20.1.92 OfficialJournaloftheEuropeanCommunities NoC14/31
OpinionontheproposalforaCouncilRegulation (EEC)onthetype-approvaloftwoor
three-wheelmotorvehicles
(92/C14/13)
On26April1991theCouncildecidedtoconsulttheEconomicandSocialCommittee,
underArticle100AoftheTreatyestablishingtheEuropeanEconomicCommunity,onthe
abovementioned proposal.
TheSectionforIndustry,Commerce,CraftsandServices,whichwasresponsibleforpreparing
theCommittee'sworkonthesubject,adopteditsOpinionon10July1991.TheRapporteur
wasMrBagliano.
Atits290thplenarysession(meetingof31October1991)theEconomicandSocialCommittee
adoptedthefollowingOpinionby57votesto30,with3abstentions .
1.Introduction components,togetherwiththetechnicalspecifications
neededtomeetsafetyandenvironmental standards.
2.2.ThisproposalforaframeworkRegulationwill
befollowedby24specificRegulationsconcerningsafety
(brakes,lighting,rear-viewmirrors,etc.)andenviron­
mentalstandards(noise,emissions).
2.3.TheRegulationexpresslyexcludesvehicles
alreadyincirculationonthedateofitsentryintoforce
[Art.1(1)].1.1.TheCommitteeagreeswiththepurposeofthe
proposal,whichistoharmonizethetype-approvalrules
governingthemanufactureofmopeds,motorcyclesand
motorizedtricycles.
1.2.Harmonization willmeettheneedsandexpec­
tationsoftheindustryandbeofundeniablebenefitto
consumersandusers.
1.3.Intherun-upto1992theharmonization ofthe
technicalregulationsinforceintheMemberStateswill
puttheindustryinabetterpositiontocompetewith
Japaneseindustry,whichenjoysallthebenefitsofa
singlestandardizedmarketwithfewmanufacturers and
ahighlevelofproductandcomponentstandardization .
EventhoughJapaneseindustryleadstheworldinthe
250ccplusclass,oneshouldalsonotunderestimatethe
dangerofJapanesecompetitionintheCommunityin
the50ccandaboveclass,whereitalreadysupplies
70%ofthemarket.3.Comments
3.1.TheCommiteeagreesthatMemberStates
shouldbeabletointroduceasecondcategoryof
mopeds.Italsothinksthatthe'motor-assisted bicycle'
categorytobefoundinanumberofMemberStates
mustbeabletobemaintainedsincethiscategorydoes
notdifferappreciablyfrombicyclesandcatersfora
growingneed,especiallyamongstolderconsumers.
3.2.Thelinkbetweenlowspeedsandsafety,which
theCommissionseemstobehintingatinmaking
provisionforareviewafterthreeyears(whichistobe
submittedtotheCouncilandtheEuropeanParliament
butalso—itistobehoped—totheEconomicandSocial
Committee),cannotberegardedassignificant.Statistics
donotindicateanyappreciabledifferencesinthenum­
bersofdeathsandinjuriesbetweencountrieswithonly
onecategoryandthosewheretherearetwo(oreven
threeasinthecaseofGermany).
3.3.Inaddition,sinceittakesalongtimetocollect
anddisseminatesuchstatistics,itisunclearonwhat
basistheCommission willbeabletoconductitsreview
afterthreeyears.
3.3.1.Furthermore ,sothatCommuntiyharmoniza­
tion(welcomethoughitis)doesnothaveadevastating
effectonsomeMemberStates'industries,theCom­
mitteeconsidersthatautomatictransmissions and1.4.TheCommunity'sindustry(manufacturers and
assemblyplants)consistsofabout50unitsemploying
aworkforceofjustunder200000(eitherdirectlyor
indirectly).
1.5.Mopedswithanenginecapacityoflessthan
50ccaccountfor70%oftheCommunitymarket.
Production,whichtotalssome1,5millionvehicles,is
mainlyconcentratedinthesouthoftheCommunity
(40%inItaly).
