COMMISSION OF THE EUROPEAN COMMUNITIES 
C0M(93) 246 final 
Brussels, 9 June 1993 
? .*.'•. .'•• COMMUNICATION FROM THE COMMISSION TO THE COUNCIL 
for an action programme on road safety 
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TABLE OF CONTENTS 
1. Introduction 
1.1 Current situation 
1.2 Background 
1.3 Guiding principles and purpose of this communication 
2. Current road safety legislation 
2.1 Vehicles, technical aspects 
2.2 Driver behaviour 
2.3 Other areas of transport policy with an impact on road safety 
3. Current legislative proposals and other ongoing activities and research 
3.1 Current legislative proposals 
3.2 Other ongoing activities 
3.3 Road safety under the research programmes 
4. The Road Safety Programme 
4.1 Gu i de Ii nes 
4.2 Priority fields for action and new initiatives 
5. Implementing the programme 
6. Conclusion 
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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL 
for an action programme on road safety 
1. INTRODUCTION 
1.1 The current situation 
Of all modes of transport, it is our roads which are responsible for 
the most accidents. Statistics speak volumes about the extent of the 
road safety problem. 
Each year, road accidents are the cause of about 50 000 deaths and 
more than a million and a half injuries on the Community's roads. 
Since the Treaty of Rome was signed, almost two million people have 
been killed in the twelve Member States and more than 40 million 
injured. 
Some experts put the economic cost of these accidents to the 
Community at about ECU 70 thousand million per year, this being an 
average of estimates which vary from ECU 45 to ECU 90 thousand 
million according to the method used. 
But the dangers of our roads are not an inevitable fact of life. 
Although it is unrealistic to expect to eliminate the problem once 
and for all, the measures taken by several Member States have proved 
to be effective in producing a significant fall in the number of 
accidents and victims. 
Transport safety, and especially road safety, is therefore a concern 
of the highest order for ail those responsible for transport policy 
in the Community. 
On this point, the White Paper on "the Future Development of the 
Common Transport Policy" states that the evolution that is bound to 
follow completion of the internal market only serves to underline 
even more the need for appropriate Community action on safety.1 It 
goes on to say that it is for this reason, no doubt, that the Union 
Treaty contains a modification of Article 75 which makes clear that 
the Common Transport Policy should include measures to improve 
transport safety. 
1 C0M(92)494 final, adopted by the Commission on 2 December 1992. 
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The White Paper therefore examines road safety in the context of a 
single transport market, analyses the socioeconomic costs to the 
community, attests the European Community's competence in this area 
and sets out an integrated approach to the problem justified by the 
principle of subsidiarity and based on qualitative targets. 
1.2 Background 
Prior to 1984, road safety was only taken into account at Community 
level where the rules on compet it ion and on the free movement of 
persons and goods might have been undermined by a failure to take 
action. It was seen only as a by-product of common policies in 
various sectors: technical rules for vehicles, social conditions of 
professional transport, driving licences, etc. 
In 1984, the Council adopted a resolution in which it stated the need 
for Community action in this field.1 To this end, it called on the 
Commission to submit proposals and declared 1986 European Road Safety 
Year. European Road Safety Year served as a reference point and a 
launch-pad for the establishment of a programme of measures to 
improve road safety in the Community, a programme which also included 
the objectives set out by the European Parliament (inter alia. the 
Seefeld Report of 15 June 1987). 
In 1989, in its communication "Road Safety: a priority for the 
Community", the Commission provided an overview of the Community's 
achievements since 1986 and announced the presentation to the Council 
of a package of legislative measures.2 
Most of the measures proposed since 1986 have been adopted (see 
chapter 2) except for those on speed limits and on fixing a maximum 
permitted blood alcohol concentration which have been before the 
Council since 1989. Against this background, the adoption of 
Directive 91/671/EEC of 16.12.91 on the compulsory wearing of safety 
belts and the use of restraint systems for children can be seen as a 
significant step towards a Community road safety policy.3 
1 Resolution of the Council of 19 December 1984, OJ C 341, 21.12.1984, p. 1. 
2 C0M(88)704 final of 9.1.1989. 
3 OJ L 373, 31.12.1991. 
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In December 1989, the Commission asked a committee of independent 
experts to draw up a report into the road safety situation of the 
twelve Member States and to make proposals for its improvement. The 
committee of experts presented its report (the Gerondeau report) in 
1990.1 
In a resolution adopted on 21 June 1991, the Council requested the 
Commission to draw up and implement a Community programme of measures 
on road safety.2 It invited the Commission to form a high-level 
working party for this purpose made up of representatives of Member 
States' governments. 
Since it was formed, this working party has met on several occasions. 
The Group's discussions were based on suggestions from the Member 
States, current or planned Commission activities and the Gerondeau 
report, and focused in particular on: 
- the definition of common objectives; 
- criteria for establishing priorities for a programme; 
- resources and instruments for implementing and developing the 
programme. 
These discussions resulted in the report attached to this 
communication, which was finalized in April 1992. 
1.3 Guiding principles and purpose of this communication 
This communication is the response to the request from the Council 
referred to above. It was based largely on the report contained in 
the annex which represents the findings of the high-level working 
party and presents an action programme for the short and medium term. 
Community action in the road safety field has also recently received 
significant support from the European Parliament which, on 12 March 
1993, adopted a road safety programme containing many points in 
common with the programme included in this communication.3 
1 Report by a high-level group of experts on European road safety policy, February 1991. 
2 Resolution of the Council and of the representatives of the Governments of the Member States, 
meeting within the Council of 21 June 1991, on a Community programme of action on road safety, 
OJ C 178, 9.7.1991. 
3 OJ C 1993. 
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With the exception of chapter 2, which takes stock of current 
legislation, the key points of this communication are contained in 
chapters 3 and 4 which include respectively proposals in the process 
of being adopted, other ongoing activities and activities in the 
Commission's programme for the short and medium term in the field of 
road safety. 
The principle of subsidiarity introduced at Article 3b of the Treaty 
on European Union is apparent throughout the proposed programme, 
which ties in with the observation made in the White Paper on 
Community action in the field of transport safety.1 
In view of the variety of different road safety situations in the 
Member States and the lack of an effective means at Community level 
for identifying and quantifying problems in an appropriate way or for 
comparing the effect of the different measures adopted by Member 
States, no cost/benefit analysis has yet been made on a Community 
scale, although some States already use this approach for certain 
initiatives. It is mainly on the basis of the experience of the 
Member States that the report of the high-level working party (see 
point 1.2 above) suggested that the Commission carry out specific 
measures in seven priority fields for action. 
In this respect, it is important to point out that the creation of 
the data bank on injury accidents, referred to at point 4.2.1.1 
below, should provide a partial response to the objective contained 
in this approach and enable a better assessment of priorities and 
determination of the required degree and type of Community action for 
the medium and long term. 
1 Article 3b: the Community shall take action only "if and in so far as the objectives of the 
proposed action cannot be sufficiently achieved by the Member States". 
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2. CURRENT ROAD SAFETY LEGISLATION 
Legislation on road safety already exists in its own right in the framework 
of the common transport policy and also under other policies. Altogether 
this represents an important body of Community legislation, the impact of 
which on road safety is felt both directly and indirectly. 
2.1 Vehicles, technical aspects 
2.1.1 Community involvement in this sector dates back to 1970. Since then, 
more than fifty separate directives have been adopted on type-
approval of motor vehicles on the basis of the framework Directive 
70/156/EEC,1 as last amended by Directive 92/53/EEC of 18 June 
1992.2 Technical harmonization has also been achieved in respect of 
agricultural and forestry tractors by Directive 74/150/EEC3 and by 
the formulation of specific directives for two- and three-wheel 
vehicles (Directive 92/61/EEC).4 The directives already adopted 
have also been adapted several times to take account of technical 
progress. 
Although the principal aim of this legislation, based on 
Articles 100 and 100A of the Treaty, was the removal of barriers to 
the free movement of goods, the safety aspect was present either 
implicitly or explicitly (e.g. braking systems, lighting and light-
signalling devices, safety belts and their anchorages, lateral 
protection of HGVs, rain flaps, etc.), by virtue of the reference 
under Article 100A(3) to the high level of protection in matters 
relating to safety. 
2.1.2 At the same time, legislation directly concerned with road safety 
also exists in relation to technical aspects of motor vehicles. 
This is the case particularly with two Directives on the minimum 
depth of tread on tyres (for vehicles having a maximum weight not 
exceeding 3.5 tonnes)5 and on the installation and use of speed 
limitation devices (HGVs having a maximum weight exceeding 12 tonnes 
and buses and coaches exceeding 10 tonnes).6 
1 OJ L 42, 23.2.1970. 
2 OJ L 225, 10.8.1992. 
3 OJ L 84, 28.3.74, p. 10. 
4 OJ L 225, 1.8.1992, p. 72. 
5 Directive 89/459/EEC of 18.7.1989, (OJ L 226, 3.8.1989) 
6 Directive 92/6/EEC of 10.2.92, (OJ L 57, 2.3.1992). 
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2.1.3 Legislation already adopted relating to roadworthiness tests for 
motor vehicles - starting with Directive 77/143/EEC on goods 
vehicles1 and recently supplemented by Directives on light goods 
vehicles,2 on the harmonization of standards and testing methods3 
and on private cars4 - represents a very important aspect of active 
and passive vehicle safety and aims to ensure that vehicle 
maintenance keeps it in the best possible condition. 
