities and the European Union` (98/C 180/01)

THE COMMITTEE OF THE REGIONS,

having regard to its Bureau's decision of 15 January 1997, under the fourth paragraph of Article 198c of the Treaty establishing the European Community, to issue an opinion on a sustainable transport strategy for local and regional authorities and the European Union, and to entrust Commission 3 (Transport and Communications Networks) with the task of preparing it;

having regard to the draft opinion (CdR 255/97 rev. 3) adopted by Commission 3 on 13 November 1997 (rapporteurs: Mr Färm and Mr Harris),

adopted the following opinion at its 22nd plenary session of 12 and 13 March 1998 (meeting of 12 March).

INTRODUCTION

1. Since its establishment in 1994, the Committee of the Regions has adopted a number of opinions on EU transport policy. However, there is an urgent need to improve the co-ordination of transport policy across European Union Member States. It is important in order to ensure the full benefits of the Single Market without provoking damaging social, economic and environmental consequences.

2. In addition, in the light of the Amsterdam Treaty of June 1997, when the consultative remit of the Committee of the Regions was extended, and when the Community competencies with regard to transport were strengthened, it is even more important that the views of the COR are consolidated to provide the Community institutions with a clear position. The various tiers of government, at the European, national, regional and local levels, need to collaborate when developing transport policy. Constant consultation is essential in order to ensure that all parties are working to the same end.

3. Finally, in common with the European Commission and the European Parliament, the Committee of the Regions believes that there is added value in joining together with the countries of central and eastern Europe, the newly independent states of the former Soviet Union and the countries of the Mediterranean area, to agree on principles and objectives for a pan-European transport policy, thus helping build a balanced transport infrastructure across the continent.

4. Throughout 1997, the Committee of the Regions organized a series of seminars to look at various aspects of transport policy affecting European local and regional authorities. This report has been produced in tandem with the seminars in order that the conclusions of each event can be incorporated into the opinion. Background information on the seminar series, with full details of the conclusions of each seminar, is annexed to this document.

5. Furthermore this document brings together opinions previously adopted by the COR into one paper with the aim of providing a comprehensive and coherent policy document on a sustainable transport system for Europe. More importantly, it sets out the views of European local and regional authorities for consideration by other European institutions when making decisions or future Committee opinions in the area of transport. Without agreement to this underpinning strategy there is a possible danger of policy fragmentation to the detriment of providing Europe with a sustainable transport system.

6. It is proposed that the following principles should guide the Committee's transport strategy:

a) that there is a primary role to be played by the EU and by regional and local authorities, in partnership with Member States, in the development of a sustainable transport policy in Europe. All levels have clear and distinct roles in the formulation and implementation of transport policy objectives. As such local and regional authorities, as the layer of government closest to the people and to transport users, should be consulted and involved in the decision-making process at all stages in the development of a sustainable transport policy. Democratic accountability is essential to ensure the concerns of the customer are paramount in transport provision;

b) that transport constitutes a vital factor in achieving an enhanced quality of life, improved employment levels and the competitiveness of business. Any sustainable economic development policy should therefore include transport as a priority consideration;

c) that in preparation for EU enlargement, transport links should be improved within the prospective new member states as well as between the Union and these countries and that a good transport system can, like improvements in infrastructure in general, help the candidate countries more readily to meet the requirements for EU accession. Particular emphasis should therefore continue to be placed on developing the transport systems of the CEECs in the further stages of preparing them for accession to the European Union;

d) that each transport mode should reflect the real costs of travel, where possible, in order to ensure a level field of competition between modes. It is no longer sufficient to pay only the infrastructure or fuel costs, pricing should reflect the environmental and social costs too;

e) that a transport policy must promote the idea of sustainable mobility. Environmental concerns should be borne in mind at all stages, from policy-making through to implementation;

f) that the standard of service provided to the transport user needs to be a foremost concern. Safety and security, as well as accessibility and affordability for all, are fundamental to the development of any sustainable transport system;

g) that co-operation is needed at the European level in order to open up competition within the transport sector and thus improve its service, efficiency and competitiveness, whilst preventing damaging social, environmental and economic consequences;

h) that the power of decision with regard to transport planning, services and, where appropriate, fares should remain in the hands of democratically elected bodies;

i) that it is essential for an effective and efficient transport system that the various modes are integrated at the local/regional, national and European levels. Integration is important for the economic development of regions, whether peripheral or urban.

j) that greater support should be given to new research and development work, and to the widespread dissemination of technological and telematic solutions that can assist in the policy objectives of a sustainable transport policy.

Section A - There is a primary role to be played by the European Union and local and regional authorities in the development of a sustainable transport policy

A (i). The European Union

7. The Committee of the Regions welcomes the positive way in which the European Commission is promoting the values behind sustainable mobility. There is implicit in the policy papers and initiatives supported by the Commission a very real commitment to a radical change in the way transport policy has been historically approached. Policy documents such as the Common Transport Policy Action Programme, the Fair and Efficient Pricing Green Paper, the Citizens' Network Green Paper, as well as actions such as the PACT initiative, all indicate a desire to implement and encourage transport solutions that are sustainable in the long term.

8. Nonetheless, whilst respecting the principle that decisions and actions must be taken at the most appropriate level, the Committee of the Regions is anxious that the EU does not have adequate resources to carry out comprehensively the transport policy aims with which it has been entrusted. For instance there has been slow progress in the construction of the Trans-European Transport Networks. The TENs are an essential tool for the fulfilment of the Community objective of strengthening economic and social cohesion. In the same way adequate provision for transport systems should be an important element in Community measures to support urban economic development through the Structural Funds.

A (ii). Regional and local authorities

9. In line with the principle of subsidiarity, local and regional authorities should be involved in all stages of the development of a European transport policy. The responsibilities of local/regional government with regard to infrastructure, community planning, air quality, traffic and parking, economic and social development necessitate their partnership in policy formulation and implementation, particularly as they are regularly called on to co-finance projects implemented under transport policy (facilities and operation).