2.Contentoftheproposal
2.1.Theproposalconcernstheadministrative for­
malitiesforthetypeapprovalofbothvehiclesand

NoC14/32 OfficialJournaloftheEuropeanCommunities 20.1.92
weightlimitsmustbeaddedtothederogationsfor
mopedsduringthetransitionalperiodincludedin
Article14(4)(a).
3.3.2.ThederogationsinArticle14shouldalsocater
properlyforsmallproductionruns,forspecialistbuild­
ersandforthe'personalizing'ofmachinesbyenthusi­
asts.
3.4.Onthequestionoftheplanned24Regulations,
theCommitteerecommends thattherulesand
implementingprovisionsbereducedtoanabsolute
minimum,bearinginmindthatthemajorityofMember
Statesapplylessstringentprovisions.
3.5.Withregardtotheenvironmental aspects(pol­
lutionandnoise),theCommittee,whilebeingcon­
vincedthatprogressmustbemade,recommendsastep­by-stepapproach.Thisshouldtakeaccountofthetime
neededbytheindustrytoadjust,fortheindustryis
alreadycommittedtocuttingcostsandimproving
efficiencyinordertowithstandJapanesecompetition .
4.Conclusions
TheCommitteeendorsestheproposal'spurposeand
regulatoryprovisionsthoughthechecksandspecifi­
cations,whicharetobemorenumerousandmore
complicatedthanhitherto,willrequiretheindustry
makingaspecialefforttoadapt,intheinterestofboth
individualusersandthepublicingeneral.
Thiseffortwillbeoffset,toagreaterorlesserextent,
bythesimplificationofthetype-approvalprocedures,
anditiswiththisinmindthattheCommitteegivesits
encouragement totheCommission .
DoneatBrussels,31October1991.
TheChairman
oftheEconomicandSocialCommittee
FrancoisSTAEDELIN
APPENDIX
totheOpinionoftheEconomicandSocialCommittee
Thefollowingamendments ,whichreceivedatleastonequarterofthevotescast,wererejectedinthecourse
ofthediscussion .
Page3,point3
ReplaceCorrigendum (3.1)bythefollowing(3.1to3.8):
'3.Comments
3.1.TheCommissionacknowledgesthat'thegreatestproblemtobesolvedisthatofdefiningmopeds'.
Thereferencecriteriaarecylindercapacityandmaximumdesignspeed.
Article1(2)oftheproposallaysdownacylindercapacitynotexceeding50cm3andamaximumdesignspeed
ofnotmorethan45km/hformopeds.
SincemostoftheMemberStateshaveadoptedamaximumdesignspeedofbetween40and50km/h,this
definitionisentirelyacceptable.
3.2.AproblemariseswithArticle14(3)which'allows'MemberStatestomaintainorintroduceasecond
mopedcategoryforatransitionalperiodsubjecttoreview.
3.3.TheCommitteerealizesthatthisprovisionwasintroducedtotakeaccountoftheexistingsituation
incertainMemberStates.
Thiscategoryaccountsfor7%oftheCommunitymarket.
3.4.Itisgenerallyconsideredcontradictorytopermitexceptionsinharmonization legislation,unlessthe
derogationsandexemptionsinquestionaretemporaryandthereforesubjecttoclear-cutdeadlines.

20.1.92 OfficialJournaloftheEuropeanCommunities NoC14/33
Inprinciple,harmonization involvesadjustmentcostsforall,ornearlyall,theMemberStatesandtheburden
whichtheseimpose(onthemostdisadvantaged country)shallbetakenintoaccountinabroader,i.e.
'Community',context.
3.5.Theretentionorintroductionofasecond,lowercategory(sub-category )hasimplicationsfortaxation
(exemptionorreduction),insurance,administrative requirements (licencenotobligatory),registration (age
limits),andsafety(crash-helmetcompulsory/optional).