In addition, the Council has adopted two Directives, the first of 
which defines the criteria and items for testing the braking 
system,^ while the second sets maximum limit values for gaseous 
emissions and the opacity of exhaust fumes,6 with the aim of 
ensuring adequate levels with respect to safety and the environment 
for all vehicles in the Community. 
2.2 Driver behaviour 
Driver behaviour is the key element in any road safety policy. There 
are several directives and proposals which deal with the fundamental 
aspects of driver behaviour. These are: 
2.2.1 The first driving licence Directive, adopted in 1980, represented 
the first stage in the harmonization of the conditions required to 
obtain a driving licence, as it directly affected driver training.7 
A second directive in 1991 includes as one of its aims the 
reinforcement of the provisions relating to training for learner 
dr ivers.6 
2.2.2 A further directive from 1991 makes the wearing of safety belts by 
drivers and passengers of vehicles with a maximum weight not 
exceeding 3.5 tonnes and the use of restraint systems for children 
compulsory as from 1 January 1993.9 
1 OJ L 47, 18.2.1977. 
2 Directive 88/449/EEC of 26.7.1988, OJ L 222, 12.8.1988 + corrigendum OJ L 261, 21.9.1988. 
3 Directive 91/225/EEC of 27.3.1991, OJ L 103, 23.4.1991. 
4 Directive 91/328/EEC of 21.6.1991, OJ L 178, 6.7.1991. 
5 Directive 92/54/EEC of 22.6.1992, OJ L 225, 10.8.1992. 
6 Directive 92/55/EEC of 22.6.1992, OJ L 225, 10.8.1992. 
7 Directive 80/1263/EEC of 4.12.1980, 0J L 375, 31.12.1980. 
8 Directive 91/439/EEC of 29.7.1991, 0J L 237, 24.8.1991. 
9 Directive 91/671/EEC of 16.12.1991, 0J L 373, 31.12.1991. 
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2.3 Other areas of transport policy with an impact on road safety 
The common transport policy concerns the environment, social aspects 
and technical harmonization and consequently has a far from 
negligible, if indirect, role to play in road safety in the following 
areas: 
2.3.1 Dangerous substances 
Community legislation on the transport of dangerous goods by road 
deals in particular with the training requirements for drivers and 
carriers, etc., with the aim not only of protecting'the environment 
and public health but also of ensuring road safety.*1 
2.3.2 Social legislation 
Current social legislation in the road transport sector on the 
driving time and rest periods of the drivers of vehicles used in the 
transport of passengers or of goods and the recording equipment 
relating to it (tachographs), is not only Justified in the social and 
competition sectors, but also contributes to road safety.2 
2.3.3 Technical measures 
In addition to their main purpose in the context of the common 
transport policy, technical measures relating to weight and 
dimensions and other technical characteristics such as the suspension 
of goods vehicles, are closely linked to road safety requirements and 
have positive consequences for infrastructure and for the movement of 
other categories of vehicles.3 
Council Directive 89/684/EEC of 21.12.1989 on vocational training for certain drivers of vehicles 
carrying dangerous goods by road (OJ L 398, 30.12.1989). 
Council Directive 89/438/EEC amending Directive 74/561/EEC on admission to the occupation of road 
haulage operator in national and international transport operations (OJ L 212, 22.7.89). 
Regulations (EEC) 3820/85 and (EEC) 3821/85 (OJ L 370, 31.12.1985) on the harmonization of certain 
social legislation relating to road transport and to recording equipment. 
Council Directive 88/599/EEC of 23.11.1988 (OJ L 325, 29.11.1988, p. 55) on standard checking 
procedures for the Implementation of the above directives. 
Communication to the Council of 20.3.1992, SEC(92)496 final, makes an analysis of the implications 
of replacing the concept of "driving time" by "working time" In the above regulations. 
Council Directive 85/3/EEC of 19.12.1984 on the weights, dimensions and certain other technical 
characteristics of certain road vehicles (OJ L 2, 3.1.1985), last amended by Directive 92/7/EEC of 
10.2.1992 (0J L 57, 2.3.1992). 
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3. CURRENT LEGISLATIVE PROPOSALS AND OTHER ONGOING ACTIVITIES AND RESEARCH 
Since 1989, the year that the communication "Road Safety: a priority for 
the Community" was published1 and in addition to the legislative proposals 
referred to at point 3.1. below, the Commission has embarked on initiatives 
in the following areas which have resulted either in legislative proposals 
or in studies and research projects. Initiatives leading to the 
introduction or to the adoption of Community legislative measures in the 
short or medium term are marked with an asterisk (*). 
3.1 Current legislative proposals 
Amongst those measures with a decisive impact on road safety, two in 
particular concern driver behaviour. These are measures relating to: 
- speed Iimits 
- driving under the influence of alcohol 
The Commission has made proposals in both areas, one on fixing speed 
limits for goods vehicles and buses,2 the other on maximum blood 
a I coho I concentrât ion I eve.1-a--for dr I vers.3 
As far as dangerous goods are concerned, the Commission has also 
brought out a proposal for a directive on the vocational 
qualifications of an officer for the prevention of risks inherent in 
the carriage of dangerous goods in undertakings which transport such 
goods.4 
Finally, as regards vehicles with a significant impact on road 
safety, the Commission has proposed two legislative measures to the 
Council, one on coupling systems,5 the other on vehicle fire 
resistance.6 
3.2 Other ongoing activities 
3.2.1 User behaviour 
Access to driving mopeds 
Monitoring driver behaviour 
The impact of wearing safety helmets for drivers of two-wheel motor 
vehicles 
Information campaign on drinking and driving. 
1 C0M(88)704 final of 9.1.1989. 
2 C0M(88)706 final of 11.1.1989 (OJ C 33, 9.2.1989). 
3 C0M(88)707 final of 5.1.1989 (OJ C 25, 21.1.89). 
4 C0M(91)4 final of 11.6.1991. 
5 C0M(92)108 final, 30.3.1992. 
6 C0M(92)201 final, 14.5.1992. 
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3.2.2 Vehicles 
Cars: 
Side impact (*) 
Frontal impact (*) 
Safer fronts for pedestrians (*) 
Seat strength (*) 
Head restraints (*) 
Tyres (*) 
Retractable safety belts for the rear outer seats (*) 
Adjustable upper anchorage (*) 
Air bags (*) 
Lighting and signalling (*) 
Interior design improvements(*) 
Buses and coaches: 
Fire resistance (coaches) (*) 
Special provisions relating to buses, coaches and minibuses (safety 
.*. of doors, steps, emergency exits, etc.) ( ) 
Special measures for school buses (removable equipment, sign) 
HGVs: 
Front underrun bumpers (*) 
Vehicles, all categories: 
Protection of drivers (*) 
Electromagnetic compatibility (*) + (*) 
Fuel tank fire resistance (amendment) (*) 
Alarm systems (*) 
Braking (*) 
Roadworthiness tests for vehicles: 
Harmonization of standards (braking systems, speed limitation 
devices, etc.) (*) 
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Harmonization of the technical differences for two- and three-wheel 
vehicles: 
lighting, brakes, tamper-proof systems, signals, helmets (*) 
3.2.3 Infrastructure 
Comparative study of signs and road markings in all Member States. 
Within the context of the Directive on construction products (drawn 
up according to the "new approach"), an explanatory document is due 
to be adopted shortly dealing with the necessity for safety of use 
and including a chapter on accidents involving "moving vehicles".1 
This document establishes the ground rules for the harmonization of 
standards relating to the technical aspects of safety in cases of 
accidents such as collisions and skids. These aspects will be 
subject to harmonization by means of mandates from the Commission 
to the CEN (see point 4.2.5 below). 
3.2.4 Improving know-how 
Feasibility study into a statistical data bank on injury 
accidents (CARE project). (See point 4.2.1) (*) 
3.3 Road safety under the research programmes 
The following ongoing or completed research activities related to 
road safety should also be mentioned: 
3.3.1 COST: In addition to the projects which have already been completed 
on infrastructure problems related to road traffic, COST 313, "Socio­
economic costs of road accidents", assesses the various methods for 
evaluation of the social and economic cost of accidents.2 
Council Directive 89/106/EEC of 21.12.1988 on the approximation of laws, regulations and 
administrative provisions of the Member States on construction products. 
COST 30 "Electronic traffic aids on major roads" (Started: 10.5.77 finished: 30.3.84). 
COST 30 A "Electronic traffic aids on major roads" (Started: 31.3.80 finished: 31.3.84). 
COST 309 "Road Meteorology and Maintenance Conditions" (Started: 19.2.87 finished: 19.2.89) 
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3.3.2 EURET-I (Research on transport) 
Cost/benefit and multicriteria analysis for new road construction. 
3.3.3 DRIVE I (Dedicated Road Infrastructure for Vehicle Safety in Europe) 
Under the heading of the application of new technologies and 
telecommunications to transport, DRIVE I has devoted several 
specific projects to the subject of road safety. 