10. This is not only a practical consideration as it is often local and regional authorities that must see through policy consequences. It is also vital in order to provide a coherent transport policy across tiers of government. All levels of decision-makers involved with transport issues - local, regional, national, European and pan-European - need to be working in the same direction. Active partnership between all actors involved in the promotion of sustainable development is the sole way of bringing about the holistic approach that is desperately needed.

11. It is important to remember that transport policy must be developed with a focus on the views of the individual citizen. Local government is the level closest to the people and is thus better able to reflect the views of European citizens.

Recommendations

12. The Committee of the Regions recommends the following measures in order to improve the way that the Commission and local/regional authorities can work together in the area of transport policy:

- the COR believes that there are several areas in which the Commission ought to take a greater role. For example, the Commission could play a greater role in funding exchange of experience projects about transport pricing in urban areas, transport safety measures or research into cleaner technologies. It could also act to assist in attracting private investment into public transport or be given powers to negotiate with automotive/rail/fuel industries in order to put forward the views of the individual;

- the COR calls on the Commission to provide greater assistance in educating the public about the need for a new approach to transport. This sort of transnational consensus will facilitate the work of local and regional authorities in implementing the radical measures that are necessary to reform transport systems.

Section B - Transport policy is an essential component in improving the quality of life, employment levels, and the competitiveness of business

13. The private car can bring great benefits in convenience and freedom. As incomes increase, more people are expected to own cars. If all these additional cars were to be used as much as existing ones, there would be little freedom or convenience for anyone; the roads would be clogged and the benefits of improved air quality achieved through improvements in technology and vehicle standards would be negated. In short, quality of life would decline as a result of continuing reliance on the private car. For many journeys, buses, trains, walking and cycling must be encouraged as practical alternatives.

14. Transport policy is an important part of regeneration. Improved transport access to deprived or declining areas is crucial in ensuring economic and social regeneration objectives. Improved transport can either help to exploit development potential of deprived areas or provide residents of those areas with improved access to jobs outside the area. However, any sustainable transport policy must consider the need to reduce the requirement to travel, particularly in respect of goods transport, and also reduce the damaging social and environmental consequences of transporting goods.

15. Transport policy must bear in mind the needs of the business community. It is a strong economy and successful enterprise that creates jobs. Congestion and pollution in our cities and regions lead to increased costs to businesses and affects their ability to create jobs. The success of Europe's economy is critically dependent on the effectiveness of its transport system. Europe's competitors do invest in their transport systems and Europe must do so too in order to remain competitive.

Recommendations

16. The Committee of the Regions calls on the European Commission and all regional and local authorities to ensure that any transport policy decisions they are involved with take into account the effects on the quality of life, social and economic regeneration needs of their citizens as well as the competitiveness of business within a pan-European context.

Section C - In preparation for EU enlargement, the transport infrastructure and transport services need to be improved between the EU and the prospective new member states of central and eastern Europe

17. Negotiations have begun to admit the countries of central and eastern Europe to the European Union. The enlargement must be planned meticulously if it is to be a success. Support must be given across all policy areas - structural and agricultural, environment, economic development, health, transport, infrastructure and research policy.

18. Representatives of local and regional authorities are aware that enlargement of the Union only can be achieved through a great deal of hard work. All levels of government must play a part. Regional and local authorities have demonstrated their determination to launch cross-border co-operation. Increased trade and closer cultural ties between nations and regions inside and outside the EU will be a very significant factor for economic development, employment and prosperity in the regions of Europe, and a harmonious, balanced European spatial planning policy. It will also contribute to improving the quality of life and strengthening democracy and peace.

19. To fulfil these tasks and meet the requirements for enlargement it is necessary to improve the infrastructure and transport systems. Efficient transport systems, both in the applicant countries and between these countries and the EU, are essential as a means of raising the standard of living and facilitating enlargement. The development of transport corridors is a first step to improve infrastructure and integrate the transport networks of the prospective new member states of eastern and central Europe. It is important that this support is not just confined to road transport however. For environmental reasons there must be a shift towards sea transport, short-sea transport, internal waterways, navigation and rail transport. For instance, the potential of these means of transport can only be fully exploited by improving the infrastructure of ports. But also administrative, organizational and capacity-enhancing measures are necessary in order, among other things, to reduce waiting times at frontier crossings, airports and ports.

Recommendations

20. The Committee of the Regions recommends the following measures in order to improve infrastructure and transport systems in the prospective new member states in eastern and central Europe:

- it is necessary to expand the trans-European transport network to cover the whole of Europe, as envisaged by the Commission. This would help boost links with the EU's neighbours and promote development in structurally weak areas, and it would also be a benefit to society as a whole. As the EU gears itself up for enlargement, however, the Committee of the Regions feels that priority should be given to integrating the transport networks of the prospective new member states of central and eastern Europe;

- regional and local authorities have an important role in the efforts to strengthen trade, cultural exchanges and personal contacts between the applicant countries and the Union. By engaging in close co-operation with the regions and cities in these countries the regions and local authorities will effectively contribute to an acceleration of the integration process.

Section D - Each transport mode should reflect the real costs of travel

21. Every transport mode has an impact on the environment and human health, on the cost of operating and maintaining the public infrastructure and, to some extent, on the safety and travelling times of other transport users. For the achievement of policy aims regarding transport and the environment, transport users have to make more allowance for these external costs when making their choice of transport. This can be achieved through internalization, meaning that individuals and businesses deciding on a transport operation are obliged, or compelled, to consider its external costs. In this way the external costs become internal to the transport user or carrier.

22. Across the European Union, overall external costs for 1991 were estimated at ECU 250 billion, 90 % of which were generated by road transport. These figures are presented in the European Union Green Paper Towards fair and efficient pricing in transport. The Green Paper is a key element in the European Union's strategy to promote more efficient transport systems by creating a market where prices and direct regulatory measures are designed to help make transport systems fairer, more balanced and more rational, with the aim of ensuring sustainable transport development.