Thus,a'sub-category'enjoyingcertainprivilegesoradvantageswithregardtouse,canartificiallydistort
themarkettothedetrimentofthehighercategorywhichissubjecttostrictrulesdesignedtoprotectthe
consumer,thecommunityand,even,thegeneralinterest.
3.6.Theconsequencesforsupplyarethereforenolessimportantthantheeffectsondemand.
Theindustryisopposedtotheintroductionofasub-categorywhichwouldaffectthedesignandmanufacturing
processbecauseofthedifferencesbetweenthefinishedproductsandtheircomponents (e.g.carburettors,
exhausts,cylinders).
Competitiveness ishighlydependentonthedegreeofstandardization anduniformity,theresultanteconomies
ofscaleandthetechnologicalsynergyoftheproductionprocess.
Bycontrast,productandmodeldifferentiation increasesbothproductionandafter-sales (spare-parts)
management costs.
3.7.Thus,thesplittingofthemarketwouldentailadivisionofproduction,whichisalreadyhighlysub­
dividedbycomparisonwiththeJapaneseindustrywithitssinglecategoryandlarge,homogeneousinternal
market.
3.8.Moreover,whilstprovisionforasecond,temporarycategorytotakeaccountoftheexistingsituation
inthreeMemberStatesmaybeunderstandable ,theproposedharmonization objectivesmaketheintroduction
ofsuchacategory(wherenonealreadyexists)illogical,inconsistentandunacceptable .
Alowercategorywouldalwayslackadequateinfrastructural back-up(cycle-tracks )andwouldtherefore
meanthatvehicleswithverydifferentmaximumdesignspeedswouldusethesameroads.'
Reasons
ThisamendmentreinstatestheoriginalOpinion;the8points—allcancelledbytheamendmentadoptedby
theSection—representarealisticstatementoftheproblembasedonincontrovertible productionand
employmentdata.
Thedifficultywiththedefinitionof'mopeds'isthenumberofcategories.Atthemomentthereare:
—asinglecategory(cylindercapacitynotexceeding50cm3andamaximumdesignspeedofnotmorethan
45km/h)innineMemberStates,includingFrance,ItalyandSpain(Commission'spreference,thoughit
willacceptasecond,temporarycategory),
—twocategories(thelowercoveringmopedswithamaximumdesignspeedof25km/h)inBelgiumand
Holland),
—threecategoriesinGermany.
Asinglecategoryispreferredonindustrial(economiesofscale,designcosts,standardization ofspareparts
andcomponents )andcommercialgrounds,i.e.forcompetitivityreasons.
InGermany,wheretherearethreecategories,mopedsalesdeclinedfrom390000in1980to53000in1989.
Thetotalcurrent(1990)salesfigureof1350000includesonly95000low-performance models(20-25­
30km/h)andtwo-thirdsofthesewereproduced'reluctantly'bythe'Mediterranean 'industry(asthe
Commissionitselfcallsit).Thismeansthatmopedshavingamaximumdesignspeedofbetween40and50
km/haccountfor93%ofthemarket.
Thereasonsfortheintroductionofsub-categories arenolessimportant.Forexample,themarketshrankby
between30%and60%intheyearimmediatelyfollowingthecompulsoryintroductionofcrash-helmets .
Thelessstringentrequirementsinmattersofsafety(crash-helmetoptional)registrationandinsurance(licence
andinsuranceoptional)andotheradvantages (taxation)aretheonlyreasonsforthe(limited)demandfor
low-speedmopeds(7%ofthetotal)whichexistsincertainareas.
Theconsumer'strueinterestsdonotlieinthisdirection.

NoC14/34 OfficialJournaloftheEuropeanCommunities 20.1.92
Nevertheless ,theoriginalOpinion—andthisamendmentwhichreinstatesit—takeaccount(3.8)ofthe
existingsituationincertainMemberStatesanddonotthereforeopposetheCommission'sproposedtemporary
solution.