Pedestrians 
Traffic planning taking pedestrian flows into account; 
Models for positioning traffic lights in relation to pedestrian 
movements; 
Automatic pedestrian detection at crossings and timing of traffic 
Iights. 
Cyclists 
Automatic detection at crossings and timing of traffic lights; 
Models for cyclist flow management in relation to cyclist movements. 
Drivers 
Automatic detection of driver failures (traffic rule violations, 
state of driver: e.g. fatigue, alcohol); 
Automatic highway code enforcement system; 
Automatic policing systems; 
Automatic tutoring systems; 
Assistance for elderly drivers; 
Assistance for drivers with special needs. 
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Vehicles 
Adaptation of information presentation and control functions to the 
task of driving, the traffic situation and driver experience; 
Automatic vehicle failure detection and information; 
Automatic accident recording; 
Intelligent cruise control. 
3.3.4 Advanced Road Transport Telematics 
Within the continuation of the DRIVE programme, the R 8c D programme 
"Advanced Road Transport Telematics" stresses on-site testing and 
proving of telematic systems, most of which were put in place as 
pi lot projects. 
Some projects, representing a total budget of about ECU 18 million, 
deal more specifically with road safety: 
- HOPES: Horizontal project for the evaluation of traffic safety and 
man-machine interaction; 
- ARIADNE: Development of an intelligent driver and navigation support 
system; collision avoidance radar and information system for 
enhancing driver capabilities; 
- VRU-TOO: Observation of pedestrian traffic and optimization of 
pedestrian detection systems located at Junctions and 
crossings; 
- SAMOVAR: Safety assessment monitoring on-vehicle with automatic 
recording; recording vehicle and driver behaviour in relation 
to road safety; 
- HARDIE: Harmonization of roadside and driver information in Europe; 
- CITRA: System for the control of dangerous goods transport in 
international alpine corridors; 
- ROSES: Road safety enhancement system which takes into account road 
and weather conditions; 
- DETER: Detection, enforcement and tutoring for driver error reduction 
(project for the development of a prototype for the detection 
of driver behaviour); 
- EDDIT ) 
- TELAID): New technologies for elderly and disabled drivers; 
- EMMIS: Evaluation of man/machine interaction; 
- TESCO: Test on cooperative driving; 
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- COMIS: Communication system for cooperative driving; 
- PROMISE: Mobile and portable information system in Europe. 
The following other projects could also be mentioned: 
- PRIMAVERA: Priority management for vehicle efficiency, environment and 
road safety on arterials*, 
- PORTICO: Portuguese road traffic innovations, consisting of the 
surveillance of vehicles transporting dangerous goods and 
accident detection and warning systems. 
3.3.5 The current research programme on Industrial Technologies and 
Materials (BRITE/EURAM II) could also make a contribution to passive 
vehicle safety through projects related to new materials and new 
technologies for industrial design and manufacture. The aspects 
related to infrastructure (road and road network construction and 
maintenance, tunnels and surfacing, etc.) are covered under the 
BRITE/EURAM II programme. 
Ongoing or new projects in this field (see 4.2.2) relate to 
precompetitive and prenormative aspects for safer vehicles. Part of 
this work could lead to specifications for vehicle type-approval. 
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4. THE ROAD SAFETY PROGRAMME 
4.1 Gu i de I Ines 
On the basis largely of the April 1992 report by the High-level Group 
of Representatives of the Governments of the Member States, which is 
attached to this communication, the Commission believes that a draft 
programme for Community action should include the following 
gui de Iines: 
- the desirability of an overall approach giving rise not only to 
legislation but to other measures as well; 
- the need to take integrated action on the factors on which road 
safety depends (driver behaviour, vehicles and infrastructure); 
- the "added value" of Community initiatives as against national 
measures (the principle of subsidiarity). 
4.2 Priority fields for action and new initiatives 
This programme will be directed towards the following priority fields 
for action: 
- exchange of information and experience and setting-up a Community 
data bank, proposed research (see point 4.2.1 below); 
- active and passive vehicle safety (see point 4.2.2 below); 
- user education and driver training (see point 4.2.3 below); 
- measures related to behaviour (see point 4.2.4 below): measures to 
encourage sensible driving and the influence of alcohol, drugs and 
fat igue on dr ivers; 
- infrastructure and road safety (see point 4.2.5 below); 
- measures to promote improvements in the safety of the transport of 
dangerous substances by road (see point 4.2.6 below); 
- the problem of aspects of advertising which are bad for road safety 
(see point 4.2.7 below). 
While taking full account of existing Community legislation and the 
measures now in hand, which are described in points 2 and 3 above, 
these fields for action, taken all together, provide a master plan 
for the programme. 
The High-level Group's proposals provide a basis which will enable 
the Commission to take new initiatives for the implementation of a 
road safety programme. 
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The new initiatives described below should be seen in the context of 
the new Treaty of Maastricht. Not only does the amended Treaty 
explicitly confirm Community competence in transport safety 
("measures leading to improvements in transport safety" in new 
Article 75(c)), but it also explicitly introduces the principle of 
subsidiarity (new Article 3b). Amongst these initiatives, the Group's 
efforts have made it possible to draw a distinction between measures 
of a legislative and those of a non-legislative nature in the light 
of the principle of subsidiarity. 
4.2.1 Exchange of information and experience and setting-up a Community 
data bank: proposed research 
This field of action is of a horizontal nature and represents an 
innovative aspect of the programme in that it demonstrates the 
advantage of Community-1 eve I action in a non-legislative framework. 
It will constitute one of the main lines that must guide the 
programme as shown in point 4.1 above. 
This type of intervention fits in with one of the comments made in 
the Gerondeau report on "desirable new forms of intervention" (see 
in particular part 2, chapter I I I of the Gerondeau report). The 
Commission believes that considerable effort should be put into the 
development of exchanges of information and experiences of the 
Member States. In this context and in addition to its involvement 
in research as such, the Commission must play a role in the 
coordination of research programmes, especially in relation to 
those priority areas which are the subject of this communication. 
By way of example, several projects on these lines are in progress 
in the framework of the fields for action referred to in 4.2.3, 
4.2.4 and 4.2.5, in areas where Community legislation needs to be 
supplemented or is lacking, while taking into account the "added-
value" principle, which represents one of the guidelines of the 
programme. In this context, the Commission proposes to give as much 
support as possible to initiatives with a Community angle involving 
the media and public information (publicity campaigns, conferences, 
etc.) on specific topics. It is clear, however, that in order to 
improve know-how, it is first necessary to gain access to 
information both in statistical form and concerning legislation and 
regulations on road safety and traffic. 
4) 
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In this context, the Commission proposes to create two essential 
and complementary tools, i.e.: 
a Community data bank on road accident statistics (CARE 
project); 
a documentary file on road safety. 
4.2.1.1 The CARE project - Community data bank on road traffic accidents in 
Europe 
The primary objective of the creation of a Community data bank of 
road accidents involving personal injury (including deaths and 
injuries) is to provide the Community with a tool giving access to 
statistical data which would enable studies, research projects and 
analyses to be set up in areas related to road safety, thereby 
helping determine the appropriate degree of intervention. One of 
the first steps in the fight against road accidents is the 
identification and quantifying of problems so as to define the 
measures required and then to measure their effectiveness. 
Besides providing and enabling the exchange of information, the 
creation of a Community road accident data bank establishes a 
platform for international cooperation and leads to a degree of 
coordination conducive to the development of road safety in the 
Communi ty. 
The introduction of such a data bank can only facilitate the 
transfer of experience from one country to another without 
duplication of the research effort. It would also help 
international committees or organizations to establish standards or 
regulations relating to road traffic, motor vehicles and integrated 
road safety policies. 
What is special about the CARE project is that this data bank will 
have the advantage over other past and present efforts by 
international bodies of consisting of disaggregated data, i.e. data 
that is broken down at the level of the accident. This type of data 
offers a much higher research potential because all the classic 
indicators are revealed by disaggregated data: total number of 
injuries, deaths, breakdown of these totals under various sub­
headings: nature of the impact, time, age of driver, etc. 
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Thanks to the greater degree of accuracy it provides in the study 
of cause, disaggregated analysis allows results to be transferred 
more easily from one situation to another, and hence from one 
country to another. 
This transferability corresponds to one of the essential aims 
because the fact that it contains data concerning countries with 
differing structures gives each country the opportunity to obtain 
information on situations which occur less frequently there than in 
other Member States. 
Similarly, pooling statistics from several countries may allow a 
Member State to have access to information on the effectiveness of 
measures taken in other Member States which it might consider 
adopt ing. 
Following an initial experimental phase, and on the basis of 
procedures established with the agreement of the Member States, 
access to the CARE data bank could be extended to regional and 
local administrations, road safety research institutes, automobile 
manufacturers and consumer bodies with an interest in this field. 
Confidentiality will, of course, be respected as any element 
enabling a person to be identified by name will be omitted from the 
data bank. 
4.2.1.2 Creation of a documentary file on road safety 
Information exchange on an international scale comes up against two 
major barriers: 
the availability of information (existence, type, location, 
etc.) 
the consultation of information (medium, language, etc.) 