23. Whilst one model has been set out by the Commission in its Green Paper Towards fair and efficient pricing in transport, no consensus has been reached on exactly what costs are to be included, how these costs are to be apportioned among the players involved and the impact the introduction of fair and efficient prices will have on transport users. However, the basic idea behind pricing is that all social costs and the costs of infrastructure should be included. In this way society as a whole is no longer burdened with the entire amount which by rights should be subject to the polluter-pays principle and covered by the user. 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 through cross-financing between different transport modes.

24. When it comes to the costs of infrastructure there are a number of problems in putting the principles of pricing into practice. The infrastructure of rail and waterway transport are highly subsidized, while the infrastructure costs of road transport are, external costs apart, broadly covered by fiscal revenue. There is a danger, therefore, that the practical application of the principles of pricing could actually lead to a switch from rail to road transport, contradicting the aim of the policy. It is essential that the principle of pricing is applied pragmatically and considered as a tool to delivering the sustainable transport policy set out in this report.

25. The internalization of external costs should also take account of regional differences. Specific regional circumstances, as in the case of sensitive regions, large conurbations and congested transport routes, require specific solutions. For example in remote areas, the distance between markets is longer and transport costs higher, therefore other solutions may be required. Hence local and regional authorities need to be involved during every stage of the policy-making process.

Recommendations

26. The Committee of the Regions recommends the following measures in order to internalize the external costs of travel and transport:

- the Green Paper deals exclusively with the external costs of road transport, and thus takes no account of other transport modes. The Committee of the Region therefore believes it is crucial to develop a similar strategy for other transport modes in order to ensure fair competition and an efficient use of the transport system as a whole;

- the principle of subsidiarity must be applied in particular to the implementation of measures at every level of decision-making. However, the strategy's guidelines and overall objectives must be determined at Community level, including the involvement of other tiers of government, with the aim of reaching consensus. National, regional and local tiers of decision-making must retain a certain degree of scope for action, particularly as regards the levying of taxes and charges in the transport sector.

Section E - Environmental concerns should be borne in mind at all stages from policy-making through to implementation

27. The Committee of the Regions stresses that EU transport policy must reconcile the requirement for greater mobility with the associated strain on the environment. A transport system of the future must contribute to economic and social development without depleting natural resources, destroying the environment or ruining human health. A transport system of the future must be economically, socially, culturally and ecologically sustainable, in line with Agenda 21 commitments.

28. In order to fulfil the requirements of a long-term environmentally sustainable transport sector, it is necessary that transport operations do not adversely affect human health and that emissions, noise, intrusion or other negative effects of transport operations do not cause serious damage to nature or the cultural heritage. The transport system shall promote conservation of natural resources and conserve the cultural heritage that is a legacy to successive generations. In order that future generations are able to enjoy fully Europe's natural and cultural assets, transport systems should be developed and designed in a way which ties in, interacts with, and builds on, the existing culture and environment.

29. Given the high level of damage which traffic inflicts on the environment, the Committee of the Regions has repeatedly pointed out that the principle of environmental impact set out in Article 130r of the EC Treaty must be seen as a sine qua non of any pan-European transport policy. The Committee is well aware of the need to square rising levels of traffic, and the growing need for mobility as Europe grows together both economically and socially, with the high standards required in environmental protection.

30. To achieve sustainable mobility it is necessary to give priority to environmentally sound transport modes and systems. The Committee of the Regions welcomes the efforts made within the social market economy which aim to achieve sustainable mobility and to meet the challenge of rising transport levels by, inter alia, switching from road transport to other, more environmentally sound transport modes. In the intermodal transport plan for land-based traffic, consideration is being given in particular to promoting the railways, combined transport and the use of internal waterways.

31. Nonetheless the Committee of the Regions is aware that for the foreseeable future and despite the environmental, congestion and safety problems it poses, road transport is set to remain the primary transport mode for both passengers and freight and not only for short journeys. Therefore it is necessary to develop measures to make road transport more environmentally sound by means of instruments such as road-pricing, taxation, regulation and the promotion of alternative, environmentally-friendly fuels. It also vital to coordinate land-use planning and transport planning so that the need to travel and to transport goods is reduced.

32. The efforts to reduce emissions and other environmental damage must cover all modes of transport. The international nature of shipping and air transport and the lack of international rules in this field make it difficult to take swift action, for example to curb the various environmental problems caused by shipping and reduce carbon dioxide emissions by ships and aeroplanes.

Recommendations

33. The Committee of the Regions recommends the following measures in order to make the transport system environmentally sustainable:

- taxation, road-pricing and regulation are instruments which, while capable of influencing transport mode choice, are unlikely to bring about any substantial change in behaviour as long as no real alternatives are available. Alternative transport modes and a mixture of measures are needed since choice is influenced by various different factors. Price is one factor, but will only become a critical element if alternatives also are available. The Committee of the Regions has therefore proposed that the European Commission initiate a 'benchmarking` scheme, setting standards for the expansion of public transport and alternative forms of transport (for example, car-sharing, pooling, flexible operating procedures in public transport). A benchmarking scheme should also include ways of reducing traffic in cities (for example, the management of parking space);

- the Committee of the Regions calls on regional and local policy makers to support measures that encourage people to use public transport, to cycle or to walk, wherever possible as a means of reducing air pollution, noise and congestion and improving public health. If public transport is to be more attractive, then quality and service issues must be given a much higher profile. Residential building and job creation must take greater account of availability of public transport and help improve environmental conditions and of the need to locate jobs and housing in the same area to reduce unnecessary travel.