(TheCommissioncouldprovideforcertainexceptionsand/orexemptionsinrespectofparticularmopedsin
oneoftheforthcoming24specificRegulations .Whilstitprovedimpossibletoreachafaircompromisealong
theselinesintheSection,itistobehopedthatthiswilleventuallybeachieved,asmostoftheStudyGroup
wishedandcontinuetowish.)
Ontheotherhand,itseemsentirelylogicaltoruleouttheintroductionofasub-category (Art.14)where
noneexistsatpresent.Thecomingyearswillbecharacterized byincreasinginternalandinternational
competitionand,fromthecoststandpoint,competitivitycanbeachievedonlybyensuringadequate
productionrunsandahomogeneousmarket.TheseconditionsarealreadyamplysatisfiedinJapan.
Fragmentation oftheEuropeanmarketwouldweakentheCommunityindustrywhichcurrentlyemploys
some190000in50productionandassemblyplants.
TheCommission'sperfectlyproperattemptstoachieveharmonization mustnotruncountertothegeneral
economicandsocialinterestsoftheCommunity .
Voting
For:37,against:61,abstentions :5.
Thefollowingmembers,whowerepresentorrepresented,supportedtheamendment .
Mr/Mrs:Abejon,Andrade,Arena,Bagliano,Beltrami,BentoGonçalves,Bernabei,VascoCai,Cassina,
CavaleiroBrandão,Colombo,Decaillon,D'Elia,ForgasiCabrera,Frandi,Freeman,Frerichs,Gaffron,
Giatras,Giesecke,GomezMartinez,Gottero,Liverani,Low,MachadovonTschusi,MargalefMasia,
Pellarini,Petersen,Robinson,Romoli,Sala,SantillanCabeza,Silva,Solari,VelascoMancebo,Vidal,Zufiaur
Narvaiza .
Thefollowingmembers,whowerepresentorrepresented,opposedtheamendment :
Mr/Mrs/Miss:Barrow,Beale,Berns,Bleser,Boisserée,Bredima-Savopoulou ,Chevalier,Christie,Connellan,
vanDam,Delorozoy,DeTavernier,vanDijk,Donck,Douvis,Draijer,Dunkel,Elstner,Etty,Eulen,Gardner,
Ghigonis,Giacomelli,Groben,Hagen,Hilkens,HovgaardJakobsen,Jaschick,deKnegt,Lappas,Larsen,
Little,Lustenhouwer ,Maddocks,MayayoBello,McGarry,Meyer-Horn ,Mobbs,Moreland,Morris,Muñiz
Guardado,Nielsen,B.,Nielsen,P.,Nierhaus,Noordwal,OvideEtienne,Pardon,Pavlopoulos ,Petropolous,
Pricolo,QuevedoRojo,Sauwens,Schmidt,Schnieders,vonSchwerin,Smith,Stokkers,Tukker,Wagenmans,
Whitworth,Wick.
Thefollowingmembers,whowerepresentorrepresented,abstained:
Messrs:Black,Kazazis,Laur,Pearson,Tixier.
Page3,point3
Addthefollowingtopoint3:
'Moreover,inthecaseoflow-performance mopeds—includingthoseconsistingofanormalbicycleandan
auxiliarymotor—theCommitteerecommendsthat,subjecttoensuringaminimumlevelofsafety,the
stringencyoftheprovisionsbeadaptedandtemperedtotakeaccountofthetechnicalcharacteristicsofthis
typeofvehicle.'
Reasons
ShouldtheoriginalOpinionbereadopted—astheStudyGrouphasproposedtotheIndustrySection—then
thisamendmentisintendedtotakeaccountofthecommentsmadebysomemembers,albeitwithoutdepriving
theOpinionofitswell-plannedandreasonedstructure.
TheOpinionwouldthusbecomemorecomplete,whileretainingareasonablebalanceandtheCommittee's
traditionalobjectivity .
Voting
For:31,against:36,abstentions :17.