The Commission proposes to launch a feasibility study on the 
creation of a documentary file on road safety, which would be 
available to a whole variety of users (national and local 
authorities, international bodies, research institutes, consumer 
groups, industry, etc.). Initially, this will involve defining the 
file contents (traffic regulations, measures taken, experiments, 
research, etc.), the format (data medium) and the procedures for 
gathering and updating information. 
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4.2.1.3 Proposed research 
The 4th Framework Programme will open up new possibilities for 
research activities contributing towards the goal of improving road 
safety. Such activities could touch upon infrastructure, vehicles 
and driver behaviour (individual or systemic), and could be 
included in existing specific programmes from the 2nd and 3rd 
Framework Programmes, or form part of a specific new measure 
dealing with transport. 
In this context, road safety issues will continue to be taken into 
account within the framework of research into telematic systems and 
industrial technologies and materials. 
4.2.2 Active and passive vehicle safety 
The development of new standards for vehicle construction and the 
improvement of equipment and parts represent one of the three key 
elements in the "road safety system" (driver, vehicle, 
infrastructure). 
The improvement of the technical aspects of vehicles is a matter for 
the Community's competence in the area of technical standards 
governing vehicle construction and conformity. Consideration could be 
given to the issue of whether technical harmonization can make room 
for national initiatives to improve road safety, provided that they 
do not constitute a major barrier to the free movement of goods and 
persons. 
The cost/benefit ratio of measures in this sector merits special 
attent ion. 
Besides the ongoing measures described under 3.2.2 above, the 
Commission also proposes to take the following new initiatives in the 
short and medium term in this field: 
- improvement of vehicle passenger protection in case of impact with 
special reference to the following: 
study into the vehicle-related safety measures most likely to 
reduce the extent of injuries in case of accident; 
ch iId protect ion; 
Act ive safety: 
improving standard safety features by the use of electronics; 
new features; 
-21 -
- leg protection devices for mopeds; 
- devices for preventing increasing speed limits imposed by 
construction, in particular for two-wheel motor vehicles. 
Finally, as far as research is concerned, ongoing projects and the 
DRIVE programme (phase II) are looking into the possibility of using 
new technologies in order to increase road safety with respect to 
vehicles in the framework of a Community road safety programme. 
4.2.3 Education of road users and driver training 
Road safety education represents an invaluable tool for improving 
road safety. Its horizontal nature makes it an indispensable element 
in national road safety policies in the form of training and 
prevention measures for all categories of user (drivers, pedestrians, 
cyclists, motorcyclists and children). 
The Commission can play a useful role in this area - in accordance 
with the principle of subsidiarity - by its contribution to and 
support for education, especially in relation to road safety teaching 
in schools, training for professionals and the organization of public 
information campaigns. Although such activities are primarily the 
responsibility of other authorities, the Community's support, in 
particular by way of assembling and producing relevant information on 
experience gained in the whole Community, would be a significant 
bonus achieved at less cost than would be involved in taking action 
on a widespread basis. 
In relation to drivers, on the basis of experiments in certain 
Member States on "accompanied driving" or "early introduction to 
driving" and driver monitoring (provisional licence), the 
Commission is to study ways of improving the behaviour of learner 
and new dr ivers. 
A decision will be made on the sort of initiative to take 
(legislative measures, information campaign, advertising, etc.) in 
accordance with the principle of subsidiarity. 
As far as the problem of moped users is concerned, the Commission -
on the basis of a study that it set up (see point 3.2.1) on access 
to driving such vehicles - intends to draw up a legislative 
initiative on training for the drivers of these vehicles, as they 
constitute a particularly vulnerable category of user. 
- 22 -
Finally, in the context of the new driving licence Directive1 and 
with the dual purpose of facilitating the free movement of drivers 
within the Community and improving safety by making the information 
on driving licences more comprehensible, the Commission intends to 
propose a coding system for the additional information contained in 
licences and to promote information exchanges and cooperation 
between the national authorities concerned. 
4.2.4 Measures relating to behaviour 
A large number of the initiatives relating to behaviour have already 
been the subject of directives (driving licence, safety belt) or 
legislative proposals (speed limits, alcohol). To complete these 
measures, the emphasis will be on non-legislative initiatives for 
improving behaviour relating to the following areas: 
4.2.4.1 Measures to encourage sensible driving 
The impact of speed on road safety is widely acknowledged. 
The Directive on speed limitation devices2 and the proposal on speed 
limits (C0M(88)706),3 referred to above in points 2.1.2 and 2.2.3 on 
goods vehicles and buses, are a response to this concern. 
Nevertheless, the issue of sensible driving goes beyond the question 
of speed limits alone and could figure in other measures in the 
technical field (in relation to vehicle design and infrastructure 
planning) as well as in the context of measures on education and 
prevent ion. 
Proposed measures: 
- in the technical field: 
a study to research the technical possibilities of adapting a 
vehicle's speed according to the conditions and class of road; 
1 Directive 91/439/EEC of 29.7.1991, OJ L 237, 24.8.1991. 
2 Directive 92/6/EEC of 10.2.1992, OJ L 57, 2.3.1992. 
3 OJ C 133, 9.2.1989. 
- 23 -
an exchange of experience relating to solutions at a national 
level Involving infrastructure planning for sensible driving. 
In this context, the Commission's role could be to stimulate 
debate and to pool solutions (see point 4.2.5 below), in 
particular by studying the possibility of measures related to 
infrastructure planning which could encourage drivers to drive 
sensibly. 
- in the context of measures relating to education and prevention, it 
is proposed to cooperate closely with the Member States and 
international organizations in the area of public information. 
4.2.4.2 The influence of alcohol, drugs and fatigue on driving 
The influence of alcohol on road safety has been highlighted by 
research, which has continued to show the level of alcohol as one of 
the major causes of road accidents. According to some studies, the 
percentage of drivers killed in road accidents with a blood alcohol 
concentration of more than 0.80 mg/ml varies between 15% and 45% 
depending on the Member State. This fact lies behind the Explanatory 
Memorandum to the proposal for a Directive presented to the Council 
in January 1989, which fixed a maximum blood alcohol concentration 
for drivers of 0.5 mg/ml.1 
As far as legislation is concerned, in addition to the above 
proposal on the maximum permitted blood alcohol level, the 
Commission is to investigate the possibility of an initiative on 
standardization and type-approval for testing apparatus. 
The issue of driver awareness and education in this area is 
undoubtedly one of great significance and should complement control 
measures. In this connection, the Commission proposes to carry out 
fresh information campaigns on the same lines as those done in 
conjunction with the AIT (International Touring Alliance) in 1991 
and 1992. 
In addition to the provisions relating to alcohol contained in 
Directive 80/1263/EEC and reinforced by the driving licence 
Directive, 91/439/EEC (Annex III), the same Directives also include 
provisions relating to the taking of drugs or medicinal products 
which might affect the driver's mental and physical fitness for 
dr iving. 
1 C0M(88) 707 (see above). 
- 24 -
In relation to this last point, the Commission is to study the 
effect of drug use on road safety and the possibility of a user 
information campaign. 
Likewise, fatigue appears to be a significant contributory factor 
in accidents, especially for professional drivers. The Commission 
is therefore planning technical improvements which would provide 
drivers with better information as well as more effective control 
of compliance with the driving time requirements. 
4.2.5 Infrastructure and road safety 
Disregarding the appropriate level of action, whether Community or 
national, for a particular measure, road infrastructure plays a 
significant role in the whole of the "road safety system" (user, 
vehicle, infrastructure, enforcement). The improvement of the 
capacity and quality of road networks is one of the most effective 
and lasting factors in road safety, whether it involves design, 
construction, maintenance, equipment (e.g. signs and signals), 
planning with safety in mind, or traffic management. 
The report "Trans-European Networks: Towards a Master Plan for the 
Road Network and Road Traffic",1 which recommends the adoption of a 
Community policy dealing both with the road network and road traffic, 
points out the need for standardization of technical characteristics 
and identifies the aim of ensuring a high level of service, 
information and safety for users. As far as the introduction of such 
networks is concerned, it is to be expected therefore that the 
Community should devote its full attention to measures for reducing 
the number of road accidents which, nowadays, take a terrible toll 
both in human and in economic terms. 
This report, which refers to the general aim of a "proper road 
policy", identifies several clearly defined objectives relating to 
safety requirements under the headings of "modernization of the 
network" and "traffic policy". 
1 See chapters 6 and 7, and in particular chapter 8, of this report (doc. VI1/308/92 final), which 
was drawn up In May 1992 by the Motorway Working Group (consisting of national and international 
experts, formed within the Transport Infrastructure Committee). 
- 25 -
These include the following points: 
road surface characteristics; 
dynamic equipment (driver guidance and driving aids), which is 
the subject of ongoing research under the DRIVE and PROMETHEUS 
programmes in relation to new technologies and also with 
reference to the need for standardization in this respect; 
fixed equipment and, in particular, vertical signposting and 
road markings, while pointing out the importance of 
standardizing them on major roads at least. 
