Opinion of the Committee of the Regions on the 'Commission Communication to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on the Common Transport Policy Action Programme 1995-2000` (96/C 337/03)

THE COMMITTEE OF THE REGIONS,

Having regard to the 'Commission Communication on the Common Transport Policy Action Programme 1995-2000` (COM(95) 302 final);

Having regard to the decision of the European Commission of 1 August 1995 to consult the Committee of the Regions on this matter, in accordance with the first paragraph of Article 198C of the Treaty establishing the European Community;

Having regard to the COR decision of 18 July 1995 to instruct Commission 3 to draw up the Opinion;

Having regard to the Draft Opinion (CdR 406/95 rev.) adopted by Commission 3 on 8 February 1996 (Rapporteurs: Mr Färm and Mr Weingartner),

unanimously adopted the following Opinion at its 13th Plenary Session of 12 and 13 June 1996 (meeting of 13 June 1996).

1. Objectives and points of departure

The Maastricht Treaty marked a new stage in the common transport policy. While maintaining the goal of safeguarding and further developing the single market, it also underlined the importance of the following objectives:

- sustainable development taking account of the environment and

- improvements in the safety and effectiveness of transport infrastructure.

The explicit recognition of the subsidiarity principle means that in the context of the common transport policy, decisions should be taken and implemented at the most appropriate level.

The Action Programme consists of policies and initiatives in three key areas:

- improving quality by developing an integrated transport system, based on advanced technologies, which will further environmental, safety and economic policy objectives;

- improving the functioning of the single market in order to promote efficiency, choice and a user-friendly provision of transport services while safeguarding social standards;

- broadening the external dimension by improving transport links with non-EU countries and fostering the access of EU operators to other transport markets.

The Committee of the Regions believes its remit should require it to focus on the views and interests of the people of the regions and local areas concerned, as consumers and transport-users, and as citizens whose lives are affected by transport.

The Committee of the Regions stresses that the principle of sustainability reflected in the Action Programme is of great importance for the citizens concerned. It means that the strain imposed by transport on the affected regions must not be allowed to grow to the point where transport policy has to be changed because of popular resistance. A sustainable transport policy, embedded into a spatial-planning strategy, must preempt such situations.

The Committee of the Regions endorses the three objectives of the Action Programme. It would, however, like to see two further aspects dealt with in relation to quality improvement: the user/customer perspective and fair competition between transport modes.

In line with the principle of subsidiarity, the user/customer perspective assigns a major role to local authorities and regions in the development of the common transport policy. In order to develop this aspect, more information is required on the needs and preferences of the various groups of customers. More information is also needed on present and expected trends on the passenger transport market in the Member States. In this context, the Committee of the Regions welcomes the European Commission's decision to draw up a Green Paper on The Citizens' Network: Fulfilling the potential of public passenger transport in Europe.

The terms of competition between the various transport modes, particularly road and rail, must take account of all their costs. The Committee of the Regions therefore welcomes the approach adopted in the new Green Paper: Towards fair and efficient pricing in transport: policy options for internalizing the external costs of transport in the European Union.

Special measures must also be taken to protect people and the environment in particularly sensitive areas, so that switching to environmentally sound forms of transport does not remain a mere policy objective, but is implemented in practice. In these areas, transfers of road transport revenue to the railways will be needed in order to build up the requisite rail infrastructure.

The Committee of the Regions points out once again that this Action Programme is based on the White Paper on The Future Development of the Common Transport Policy and is thus aimed at promoting popularly endorsed and sustainable mobility. This means giving priority to environmentally sound transport modes and systems, while at the same time providing the public at large with information on the Action Programme and the envisaged measures, thus contributing to greater transparency.

2. Policy and actions: summary

2.1. Quality improvement

2.1.1. System development

2.1.1.1. The Committee of the Regions welcomes the better integration of transport modes, with greater recourse to environmentally friendly and energy-saving modes.

Many people today are faced with poor transport links to their workplace or to services and amenities. The Committee of the Regions therefore believes that the aim must be improved general mobility for various activities. The Committee particularly emphasizes the importance of the siting and design of passenger transport junctions and the establishment of intermodal management. Junctions should permit rapid, convenient and reliable transfer between car, bus and rail. Transport by ship, ferry and air must also be taken into consideration. The EU's Thermie initiative provides a sound basis on which to build.

The Committee of the Regions believes that regional airports are important junctions and that appropriate incentives should be provided, particularly where rail offers no adequate alternative. In sparsely populated areas in particular, regional airports may be essential to economic development. High standards of flight and passenger safety and environmental protection, together with the need for links to terrestrial transport systems, make the development of regional airports an expensive proposition for the regions.