Section F - Transport systems should be safe, secure and accessible to the population as a whole

34. The Committee of the Regions welcomes the importance attached to accessibility, affordability and safety/security by the Commission in the Common Transport Policy Action Programme 1995-2000 and in the Green Paper on the Citizens' Network. The Committee recognizes the need for action at the European level and was pleased to see the competencies of the EU with regard to transport safety extended in the Maastricht Treaty. Local and regional authorities, as the level of government closest to the citizen, and the one most closely involved with transport provision in our towns and cities, must be involved closely at all stages of policy development in order to ensure the solutions are practical and correspond to users needs.

35. The continuing growth of road traffic volumes, and of road haulage in particular, represent a major road safety hazard. An enlightened transport policy should encourage a more widespread use of public transport and a larger proportion of haulage to be carried by rail. For this to happen, public transport and alternatives to road haulage must be improved. However there is room for improvement in the levels of security on the roads, at sea and in the air. Ambitious public information and prevention campaigns to promote road safety should continue to be encouraged.

36. The Committee of the Regions supports the Commission in the view that it is not just price that plays a part in a customer's transport decision. Quality of service and attractiveness are also important considerations. The safety and security standards of transport systems often can act as a deciding factor in customer decisions on what mode of transport to employ. It is often the case, if the option is available, that people opt to travel by car or taxi, especially late at night, if they perceive there to be a danger in taking public transport. The car is perceived to be a safer mode of travel than public transport although this is not the case. Statistically, injuries caused by road accidents far outnumber any incident on public transport. Nevertheless every effort should be made to get this message across and to continue to improve the safety of travellers on public transport if people are to be persuaded to alter their travel habits. Furthermore the Committee of the Regions believes that work on transport safety should, as is the case with quality control in industry, be based on a 'zero defect` strategy. In other words, that a fundamental, long-term objective of transport policy should be to eliminate the occurrence of fatal traffic accidents. An approach of this kind would have a major impact on strategy and the specific measures chosen, and lead to improved results in the long term.

37. It is a basic right that transport systems should be accessible to the population as a whole. A significant part of the population is at one time or another affected by mobility difficulties. Particularly in the case of public transport, where accessibility can encourage many more people to use the system, the Committee believes that it can often be cost effective to make access easier for all.

38. The problem with accessibility is not only physical but also social and economic. Many people do not have access to a car and it is expensive to keep a private car. It is therefore in everybody's interest to promote public transport, not least out of fairness. The car is on the other hand, often an essential requirement to give people living in sparsely-populated areas access to work, education and services; transport policies must take this into account.

Recommendations

39. The Committee of the Regions recommends the following measures in order to improve the safety and accessibility of Europe's transport sector:

- the Committee of the Regions calls on the European Commission to propose concrete actions in its follow up work on the Citizens' Network Green Paper. In its opinion on the Green Paper, the Committee recognized the benefits that could ensue from promoting voluntary common standards as a means of promoting good practice. A blue flag type scheme, similar to the one used to identify clean beaches, would enable citizens to look to European benchmarks to judge the performance of transport systems. Such an initiative that took account of differing circumstances and starting points, could be extremely influential in promoting accessible transport systems which were safe and secure;

- The Committee of the Regions calls on the European Commission to propose concrete actions on safety, security and accessibility in its follow-up work on the citizen's network green paper;

- the European Union has supported a number of interesting and valuable research projects into ways to improve transport accessibility. The Committee asks that these initiatives continue to be funded, and that a greater effort is made to disseminate and demonstrate the results of such research in order to ensure the potential benefits are fully harnessed.

Section G - Transport systems must be efficient and there must be fair conditions of competition

40. The Common Transport Policy Action Programme 1995 2000 of the European Union consists of policies and initiatives in three key areas. One of them is improving the functioning of the single market in order to promote efficiency, choice and a user-friendly provision of transport services while safeguarding social standards.

41. However, the whole transport sector is still characterized by regulations and monopolies. It is not sufficiently market-led and customer-oriented. The Committee of the Regions has therefore stressed that properly-functioning competition is an important element in creating an efficient transport market, including local and regional public transport.

42. The Committee of the Regions has given backing to the following objectives of a pan-European transport policy, which are reflected in the final declaration of the pan-European transport conference in Helsinki 1997:

- extension of the single market in the transport sector to cover the whole of Europe, with a view to helping to harmonize legal and administrative arrangements and technical standards;

- promotion of competition and liberalization in transport markets in line with the principles of the social market economy;

- facilitating cross-border transport by adapting infrastructure, services and procedural arrangements.

43. The Committee of the Regions also backs the rail reforms proposed in the White Paper Revitalising the Community's Railways. It is very keen to see the Community pursue a modern, efficient rail policy geared more closely to the needs of users and a rapidly changing market. The Committee of the Regions believes that splitting operation and routing, debt relief for rail companies and interoperability and technical harmonization are fundamental in any strategy to improve European rail services.

44. The Committee would stress the need for rail links between Europe's economic regions to be structured more efficiently. The Committee particularly welcomes the establishment of haulage corridors (freight freeways), and hopes that the studies under way on corridors of this kind will prove that rail haulage can be run economically on the main trans-European routes. It is necessary to open the railways for all rail operators in the Member States on equal terms and to draw up uniform principles for pricing the use of rail routes. The Committee hopes that the Commission's good intentions will be realized thereby regenerating a mode of transport that is otherwise destined for rapid decline.

Recommendations

45. The Committee of the Regions recommends the following measures in order to create an efficient transport system with fair conditions of competition:

- 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. Competitive tendering in the transport market place can help to reduce the requirement for public subsidy, resulting in better value for money for the taxpayer. It is important that the single market should be fully implemented throughout the transport sector as a whole. The Commission should encourage exchanges of know-how and experience on these issues, particularly regarding the quality of passenger service.

- It is important that quality standards are guaranteed whilst, at the same time, the competitive environment of the transport sector is safeguarded. Franchised local bus services, whereby operators bid competitively on routes determined by the local or regional authority, is one such example. The local and regional authorities also determine the quality of service (perhaps with low floor buses or low-emission vehicles). The Commission must help ensure that increased competition does not adversely affect quality standards in the transport sector.