As far as fixed equipment is concerned, the interpretative document 
on safety requirements in relation to infrastructure, referred to 
in 3.1.3 above, will form the basis for the harmonization of 
European standards covering the following factors, inter alia: 
the skid resistance of road surfaces, in terms of materials 
used; 
the skid resistance and day and night visibility of road 
markings; 
the technical specifications of road signs and signals (other 
than the choice of shapes, colours and pictograms); 
the essential characteristics of permanent road fittings 
(crash and safety barriers, shock absorbers, etc.), in 
particular as regards adaptation to the different categories 
of vehicle. 
In the light of this report, the Commission has sent a 
communication to the Council and Parliament which includes a 
proposal for a decision on the creation of a trans-European road 
network (C0M(92)231 final) which would involve, inter alia, a 
unified European system for road classification and signs (Art. 3). 
The Council welcomed this proposal at its meeting of 15 March 1993. 
5) 
- 26 -
In conjunction with the updating of the Vienna Conventions by the 
United Nations in Geneva,1 the Commission has requested two 
studies, one dealing with direction signs, the other with 
regulatory signs, with the aim of looking at the different 
practices in Member States. A study has already been carried out on 
temporary signs and signals. 
On the basis of the results of these studies, the Commission will 
be able to look into the desirability of harmonizing some signs. 
Finally, the measures referred to under 4.2.1 should also have a 
role to play and complement the abovementioned initiatives. 
Measures should be taken, in particular, to increase the exchange 
of information on technical aspects of infrastructure related to 
road safety and the pooling of know-how in this field, with the 
Commission acting as prime mover and coordinator. 
4.2.6 Measures to promote improvements in the safety of the transport of 
dangerous substances by road 
Faced with the increasing volume of transport of dangerous goods by 
road, and in order to improve safety and prevent accidents which 
not only have dramatic consequences in terms of human lives but 
sometimes have a catastrophic and irreversible impact on the 
environment, the Commission is to propose the completion of the 
existing measures referred to at point 2.3.1 by: 
the introduction of Community measures for the application of 
international agreements (ADR/RID) on the transport of 
dangerous substances to national transport and the uniform 
application for international traffic-, 
the setting-up of harmonized procedures for the inspection of 
vehicles transporting dangerous substances; 
harmonization of the training requirements for drivers of 
vehicles intended for the transport of such goods. 
4.2.7 The problem of aspects of advertising which are bad for road safety 
This problem is the subject of consideration by public authorities 
and non-governmental organizations devoted to road safety and 
accident prevention. 
1 The Vienna Conventions of 1968 on Road Traffic and on Road Signs and Signals, completed by the 
1971 European Agreements and the 1973 Protocol on Road markings. 
27 
The problem was discussed in the context of European Road Safety Year 
in 1986 and was included amongst the measures proposed by the 
European Parliament (Seefeld report). 
In 1989, the ECMT's (European Conference of Ministers of Transport) 
Road Safety Committee drafted a report on this subject, which gave 
rise to a resolution1 entitled "The harmful effects of advertising 
on road safety". 
The Commission considers that it is important, while safeguarding the 
freedom of expression and creativity of the media, to observe the 
principles of road safety and consumer protection at Community level. 
The Commission proposes therefore to establish a dialogue on this 
subject with the organizations concerned, in particular those which 
represent car manufacturers and consumer groups at Community level, 
with the aim of studying the possibility of drawing up a European 
code of conduct under which manufacturers would undertake, as already 
happens in certain Member States, not to run counter to the aims of 
road safety in their advertising campaigns. 
Resolution 56 (CM(89) 37) adopted by the Council of Ministers of Transport at their meeting 
Paris on 22.11.1989. 
- 28 -
IMPLEMENTING THE PROGRAMME 
Taken together, the measures proposed and in progress, and the new 
initiatives described above, represent the basic content for setting 
up an action programme on road safety. 
The Commission takes note and shares the wish of the High-Level Group 
of government experts on road safety to continue meeting in order to 
promote the exchange of information, to be consulted and to be 
involved in the development and implementation of the programme in 
question. By the same token, the Commission will also consult the 
non-governmental organizations concerned. 
The Commission will carry out these consultations and will arrange 
for the resources required to implement the programme to be made 
available through the usual procedures. 
- 29 -
6. CONCLUSION 
Road safety is an area of the utmost importance in any transport 
policy. Its social and economic ramifications are enormous. 
Safety requirements can clearly fall within the area of the 
Community's exclusive powers, for example, because they affect the 
free movement of vehicles or transport services. Where they do not 
fall within that area, the application of the subsidiarity principle 
may lead to the conclusion that action is best taken at other levels. 
But the amendment of Article 75 of the Treaty on European Union now 
makes it quite clear that, even in the absence of an exclusive power, 
transport safety is a matter which should be addressed by the 
Community when it is in a position to act usefully. 
This, therefore, is the background against which the Commission is 
proposing initiatives for the short and medium term. The principal 
measures are listed in the attached Table 11. However, it should be 
pointed out that, even before the Council Resolution of 21 June 1991 
(see point 1.2), the Commission was not idle as many measures 
covering various fields relating to road safety were adopted and 
others proposed which are still awaiting adoption. All these measures 
are summarized in Table I which is also contained in the annex. 
It must be acknowledged that it has not been possible to satisfy the 
Council's request, which it made in its resolution, for the 
evaluation of the cost/benefit ratio of measures for inclusion in the 
action programme, this being due to the lack of a suitable instrument 
for providing a precise analysis of the consequences of these 
measures at the Community level. For this reason, the first priority 
in the action programme is the creation of a disaggregated data bank 
which should enable the proposed initiatives to be monitored and the 
situation to be analysed and assessed, thereby ensuring the 
continuity of the action and allowing the possibility of presenting 
further initiatives for examination. As far as the other proposed 
Community measures are concerned, the majority represent an 
extrapolation of national experience as presented by the high-level 
working party. 
- 30 
Finally, the growing significance of non-legislative measures at 
Community level should be stressed, whereby the Community 
increasingly plays the role of coordinator, e.g. by means of 
exchanges of know-how and experience or by recommendations. Such 
initiatives represent a substantial number of the measures proposed 
in the programme. 
Once the current legislative initiatives and those proposed in the 
programme have been adopted, and in the light of the implementation 
of the non-legislative measures, the Commission will draft an 
evaluation report of the measures taken before the end of 1996. 
CURRENT LEGISLATION 
VEHICLES. TECHNICAL ASPECTS (2.1.) TABLE I 
Date of 
adopt ion 
92/53/EEC Type-approval of motor vehicles and their 
trailers (framework directive) 
(2.1.1.) 
+ Approximation of the technical rules relating to 
type-approval 
71/320/EEC Braking devices of certain categories 
-74/132 
-75/524 
-79/489 
-85/647 
-88/194 
-91/422 (adaptât ion) 
(adaptât ion) 
(adaptât ion) 
(adaptât ion) 
(adaptât ion) 
(adaptât ion) 18.06.1992 
26.07.1991 
11.02.1974 
25.07.1975 
18.04.1979 
23.12.1985 
24.03.1988 
15.07.1991 
76/756/EEC 
-80/233 
-82/244 
-83/276 
-84/8 
-89/278 
-91/663 Installation of lighting and 
light-signalling devices 
(adaptation) 
" (adaptation) 
" (amendment) 
(adaptation) 
(adaptation) 
" (adaptation) 27.07.1976 
21.11.1979 
17.03.1982 
26.05.1983 
14.12.1983 
28.03.1989 
10.12.1991 
76/115/EEC Anchorages for safety belts 
-81/575 
-82/318 
-90/629 (amendment) 
(adaptât ion) 
(adaptât ion) 18.12.1975 
20.07.1981 
2.04.1982 
30.10.1990 
77/541/EEC 
-81/576 
-82/319 
-90/628 Installation of safety belts and 
restraint systems 
(amendment) 
" (adaptation) 
" (adaptation) 28.06.1977 
20.07.1981 
2.04.1982 
30.10.1990 
89/297/EEC Lateral protection of HGVs 13.04.1989 
91/226/EEC Spray-suppression systems 
etc. 27.03.1991 
%A 
- 2 
89/459/EEC Tread depth of tyres of vehicles 
< 3.5 tonnes (2.1.2.) 18.07.1992 
92/6/EEC Speed limitation devices (HGVs > 12 tonnes; 
coaches and buses > 10 tonnes (2.1.2.) 10.02.1992 
77/143/EEC Roadworthiness test (2.1.3.) 29.12.1976 
-88/449 " (amendment) 26.07.1988 
-91/225 " (amendment) 27.03.1991 
-91/328 " (amendment) 21.06.1991 
-92/54 " (amendment) 10.08.1992 
-92/55 " (amendment) 10.08.1992 
DRIVER BEHAVIOUR (2.2.) 
80/1263 Driving licence (2.2.1.) 4.12.1980 
91/439 " 29.07.1991 
91/671/EEC Use of safety belts 
and restraint systems 
by vehicles < 3.5 tonnes (2.2.2) 16.12.1991 
DANGEROUS GOODS (2.3.1.) 
89/684/EEC Vocational training (2.3.1) 21.12.1989 
SOCIAL LEGISLATION (2.3.2.) 
3820/85/EEC Certain social legislation 
relating to road transport 20.12.1985 
3821/85/EEC Recording equipment 20.12.1985 
-3314/90 " (adaptation) 16.11.1990 
-3688/92 " (adaptation) 21.12.1990 
88/599/EEC Standard checking procedures 23.11.1988 
J7 
- 3 -
TECHNICAL MEASURES (2.3.3.) 
85/3/EEC Weights and dimensions 19.12.1984 
-86/360/EEC 
-86/364/EEC 
-88/218/EEC 
-89/338/EEC 
-89/460/EEC 
-89/461/EEC 
-91/60/EEC 
-92/7/EEC (amendment) 
(plate) 
(amendment) 
(amendment) 
(amendment) 
(amendment) 
(amendment) 
(amendment) 24.07 
24.07 
11 .04 
27.04 
18.07 
18.07 
4.02 
10.02, 1986 
1986 
1988 
1989 
1989 
1989 
1991 
1992 
33 
PROPOSITIONS SUR LA_TABLE DU CONSEIL 
O VEHICULES. ASPECTS TECHNIQUES Date du 
Document 
Com(92)10ô final Systèmes d'attelage (3.1) 30.03.1992 
Com(92) 201final Résistanoe au feu (3.1) 14.05.1992 
O COMPORTEMENT DU CONDUCTEUR 
Com(88)707 final Alcoolémie (3.1) 5.01.1989 
Com(89)640 final (modification) 7.12.1989 
Com(88)706 final Limitations de vitesse 
(véhicules utilitaires et 
autobus) (3.1) 11.01.1989 
Com(91)66 final (modification) 25.03.1991 
o MARCHANDISES DANGEREUSES 
Com(91)4 final Préposé à la prévention 
des risques (3.1) 11.06.1991 
Com(92)327 final (modification) 14.08.1992 
% 
PROGRAMME D'ACTION TABLEAU II 
Actions législatives à court 
ou moyen terme Date provisio­
ned adoption 
Commission Etudes menant le cas échéant 
à des actions législatives Autres mesures non-législatives 
O Banque de données communautaire 
(CARE)- (3.2.4. et 4.2.1.1) 
0 Sécurité des véhicules 
(Harmonisation des règles techniques dans le cadre 
de la réception) 
. Voitures particulières 
. (crash-test, appui-tôte, résistance des sièges, 
etc.. (3.2.2) 
. amélioration des conditions de protection des 
passagers (4.2.2.) 
. Poids lourds (3.2.2.) 
. (dispositif anti-encastrement) 
. Véhicules toutes catégories (3.2.2.) 
. (protection conducteurs, avertisseurs, ...) 
. 2 roues (4.2.2.) 
. dispositif visant à empocher l'augmentation 
des vitesses 
O Contrôle technique (3.2.2.) 
. Directive sur valeurs limites admissibles de freinage 
. Directive sur CT des limiteurs de vitesse 
O Matières dangereuses (4.2.6.) 
. Directive cadre sur harmonisation des 
législations des E.M. 
. Uniformisation des procédures de contrôle 
0 Contrôle du temps de conduite (4.2.4.) 
. Règlement introduisant un appareil de 
contrôle digital 93 
94 
94 
94 
> 94 
93 
93 
94 
93 
94 
94 O Mesures spécifiques aux transports scolaires (3.2.2.) 
O Formation des conducteurs des cyclomoteurs (4.2.3. 
O Codification des mentions additionnelles sur 
le permis de conduire (4.2.3.) 
O Contrôle plus efficace du temps de conduite 
(tachygraphe) (4.2.4.) 
O Harmonisation et homologation des appareils de 
contrôle de l'alcoolémie (4.2.4.2) 
O Signalisation et marquage (3.2.3. et 4.2.5.) 
O Infrastructure 
. Harmonisation en matière d'équipement fixes 
(résistance au glissements de la chaussée... (4.2.5. 
. Signalisation de direction (recherche d'une 
approche communautaire) (4.2.5.) 
0 Crash-test (étude pour développer nouvelle 
procédure) (4.2.2) O Mise en place de projets pilote sur test et validation 
des systèmes télématiques sur site (3.3.4.) 
O Recherche envisagée dans 4ème Programme-
cadre (4.2.1.3) 
O Etude de faisabilité d'un fichier documentaire de 
sécurité routière (4.2.1.2) 
O Etude des expériences sur la conduite accompagnée 
apprentissage anticipé ou permis provisoire (4.2.3.) 
O Education routière scolaire : mise en commun 
d'expériences (4.2.3.) 
O Examen de l'incidence des drogues sur sécurité 
routière (4.2.4.) 
O Etude des possibilités techniques d'adapter la vitesse 
aux conditions de la route (4.2.4.1) 
O Renouvellement campagnes sur l'alcool et 
la conduite (4.2.4.2) 
O Publicité nuisible à la sécurité routière : définition 
d'un "European code of conduct" (4.2.7.) 
PRIORITY FIELDS FOR ACTION 
AND GUIDELINES FOR 
A COMMUNITY ROAD SAFETY PROGRAMME 
HIGH-LEVEL GROUP OF GOVERNMENT REPRESENTATIVES 
FINAL REPORT 
APRIL 1992 
-\6 
- 2 -
Table of Contents 
1. Introduction 
-Council Resolution 
- Current road safety situation 
- Reports by other organizations 
- Current EC activities and initiatives 
- Work of the High-Level Group 
2. General Objectives 
- Medium- and long-term objectives and targets 
- Criteria for determining priorities 
- Criteria for selecting level of action (EC or other) 
3. Conclusions and Action Programme 
- Gu i de Ii nes 
- Pr ior i t ies 
- Means 
Annexes 
1. Council Resolution of 21 June 1991 
2. Community accident statistics 
IT-
- 3 -
Road safety in the Community 
1. introduction 
1.1 On 21 June 1991 the Council and the Representatives of the Government 
of the Member States, meeting within the Council, adopted a resolution 
which, inter alia 
(a) stressed the importance of new efforts to improve road safety, 
(b) requested the Commission to draw up and implement a programme of 
measures at EC level, and to bring Member States' activities more 
into line with each other, 
(c) asked the Commission to invite a High-Level Group to define the aims 
and methods of implementation of such a programme. 
In response to this resolution (the text of which is given in Annex Da 
High-Level Working Group of government representatives was set up by the 
Commission. This report is a distiI I at ion of its work and sets out the 
objectives, guidelines and priorities for action which it has adopted. The 
proposals made by the Members of the Group will form the basis for a 
Community road safety programme to be prepared by the Commission and 
forwarded to the Council. 
1.2 Despite earlier initiatives at EC and national levels, including 
European Road Safety Year 1986, the road safety situation in the Community 
remains unsatisfactory, to say the least. As Annex 2 shows, the total 
number of accidents with personal injuries in the Community has remained 
relatively static in recent years at 1.2 million and the casualty level 
almost stable at an intolerable 50 000 deaths and over 1.6 million injured 
per year. Moreover the economic danger to the Community has been estimated 
by some experts at about ECU 70 billion per annum, taking the mid-value of 
a range from ECU 45 to 90 billion. 
11 
- 4 -
1.3 Despite these appalling human and economic losses, less public 
attention and less consistent effort has been given to road safety than 
would be tolerated in epidemics with similar effects. This may be partly 
because road accidents are widely scattered and involve complex inter­
actions between the human and technical elements involved. However, as a 
former Minister of Transport expressed it so graphically: "If three Jumbo 
jets crashed in one week with the loss of 1 000 lives, the aviation 
industry would be turned upside down-, yet in the Community we continue to 
live with 1 000 deaths every week from road accidents." It is the 
realization that this state of affairs cannot be allowed to persist which 
has led the Council to declare the urgent need for a consistent and 
effective road safety policy and programme at Community level. 
1.4 Casualty and other data in Annex 2 and the studies mentioned below, 
show up considerable differences between Member States in the level of road 
safety and its incidence on particular groups of road users, though precise 
and agreed comparisons are difficult to establish. 
1.5 Earlier reports by the Commission, the European Parliament and 
others, as well as the Council Resolution on European Road Safety Year 
19861 drew attention to the scale of the efforts required to improve road 
safety and to the different levels at which activities should be 
1 Resolution of the Council and of the representatives of the Governments 
of the Member States of the European Communities, meeting within the 
Council, of 19 December 1984 on road safety (84/C 341/01). 
?? 
- 5 -
undertaken. In its recent comprehensive review the Gerondeau Working 
Party1 addressed the complex issues concerned and identified no fewer 
than 80 activities of value, without at this stage attempting to rank them 
in order of priority. The report concluded that despite its various 
activities in road safety the Community had not yet defined a coherent 
road safety policy, let alone implemented one. Irrespective of the 
discussion on certain aspects of Community competence in the field of road 
safety, there was scope both for more legislative action and the 
development of new Community activities in the sphere of coordination and 
persuasion, in close collaboration with the Member States and other 
organizations involved in road safety. Bearing these needs in mind, 
several expert reports have addressed the problems of organization as a 
means for achieving road safety objectives. 