Section H - Democratic accountability is fundamental to the provision of public transport services

46. The provision of public transport is first and foremost a public service. A good standard of public transport is the key to a sustainable development process. Neglecting this service would inevitably have detrimental effects, especially in the areas of economic development, employment, the environment and social exclusion.

47. It is therefore essential that, wherever possible, control over public transport provision is held by democratically accountable bodies, either directly or by means of strong regulatory bodies. In this way the interests of the citizen will be predominant in policy making and the service provided will reflect the requirements of the population at large.

48. The Committee of the Regions nevertheless recognizes the positive input that can be contributed by the private sector. The private sector can bring important improvements in the areas of efficiency and customer service when operating transport systems. The knowledge and resources of the private sector have been shown to bring about major improvements in the levels of investment and service. The public sector can no longer shoulder the substantial costs of public transport alone. The public and private sectors, working in partnership, are able to bring about the investment and quality of service that many public transport systems have long needed.

Recommendations

49. The Committee of the Regions recommends the following measures in order to protect the public service role that transport provides:

- the Committee of the Regions calls on the Commission to encourage the democratic control and proper regulation of the transport sector;

- the COR welcomes the process of liberalization currently being implemented in the European transport sector. The process should bring about important benefits for the customer and for business. Greater liberalization should result in better value for money for customers through competition and access to larger markets for transport operators. The changes must be properly overseen however to ensure that levels of service do not suffer and that the larger operators do not unfairly influence the market at the expense of the consumer.

Section I - Transport systems should be fully integrated

50. It is central to the objective of sustainable transport that the system should be integrated. Full and effective integration should exist between modes of transport within regions and cities, thereby encouraging more people to use the most appropriate method of transport, easing congestion and pollution, assisting commerce and improving the quality of life in regions and cities.

51. Transport networks should be integrated within regions across the different modes, but also between European regions. Regional networks must be integrated with the main European and international transport systems. Important transport nodes, such as inland ports, seaports, airports, railway terminals and intermodal freight centres, should be fully integrated into the immediate surrounding area in order that the local community can benefit from economic development potential while efforts are made to reduce adverse environmental impact. Transport hubs are centres of employment and investment and it is important that the immediate population enjoy the benefits, and not just the drawbacks, of being situated adjacent to major transport nodes.

52. EU transport systems should be integrated with the transport systems of non-EU member countries. This is pivotal to the success of EU enlargement and to the economic and political stability of the countries surrounding the Union. This is particularly true for the countries of Central and Eastern Europe that are adapting to new democratic institutions and to more liberal trading conditions.

53. Transport systems should be integrated between EU Member States and between European regions in order to facilitate trade and tourism, increase mobility and the amount of personal contact between Europeans. Intra-EU transport integration is an important tool in the achievement of the major EU policy objectives - the creation of the single market, economic and social cohesion within the Community, spatial planning and so on.

54. Integration of transport systems between Member States presents issues of fair conditions of competition between, for example, hauliers and railway companies. A similar issue is especially integration with the lower wage countries in eastern Europe. Measures should be implemented to limit the social and economic damage that this could cause, and to ensure sufficient trans-national regulation to oversee the process.

55. In light of the above considerations, the Committee of the Regions emphasizes the imperative need for a holistic approach to an integrated transport policy.

56. An important component for the realization of an integrated transport system, is the promotion of combined transport. Combined transport involves making transport systems 'interoperable`. Thus, for example, freight containers used by lorries are compatible with those of railways, permitting the easier transfer of cargo from road to rail. Efficient, effective and inexpensive combined transport operations would encourage the long distance haulage of goods by rail/inland waterway/sea. Lorries would then only need to be used for local journeys between the destination and originating points at either end of the trip. Harbours, ports and maritime transport can be fully integrated and its potential fully realized through the greater use of combined transport.

Recommendations

57. The Committee of the Regions recommends the following measures in order to ensure the development of an integrated transport system:

- the Committee calls on the Commission to continue its work in promoting combined transport, enabling transport consumers to use the most environmentally, socially and economically appropriate mode. In this respect the Committee gives its total backing to initiatives such as the Pilot Actions for Combined Transport, or PACT programme. The Committee would welcome a greater financial commitment to the PACT programme. Furthermore it would like to see support for other combined transport projects, that are more local in focus and do not belong to international routes of European interest, but do have relevance for cities and regions Europe-wide;

- despite considerable difficulties surrounding combined transport, largely related to the need for additional time and effort in transferring cargo and passengers, and thus often a greater cost, the development of enhanced and more efficient intermodal centres (intermodal freight transport centres and harbours, urban transport terminals etc.) should be developed in order to reduce the need for additional road traffic infrastructure. The Committee feels it is important to create a European network of intermodal freight centres. The Committee also feels it crucial to look at all technical, organizational and financial options available in order to minimize the drawbacks of combined transport over single mode travel, particularly by road.

Section J - Further support should be given to new research and development initiatives, and to the widespread demonstration of technological and telematic solutions

58. The Committee of the Regions has on several occasions expressed the opinion that it is very important to promote new transport and information technologies that can contribute to the policy objectives of a sustainable transport policy. More research about these issues is necessary for improving transport quality and safety whilst at the same time enhancing the global competitiveness of European industry.

59. Intelligent transport systems can put existing infrastructure to better use and prevent excessive strain on the environment. The Committee of the Regions therefore supports the increased use of telematics and other state-of-the-art technologies, for example new techniques that can assist in cross-border interoperability of national transport networks.

60. The Committee of the Regions emphasizes that new technological developments are necessary in order to operate detailed and precise price differentiation systems. These systems are important tools in pursuing the objectives of internalising the external costs of transport.

Recommendations

61. The Committee of the Regions recommends the following measures in order to promote new transport and information technologies:

- the Committee of the Regions believes that, as part of the EU's research and development policy, more funding should be allocated to the development of new transport and information technologies, and that a greater effort should be made to disseminate and demonstrate the results of this research;

- the Committee welcomes the work being done to introduce telematics systems for traffic. The Committee shares the view that the Member States should give priority to the introduction of viable applications using mutually compatible equipment, which will improve safety and efficiency throughout Europe. A telematics-based traffic management system is one key factor in a comprehensive strategy for avoiding transport congestion. To reduce problems of goods delivery in city centres it is important to develop city logistic systems. The Commission should encourage exchanges of know-how and experience on these issues. The Commission should also support such pilot studies and projects.

CONCLUSION

62. This document brings together the previously adopted opinions to form one underpinning strategy which can be used as a reference for any future work by the Committee of the Regions in developing a sustainable transport policy. By adopting the ten guiding principles there will be a common minimum standard for sustainable transport across the Union. Key among these principles is the re-affirmation of the role, following the Amsterdam Treaty, of regional and local authorities as the layer of government closest to the citizen and the need for them to be consulted at all stages of the development of transport policy.

Brussels, 12 March 1998.

The Chairman of the Committee of the Regions

Manfred DAMMEYER

APPENDIX to the opinion of the Committee of the Regions

Series of Seminars on the Contribution of the European Regions and Municipalities to an integrated, effective and environmentally-friendly transport system in Europe

1. Background

Against the background of efforts to secure a durable, environmentally-friendly form of mobility for the next century, the EU Commission has adopted two green papers of fundamental importance. The first green paper is entitled 'The Citizens Network` and demonstrates two ways of making better use of the potential for public transport in Europe.

In the second Green Paper on fair and efficient prices the Commission proposes policy measures designed to internalize these external costs.

Both green papers emphasize the role of local and regional bodies in formulating future transport policy designed to promote public transport systems and to introduce fair and efficient pricing.

Given the political relevance of both green papers, there seemed to be a case for an in-depth examination of both topics going beyond the adoption of opinions and involving a series of seminars.

The issue for debate was to be the possible future contribution of regional and local bodies to achieving an integrated, effective and environmentally-friendly transport system in Europe.

2. Basis

The series had the following basis.

Firstly, the relevant aspects, from the angle of regional and local bodies, were subjected to in-depth scrutiny in the form of seminars on topics such as:

- the specific problems of promoting public transport in urban, rural, sparsely populated and ecologically sensitive areas in the context of inter-regional and cross-border cooperation;

- the future role of the regions, cities and municipalities in regard to fair and efficient pricing;

- the interplay of local, regional, national and European authorities in fulfilling future tasks.

Secondly, the series was designed to develop an overall regional policy approach which is in keeping with a European transport policy which looks to the future.

In this connection Mr Färm and Mr Harris drew up an own-initiative opinion aimed at developing this overall COR strategy and incorporating the seminars' findings. Moreover, Dr Weingartner proposed the adoption of a 'Charter of the Regions` on transport policy, which both he and Mr Zaplana drafted and which was also discussed at the final conference in London.

The European Commission provided not only organizational, but also considerable financial support to these seminars.

3. Events

- Official opening of the series in Valencia (Spain) 10 April 1997

At the invitation of Mr Zaplana, the series was officially opened at Commission 3's meeting of 10 April 1997 in Valencia.

- 1st seminar: 'Transport policy for sensitive areas` (Innsbruck, Austria) 5 and 6 May 1997

The first seminar addressed the specific problems of 'sensitive areas` and in that context it investigated ecological and economic aspects of a future transport policy. The invitation was extended by regional president Dr Weingartner.

- 2nd seminar: 'Regional transport policies in the Baltic Sea area` (Norrköping, Sweden) 26 and 27 June 1997

The second seminar was held in Norrköping at the invitation of Mr Färm and made an in-depth study of transport problems in the Baltic area. Spread over two days, this event had a pan-European dimension which also made it of interest to participants from outside the EU.

- 3rd seminar: 'Cross-border and inter-regional cooperation` (Bonn, Germany) 9 and 10 October 1997

The debate focused on promotion of cross-border cooperation. Consideration of a large number of projects were designed to clarify how transport problems can be solved via new forms of European cooperation. The event was held at the invitation of North Rhine-Westphalia's Minister for Europe, Prof. Dammeyer.

- 4th seminar: 'Combined transport in South-East Europe` (Athens, Greece) 23 and 24 October 1997

The two-day event in Athens was primarily intended to examine the role of combined transport in solving European transport problems. In particular, it focused on transport links between Greece and the neighbouring states of south-east Europe. The seminar was held at the invitation of Mr Kouloumbis.

- 5th seminar and final conference: 'City Mobility - A sustainable transport strategy for local and regional authorities and the EU` (London, United Kingdom) 1 December 1997

The final event, held in London at the invitation of Mr Toby Harris, was geared first and foremost to urban transport problems, and a discussion of the Green Paper on the Citizens' Network, whereas the other seminars have concentrated on specific regional problems. The afternoon was devoted to the final conference of the entire series. The own-initiative opinion and the above-mentioned resolution were presented to the public in the presence of Commissioner Kinnock.

The conclusions of each of the seminars are appended.

First Seminar at the invitation of the Land Tirol (Austria): 'Transport policy for sensitive areas - environmental and economic aspects` - Innsbruck, 5 and 6 May 1997 Conclusions

1. The European Commission Green Paper on fair and efficient pricing in transport () and the Communication on the common transport policy - action programme 1995-2000 () make an excellent starting-point for an up-to-date and long-term transport policy. The regions and municipalities of Europe are particularly interested in an environmentally-friendly, sustainable transport policy as they are directly affected by the way that traffic flows in Europe are organized.

2. Maintaining a high standard of living, which is closely linked to a smoothly operating economy, requires a relatively high level of transport services. These transport services can, however, be provided in different ways. Therefore steps must be taken to ensure that the best means of transport are available for each particular operation and that transport services can be provided at competitive rates. The regions and municipalities directly affected demand that they be involved at an early stage and have a greater say in decisions about future transport measures and new transport infrastructures in Europe.