1.6 Even today, however, there are numerous ongoing and planned 
Community activities in road safety. These are: 
(a) existing legislation relating to: 
vehicle construction, 
tyres, 
dr iving Iicences, 
technical inspection of vehicles, 
wearing of seat belts, 
speed limitation devices for heavy goods vehicles, buses and coaches, 
safety windscreens; 
(b) planned legislation on: 
blood alcohol levels, 
speed limits for certain vehicles, 
1 Report of the High-Level Group for a European Policy on Road Safety, 
February 1991. 
^ 
- 6 -
(c) study of legislation on: 
more stringent technical standards for private and heavy goods 
vehicles, 
road signs and signals; 
(d) research and other non-1 egislative activities: 
the DRIVE programme, 
some aspects of EURET1, 
the CARE statistical road safety data bank. 
1.7 The High-Level Group of Government Representatives has met on four 
occasions, 20 September and 5 November last year and 17 February and 
10 April this year, and there have been informal contacts between them and 
the Commission, as well as amongst each other. 
The Group notes that, on the basis of its preliminary conclusions, the 
Commission has also consulted non-governmental associations active in the 
road safety field, such as the AIT/FIA2, PRI3, IRU4, ACEA5, IRF6, 
FEVR7, ECF8 and IFP9. It is keeping in close touch with international 
governmental bodies such as the OECD, ECMT, UN/ECE and the WHO and is also 
following closely the initiative of the European Parliament which is 
expected to adopt a new report on road safety in the coming months. 
1 Commission research programme on transport. 
2 AIT - International Touring Alliance. 
FIA - International Automobile Federation. 
3 PRI - International Road Safety Organization. 
4 IRU - International Road Transport Union 
5 ACEA - Association of European Car Manufacturers. 
6 IRF -International Road Federation 
7 FEVR - European Federation of Road Accident Victims. 
8 ECF - European Cyclist Federation. 
9 IFP - International Federation of Pedestrians. 
4/ 
- 7 -
2. General Objectives 
2.1 Before a Community road safety programme can be fruitfully set up, 
its general objectives must be defined. In this connection two major 
aspects have been considered: 
(a) the desirability of setting quantitative objectives or targets; 
(b) the level at which such objectives should be defined (EC, national 
etc.). 
This report naturally concentrates on the Community dimension of road 
safety and should be read with this purpose in mind. 
2.2 As regards the general Community objective, it would at least 
theoretically be conceivable to set a quantitative target different from 
the national objectives of the Member States. For example, a reduction of 
20% to 30% in road casualties as suggested in the Gerondeau Report could be 
set as a long-term (10 to 15 years) objective for the Community. It could 
be attained at different speeds in the Member States, and those 
Member States with poor current records could make special efforts to 
achieve above average reductions. Setting EC objectives for the medium 
term (5 years) would, of course, be more difficult. 
2.3 The High-Level Group discussed the desirability of quantitative 
targets in depth. A number of Member States do set such targets and have 
put forward good arguments in their favour, such as the political and real 
va lue.of giving precise indications for planning. In other Member States, 
which recognise the attractions of setting such targets, experience has 
been less satisfactory. In some cases, despite the introduction of 
4T-
- 8 -
specific safety measures, overall road safety deteriorated because of the 
effect of other more important factors, including notably the growth in 
road traffic. There have also been instances of campaigns that proved 
unexpectedly successful and in which possible targets have been easily 
exceeded. For these reasons the Group felt that it would not be 
appropriate at this relatively early stage of greater Community involvement 
with road safety to set quantitative EC targets. It is intended, however, 
to monitor closely the achievement of national targets and to profit from 
the experience for determining future road safety policy at EC level. 
2.4 In these circumstances it is all the more important to set 
qualitative targets as part of a coherent overall strategy, which is 
designed to encourage the creation of a homogeneous European road safety 
space and culture. In this respect a number of basic ideas and principles 
have been put forward: 
(a) taking road safety into account in other policies and projects, 
both at Community and national level; 
(b) proposing and implementing measures to encourage calm driving; 
(c) defining standards to improve vehicle safety; 
(d) paying greater attention to the most important factors causing 
accidents and to the most vulnerable road user categories. 
Ci 
- 9 -
2.5 As regards point (a) above the Group reviewed a suggestion for a 
framework directive which would provide that road safety considerations 
should be taken into account in Community transport and other policies, 
somewhat on the lines of environmental impact statements. It was pointed 
out that this idea was being incorporated into the projects now being put 
forward for the second DRIVE research programme. The Group takes the view 
that, even without such a framework directive, road safety should already 
be made an integral part of the common transport policy and other Community 
policies. Points (b), (c) and (d) were accepted as appropriate aims. 
The Group felt that "calm driving" had very wide application, especially in 
the sphere of information, education and publicity, and that it stretches 
across the three safety areas of users, infrastructure and vehicles. 
Higher vehicle safety was of particular and direct interest to the 
Community in view of the predominant EC role in setting vehicle standards, 
whilst it was becoming clear that some categories of vulnerable road users 
had not shared the improvement in safety standards imposed on others. 
2.6 In view of the heterogeneous nature of legislative and other 
national/EC measures for improving road safety members of the Group 
compiled a list of specific items in the field of road safety and indicated 
whether these should be carried out at EC or national level. 
2.7 The Group then discussed possible criteria for rating measures in 
order of priority recommended by the Gerondeau report in the light of the 
initiatives being taken by the Commission: 
^ 
- 10 -
(a) cost/benefit ratio which compares the value of the expected 
reduction in accident victims and material damage resulting from 
the introduction of the proposed measure with the direct cost of 
the equipment and manpower required and takes into account other 
effects, e.g. on the environment; 
(b) public acceptance which attempts to measure the extent to which 
restrictions on freedom or extra costs would be acceptable to those 
affected. This criterion is closely linked to: 
(c) enforcement capability, i.e. the volume of police and similar 
resources which can be devoted to the road safety sector and the 
role of the legal system which must set penalties broadly 
acceptable to society for the offences committed; 
(d) political circumstances may add an ad hoc criterion, in so far as a 
bad accident may create a favourable climate for legislative or 
other road safety measures; 
(e) long term education and social developments should be borne in 
mind, especially when assessing measures in the sphere of 
behaviour. 
2.8 Finally, in looking at the particular role to be played by the 
Community the Group emphasized that two further elements must be added to 
these general criteria: 
(a) concentration on those measures for which EC activities would 
4s-
- 11 -
provide "added value" over and above national and/or regional 
action; 
(b) recognition of the need for action at EC level where it cannot be 
taken by Member States because of the provisions of the Treaty, 
e.g. in the vehicle construction field. 
2.9 In the light of the above considerations the Group reviewed the 
initial replies to the Commission's questionnaire and revised some of the 
rankings provided therein. Measures and priorities were also considered in 
relation to the three classic areas of road safety: users, vehicles and 
the infrastructure. It became clear that, whilst measures relating to 
vehicles had long been the main focus of EC road safety activity, prior to 
the coming into force of the Single European Act safety considerations had 
sometimes played a secondary role in the drive to complete the internal 
market and remove technical obstacles to trade. By virtue of the new 
Article 100a the highest level of protection is mandatory, thus making EC 
vehicle regulations more safety conscious and providing higher construction 
safety standards. 
i,ê 
- 12 -
3. CONCLUSIONS AND ACTION PROGRAMME 
3.1 In the light of the action being taken by the Commission the 
High-Level Group was of the opinion that, in order to carry out the most 
effective road safety policy at Community level which would have a tangible 
impact on the intolerably high level of casualties and economic damage at 
present being inflicted, it was necessary to concentrate on a few high 
priority fields of action. 
Having reviewed the Member States' own priorities and action being 
undertaken by the Commission, the Group came to the following conclusions: 
3.1.1 the Community should take greater action on road safety in 
legislative and other fields; 
3.1.2 Community measures and initiatives should be evaluated on the basis 
of both other common criteria and the added value they make to 
national activities; 
3.1.3 among the range of possible long-term Community initiatives priority 
should be given in the short term to: 
(a) measures to moderate speed, 
(b) the problems of alcohol connected with driving, 
(c) education of road users, including driver training and 
road safety education at school, 
(d) greater active and passive vehicle safety, 
(e) exchange of know-how and experience, including a 
Community data bank, 
*? 
- 13 
(f) combating publicity which may adversely affect road safety, 
especially as regards vehicle speed; 
(g) infrastructure aspects relating to road safety. 
3.2 The Group looked at possible practical measures and*act ion which 
might be taken by the Community to implement the priorities outlined above. 
Appropriate proposals will be included in a Community programme which the 
Commission will draw up and put before the Council on the basis of this 
report. 
3.3 The Group discussed funding for such a programme in the course of its 
work on non-legislative measures (exchange of information and pooling of 
research). 
Various suggestions for an appropriate organizational framework were also 
examined. They included ideas put forward by others for setting up an 
"independent" road safety agency or road safety council, on lines similar 
to the European Environmental Agency or to "federal" road safety 
institutions in the United States or Canada. Without excluding further 
consideration of such options in the longer term, the High-Level Group -
representing the views of both Member States and the Commission - thought 
that road safety was and should remain essentially in the public domain, as 
an instrument of government policy. 
4* 
- 14 -
At this stage the High-Level Group came to the conclusion that it would be 
premature to establish an independent organization or indeed to determine 
the final shape of the body to handle road safety. 