3. It is proving to be very difficult to put into practice the frequently mentioned principle of charging for real costs. The new draft Community directive on charging is at least trying to get closer to this objective. Charging for the real cost of transport can in the medium term, however, only be achieved through comprehensive inclusion of external costs. For this it is necessary to establish external costs precisely. The local and regional authorities call on the institutions responsible to establish the basis for such calculations immediately.

4. Within the European Union there are considerable differences between the environmental resilience of different areas. The Alps, for example, are a highly sensitive area. The regions and municipalities of Europe point out that their different physical circumstances have hitherto not been sufficiently taken into account. Future traffic trends in sensitive areas must therefore be optimized in accordance with both economic and environmental criteria. The local and regional representatives on the Committee of the Regions are determined to be actively involved in defining the concept of a sensitive area and in framing a new European transport policy.

Second seminar at the invitation of Norrköping (East Sweden): 'Transport problems in the Baltic Sea area` - Norrköping, 26 and 27 June 1997 Conclusions

1. Europe's regions and local authorities support the preparations now in progress for an enlargement of the European Union to include eastern European countries. It is important in this context to strengthen trade, cultural exchanges and man-to-man contacts between the applicant countries and the Union. Regional and local authorities have an important role in this connection.

2. Trade between the EU and the countries of eastern Europe is undergoing rapid expansion. A study () of developments in the Baltic Sea region indicate a very rapid increase in the next 15 years. Increased trade between the countries and regions bordering the Baltic Sea will be a very significant factor for economic development, employment and prosperity in the regions of Europe, whether inside or outside the EU. It will also contribute to closer cultural ties between nations and regions, and consequently to improving the quality of life and strengthening democracy and peace. By engaging in close cooperation with the countries in the Baltic Sea region, the regions and local authorities will effectively contribute to an acceleration of the integration process.

3. Increased trade and enlargement of the EU make it necessary to improve the infrastructure and transport systems. Efficient transport systems, both in the applicant countries and between these countries and the EU, are essential as a means of raising the standard of living. Substantial improvements in the existing infrastructure, and also administrative, organizational and capacity-enhancing measures are necessary in order, among other things, to reduce waiting times at frontier crossings and airports and in ports. Transport systems must be improved in a manner that is consistent with a sustainable development of the environment and with safety requirements.

4. Many problems can be solved by regional and local cooperation. Regions and local authorities are also engaged in extensive cooperation on planning, transport, environment and other areas. But a concerted European effort is also necessary in order to develop transport systems in accordance with sound environmental criteria. The development of transport corridors (Crete corridors) is only a first step. Expansion of transport systems must not, however, be confined to road transport. For environmental reasons there must be a shift towards sea and rail transport. It is also necessary to take into account the need to link transport corridors with regional and local transport systems and to improve the latter.

5. To enhance the potential of sea transport, ports must be improved. They must become efficient transhipment terminals and important elements of intermodal freight centres based on modern information technology. Port infrastructures must also be expanded and improved. The development and operation of intermodal freight centres and ports is primarily a matter for the transport market and the local authorities, which are responsible for spatial planning and own land and ports. However, it may be necessary for the Union and its members to contribute to the financing of port infrastructure (road and rail facilities), pilot studies and projects and of research and development of new technology.

6. The need to develop sea transport and integrate it with other types of transport does not mean that it is enough to build north-south transport corridors in the Baltic states. The Community must also provide development aid for east-west transport routes. Ferry services over the Baltic Sea must also be regarded as a part of the infrastructure. The nations and regions should assume joint responsibility for taking the necessary measures to assure safe ferry services over the Baltic Sea. Together with port owners, national authorities and the EU, the shipping industry must assume responsibility for improving the environmental performance of sea transport as regards exhaust emissions, the disposal of oil residues and other waste etc. This is especially important in a sensitive inland sea like the Baltic.

7. The low quality of the infrastructure and transport systems is an example of the obstacles to a rapid integration process that exist in the Baltic Sea region. But there are also many other obstacles to the process of enlarging the European Union to include countries in the region. To identify these obstacles and find ways and means of eliminating them the Commission should, together with the nations and regions in this area, prepare a White Paper on development of the Baltic Sea region with a view to facilitating the integration process and making the Baltic Sea to all intents and purposes an inland sea in the Union.

Third seminar at the invitation of the Land of North Rhine-Westphalia: 'Cross-border and inter-regional cooperation` - Bonn, 9 and 10 October 1997 Conclusions

1. The meeting showed that an increase in cross-border and inter-regional cooperation is needed - on the one hand because the borders within Europe are continuing to decline in importance, and on the other because the European regions are together gaining in political importance. Those regions which are involved in transport policy decisions have already emerged as actors in their own right.

2. The transport policy initiatives and projects presented confirm that new transport policy plans can be implemented successfully even in difficult budgetary circumstances, as long as these initiatives come from the grass roots and the various actors work together to implement them.

3. It is however also clear that a considerable effort of persuasion is still needed in order to explain to citizens the connections between Europe-wide transport planning on the one hand and local and regional transport flows on the other.

4. Given the growing importance of a European transport policy, care should be taken to ensure that enlargement of the European Union does not push the further development of transport policy within Europe into the background.

5. In the difficult process of balancing the transport policy interests of central regions against the justified concerns of peripheral regions, the main thing is to involve in the process the regions concerned.

6. European transport policy requires a constant changing of perspective. This can apply either to the level between the European Union and the territorial authorities, or to future cooperation between the Committee of the Regions and the European Parliament.

7. 'Borders are losing their importance, but still have their drawbacks`. The European Union should therefore continue to promote cross-border and inter-regional projects, as is done for example through the Community initiative Interreg.

Fourth seminar at the invitation of Athens (Greece): 'Combined transport in south-east Europe` - Athens, 23 and 24 October 1997 Conclusions

1. There are significant prospects for the development of combined transport in south-eastern Europe. This region, through its structure and its geographical position, is mainly suited to the development of not only land transport - as in western Europe - but also maritime transport.

2. Combined goods transport in south-eastern Europe shows substantial flows from and to western Europe, but also an increase in traffic between the states of south-eastern Europe in recent years.

3. Combined transport must constitute the backbone of goods transport, making the most of existing networks and with the help of appropriate methods of commercial follow-up. The latter must be done in cooperation with the relevant private sector actors (carriers, chambers of commerce etc.) and through suitable agreements with the railway organizations of all states in the region whose networks need to be improved as a matter of priority.

4. Combined goods transport by sea must include suitable ports in south-eastern Europe, so that through more effective use of existing installations and appropriate improvement of them (particularly installations for reception, sorting and storage of goods, and related equipment) they can be transformed into important combined transport centres;

5. The development of combined goods transport must be looked at in terms of its effects on the region concerned. These are mainly effects on economic growth, but also on the environment, while safety is also an important factor. The role of the regions in the wider region of south-eastern Europe is vital in these matters, given that combined transport installations are at the development stage in the region as a whole.

6. Special attention will also need to be paid to specific subjects which prompted the holding of the seminar, but which have not yet been examined in depth, such as:

- the form and degree of cooperation on the part of all the actors involved, but also off users' groups, on combined transport questions under south-eastern European conditions;

- improvement of the services on offer, and the private sector's role in this

- the need to study combined passenger transport in south-eastern Europe.

Fifth seminar at the invitation of the city of London (United Kingdom): 'City Mobility: a sustainable transport strategy for regional and local authorities and the EU` - London, 1 December 1997 Conclusions

1. The final conference in the Committee of the Regions seminar series on European transport issues - City Mobility: a sustainable transport strategy for regional and local authorities and the EU - was held at the Guildhall in London on 1 December 1997. The conference was hosted by the Association of London Government (ALG), the organisation representing the 33 local authorities in London in the absence of a strategic authority in London.

2. The objective of the ALG/COR conference was to focus on the transport problems of urban areas and to set out possible solutions, drawing on the experience and expertise of several European cities. The event was organised to launch the Committee of the Regions transport strategy for local and regional authorities and the EU. Cllr Toby Harris, ALG Chair, is joint rapporteur for the report, together with Mr Göran Färm, Vice Chair of Norrköping City Executive Board, East Sweden. The report brings together the opinions previously adopted by the COR into one comprehensive policy document to conclude the COR's first mandate. The conference also represented the conclusion of the COR seminar series.

3. The conference was chaired by Cllr Sally Powell, vice chair of the ALG and COR member, and opened with the launch of the COR transport strategy of Cllr Harris and Mr Färm. It is hoped that the EU institutions, national governments and local and regional authorities will take account of these ten principles when developing their transport policies. An important element of the report is that the various tiers of government need to collaborate when developing and implementing sustainable transport policies.

4. Keynote speakers at the conference were European Commissioner Neil Kinnock and the Rt. Hon. Dr Gavin Strang MP, as well as high-profile politicians from the UK and across the EU. Commissioner Kinnock welcomed the COR transport strategy and the constructive role that the COR plays in the development of EU policies. He went on to speak about the European Commission initiatives that are currently taking place in the area of urban transport. In particular Mr Kinnock outlined the new Commission Communication on transport policy for urban areas. He also listed some of the key transport-related initiatives, such as an Internet-based information service that will disseminate good practice and the research project QUATTRO that will produce an inventory of criteria and methodologies for the quality management of transport systems.

5. The Secretary of State for Transport, the Rt. Hon. Dr Gavin Strang MP, spoke about the government's plans for an integrated transport policy for the capital. The minister discussed proposals for a transport authority for London which would be accountable to a directly elected mayor and assembly for London. He went on to outline one of the measures being considered to provide London with a sustainable transport system - a tax on non-residential car parking spaces that would raise finance to be re-invested in London's public transport system.

6. Representatives of the main opposition parties were also present. Mr Richard Ottaway MP, the Conservative shadow minister for transport in London, and Mr Tom Brake MP, the Liberal Democrat spokesperson on transport and member of LB Sutton responded to the speech of the secretary of state.

7. The afternoon session focused on case studies from across the European Union. Cllr Lord Peter Bowness, LB Croydon and COR member, presented his COR opinion paper on the European Commission's Citizens' Network Green Paper. This set the scene for politicians and officials from across the EU to provide concrete examples of a 'Citizens` Network' in action. The deputy mayor of Copenhagen, Bente Frost, spoke about the 'carrots and sticks` used in Copenhagen to encourage sustainable travel; Dr Ural Kalendar, transport director in Berlin, explained how Berlin's transport system has been integrated post-unification; Mr Bernard Harty from the corporation of London, identified how the private sector can be involved in financing public transport, and the mayor of Strasbourg spoke about the new tram system in Strasbourg and the importance of accessibility in transport systems.

8. The conference concluded with the launch of the COR Transport Charter by Mr Zaplana, president of Valencia in Spain and Mr Weingartner, president of the Tyrol region in Austria.

9. The conference was well attended with approximately 300 delegates from across the European Union. The event attracted a considerable amount of press attention from European, national, London and trade publications.

10. The conference was a great success but not an end in itself. The good work achieved in London and at the previous seminars is ongoing. In particular the opinion paper of Mr Toby Harris and Mr Göran Färm was formally adopted by the Committee of the Regions at its plenary session in March and will act as an important tool in informing the different European institutions of the transport policy position of local and regional authorities across Europe.

() COM(95) 691 final.

() COM(95) 302 final.

() 'Trade and Modal Change in the Baltic Region. Scenarios to 2015`, presented at the seminar in Norrköping by Pontus Åberg and Ulf Strömquist (Transnord TFK Temaplan EWIV).