3.4 It is essential, however, to provide continuity in implementing the 
above programme. It is, therefore, proposed that the High-Level Group 
should continue the work it has successfully begun, in determining the 
contents and establishing priorities for the Community road safety 
programme whilst establishing closer links between the Member States and 
the Commission. 
International organizations concerned with road safety should be involved 
in the Community's work as far as possible. 
3.5 On the question of a permanent role the Group would like, in addition 
to holding ad hoc discussions with the Commission and groups of government 
experts in preparing practical legislative initiatives, to work together 
with and be consulted by the Commission on non-legislative action where the 
Community is to play a new role, i.e.: 
(a) exchange of experience; 
(b) publicity (awareness campaigns at community level); 
(c) supporting Member States' road safety activities; 
(d) exploiting the results of the CARE statistical road safety data 
base; 
(e) study, follow-up and reporting on the road safety situation in 
Member States; 
(f) additional or new activities. 
4? 
- 15 -
3.6 The Group concluded that the present level of - human and 
financial - resources allocated to road safety within the 
Commission was inadequate and would not cover such a programme and 
that additional measures should be provided through the normal 
administrative channels. 
CO 
Annex i 
9 7. 91 Official Journal of ihc European Communities No C 178/1 
I 
(Information) 
COUNCIL 
RESOLUTION OF THE COUNCIL AND OF THE REPRESENTATES OF THE 
GOVERNMENTS OF THE MEMBER STATES. MEETING WITHIN THE COUNCIL 
of 21 June 1991 
on a Community programme of action on road safely 
(91/C 178/01) 
THE COUNCIL OF THE EUROPEAN COMMUNITIES 
AND THE REPRESENTATIVES OF THE 
GOVERNMENTS OF THE MEMBER STATES OF THE 
EUROPEAN COMMUNITIES. MEETING WITHIN THE 
COUNCIL. 
Having regard to the European Parliament's resolution 
of 13 March 1984 on the introduction of a programme 
of Community measures to promote road safety (') and 
the resolution of the Council and of the Representatives 
of the Governments of the Member States of the 
European Communities, meeting within the Council, of 
19 December 1984 (') relating in particular to 1986 as 
Road Safety Year in the Community, 
Having regard to the European Parliament's 1987 report 
on Road Safety Year, 
Having regard to the Commission communication to the 
Council of 9 January 1989 entitled 'Road safety: a 
priority for the Community', 
Whereas road traffic must be expected to increase, in 
particular following the completion of the internal 
market in 1992; 
Whereas the human suffering and the social cost of road 
accidents that each year cause more than 50 000 deaths 
and more than 1 500 000 injuries arc unacceptable not 
only from the moral and political but also from the 
economic and social points of view; 
Whereas, in this situation, a special effort must be made 
to improve road safety in all sectors pertinent to the 
prevention of road accidents, including vehicle manu­
facture and equipment; Whereas action should be taken ai Community level to 
intensify national measures, where joint action is likely 
IO be more effective than measures taken on an indi­
vidual, uncoordinated basis by the Member States, 
REAFFIRM the importance of improving transport safety, 
particularly road safety, 
REQUEST the Commission to draw up and implement a 
Community programme of practical measures designed 
to put into effect new common initiatives and compare 
existing national experience in the different fields of 
action and research in the campaign against road 
accidents and the consequences for the victims of such 
accidents; 
REQUEST the Commission to form a high-level working 
party of representatives of the Governments of the 
Member States to define the objectives of, and the 
detailed arrangements for implementing, this 
'programme, taking into account previous measures and 
studies as well as initiatives currently being carried out in 
this area; 
CONSIDER that such a working party should undertake 
a cost-benefit analysis of the measures to be included in 
the programme; 
REQUEST the Commission to submit a report to the 
Council by December 1991, accompanied, if appropriate, 
by initial proposals for the implementation of the 
programme from 1992. 
(') OJ No C 104, 16. 4. 1984. p. 38. 
(') OJ No C 341, 21. 12. 1984. p. I. 
Ç'-
Annex 2 
Road Accidents in the European Community: 
Number of deaths 1975-91 (a) 
COUNTRY 1975 1980 1985 1988 1990 1991(b) 
B Belgium 
DK Denmark 
D F.R. Germany 
GR Greece 
E Spain 
F France 
IRL Ireland 
I Italy 
L Luxembourg 
NL Netherlands 
P Portugal 
UK United Kingdom 2 346 
827 
14 870 
1 187 
5 833 
14 166 
586 
10 177 
124 
2 321 
3 479 
6 679 2 396 
690 
13 041 
1 372 
6 522 
13 499 
564 
9 135 
98 
1 997 
2 941 
6 239 
EC Eur. Community 62 595 58 494 
Other ECMT (7) 17 283 14 778 1 801 
772 
8 400 
1 908 
6 374 
11 387 
410 
7 629 
79 
1 438 
2 438 
5 342 
47 978 
15 507 1 967 
713 
8 213 
11 1 692 
8 252 
497 
463 
425 
84 
366 
294 
230 
50 196 
17 813 1 978 
634 
7 906 
1 945 
9 032 
11 215 
478 
7 085 
70 
1 376 
3 140 
5 402 
50 261 
17 201 1 881 
604 
7 465 
(O 
1 955 
8 843 
10 325 
439 
9 095 
80 
1 289 
3 564 
4 700 
50 240 
ECMT (19) 
USA United States 
J Japan 79 878 73 272 63 485 68 009 67 462 
44 425 51 091 43 825 47 093 
14 206 11 752 12 039 13 447 
Source: ECMT 
Notes: (a) deaths converted to 30-day basis. 
(b) Estimated on basis of provisional data for 1991 
(c) D - 11 Lander. 
^ "^ 
FINANCIAL STATEMENT 
A. FINANCIAL IMPLICATIONS 
1. Title of the operation: A Community road safety programme 
2. Budget heading involved: B-2 - 702 
Other heading can be involved (for example, research). 
3. Legal basis: 
Article 75 of the Treaty. 
4 . Peser ipt ion: 
4.1 Objective: to promote and develop, by legislative and 
non-leg islative measures, road safety in the Community. 
4.2 Duration: open-ended. 
5. Proposal for classification of expenditure or revenue 
5.1 non-compulsory expenditure 
5.2 differentiated appropriation 
5.3 type of revenue involved: None 
6. Type of expenditure or revenue 
6.1 100% grant : no 
6.2 Grant co-financed by other private/public sector 
sources: yes 
6.3 Interest rebates: no 
6.4 Others: studies 
6.5 In case of the measure making a profit, is a partial or 
total reimbursement of the Community financial support 
foreseen? no 
6.6 Does the proposed action imply modification of the level 
of revenues? no 
5"* 
Financial Impact 
7.1 Method of calculating the total cost of the action. 
At the level of the Community, the measures to be taken 
will be most often studies, which will be subject to the 
normal Commission rules. : 
Because of the wide-ranging nature of the measure, and 
the need to await guidelines from the Council which can 
be translated into concrete, costed, actions, it is not 
possible at this stage to give a total cost. 
The monies required for the programme are included in 
the framework of the future financial perspectives, for 
the period 1993 - 1997. 
7.2 Distribution by measure 
7.3 
7.4 Stud ies 
Data col leet ion 
others BUDGET 93 
PM PDB 94 
PM % VARIATION 
Administrative costs directly linked to this measure 
None 
Indicative scale of commitments 
In MIOECU 
BUDGET PDB 
1993 1994 
Budget heading 1,8 
B2-702 (partly) MECU INDICATIVE PROGRAMME 
1995 
PM 1996 
PM 1997 
PM 1998 
and after 
PM 
Anti-fraud measures foreseen in the proposaI 
Norma I.procedure 
Administrative cost (Part A of the Budget) 
none 
^4 
C. Cost Benefit Analysis 
9. Elements of Cost Benefit Analysis 
9.1 Object ives 
Road transport safety is an accompanying measure of the 
Common Transport Policy. 
9.2 Justification of the measure. 
As the objective is to improve road safety in th.e. 
Community, it is legitimate to consider the socio­
economic benefits to the Community. The most recent 
studies on the socio-economic cost of road accidents 
(e.g. COST 313) estimate the cost per death at 
500.000 ECU and per injury at +/- 125.000 on average. 
Given that road accidents cause each year, around 55.000 
deaths and 1 1/2 million injuries (light or serious) the 
total socio-economic cost could be estimated at around 
46.000 million ECU per year. 
The multiplier effects are unknown. 
9.3 Follow-up and evaluation of the measure. 
9.3.1 Performance indicators chosen: periodic reports. 
9.3.2 Method and timing of the evaluation foreseen: usual 
controls 
9.4 Coherence with the financial programming. 
9.4.1 Is the measure foreseen in the DG's financial programme 
for the years in question? yes 
9.4.2 Indicate which general objective of the DG's financial 
programme corresponds to the objective of the proposed 
measure. 
Common Transport Policy, transport safety. 
9.4.3 Major unforeseen factors which could affect the specific 
results of the measure: none 
rr 
KSN 0254-1475 
COM(93) 246 final 
DOCUMENTS 
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Catalogue number : CB-CO-93-308-EN-C 
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