2.1.1.2. The Committee of the Regions agrees that new transport and information technologies should be promoted. As part of EU research policy, more funding should be made available for improving transport system quality and enhancing the global competitive edge of European industry.

The Committee of the Regions would stress the importance of the development of technologies which facilitate travel. Information systems which can be accessed at home, in the workplace and at service centres must be developed and standardized, in order to make it easier for the travelling public to chose between different travel options and combinations of transport modes.

The Committee of the Regions welcomes the work being done to introduce telematics systems for road traffic. The Committee shares the view that the Member States should give priority to the introduction of viable applications using mutually compatible equipment, which will improve safety and efficiency throughout Europe.

2.1.1.3. The Committee of the Regions agrees with the Commission that the trans-European networks (TEN) are a way of ensuring the progressive integration of transport networks. Lack of funding and calls for more environmentally-sound forms of transport make it essential for the EU to lay down principles facilitating intermodal financing schemes. Examples include revenue from road tolls being used to expand the infrastructure of other forms of transport in the same region or along the same route. Moreover, decisions on TEN projects should focus much more on economic and environmental benefits and on ecological and efficiency-enhancing factors, with due regard for compatibility with the existing networks. In selecting TEN projects, special attention should also be paid to EU traffic with other countries, and especially to the changes now taking place in East-West goods traffic.

2.1.1.4. The Committee of the Regions shares the Commission's view haulage that public transport must provide attractive alternatives to the private car and to road haulage. Society should be at pains to create conditions and options allowing the individual to choose a form of transport which best helps achieve the common environmental protection, safety and efficiency objectives of transport policy.2.1.2. Environment

2.1.2.1. The Committee of the Regions stresses that EU transport policy must reconcile the requirement for greater mobility with the associated strain on the environment. The Committee of the Regions therefore calls for more research into the environmental effects of transport and into criteria for assessing them; this will allow external costs to be apportioned to the various forms of transport via taxes and charges. The EU must do more to foster R & D work on propulsion systems and vehicles with low emissions of carbon dioxide and other pollutants. Research into renewable fuels must be stepped up. Large-scale research and development not only helps improve the environment but also - and this is particularly important - enhances the global competitiveness of European industry. Macroeconomic aspects must be borne in mind here.

2.1.2.2. Transport policy must be tailored to the needs of people and the natural environment. Transport-related environment problems which have an impact on public health, nature and the climate must be curbed. We must seek to improve the environment for the generations to come.

2.1.2.3. The Committee of the Regions calls for special measures supplementing the Action Programme for the protection of ecologically sensitive regions and areas affected by the European transport system. In these specially threatened areas, specific preventive measures must be taken and tailored more effectively than hitherto to local conditions. These measures would include building regulations, integrated solutions for the traffic infrastructure network, and in exceptional cases restriction of users' complete freedom to choose the mode of transport where comparable alternatives are available.

2.1.2.4. The Committee of the Regions would like to stress in particular the need to get to grips with infrastructure overload, which is the root cause of environmental damage, high accident rates, longer journey times and heavy costs to the individual and society. The Committee of the Regions proposes that the European Commission initiate a 'benchmarking` scheme, setting standards for the expansion of public transport, proposing other measures to mitigate environmental damage, and identifying ways of reducing traffic (e.g. management of parking space) and alternative forms of transport (e.g. car-sharing, pooling, flexible operating procedures in public transport). Residential building and job creation must take greater account of the availability of public transport and help improve environmental conditions.

2.1.2.5. The Committee of the Regions calls for a change in the pricing and taxation of the various types of vehicle and fuel to encourage transport users to make environmentally sound choices. The current principle whereby mineral oil and alternative fuels are taxed at the same rate must be changed, so as to give people an incentive to use alternative, environmentally friendly fuels.

2.1.2.6. The Committee of the Regions draws attention to difficulties arising from the rapid growth of road haulage. These represent a major and growing problem for the environment and also, given the traffic density levels, in terms of road safety. The Committee of the Regions recommends establishment of a balanced network of regional, intermodal freight transport centres and of centres for improved goods distribution in conurbations so that freight can be transferred quickly and efficiently from one transport mode to another without any serious problems of transshipment. The Committee also believes that costs and charges should be used to sway operators' choice of transport mode, with a view to alleviating the problems caused by goods transport. EU support for research should focus inter alia on the development of common logistical blueprints for cities, (including telematics applications).

2.1.2.7. The Committee of the Regions shares the view that efforts to reduce carbon dioxide emissions must cover all modes of transport. The international nature of shipping and air transport and the lack of international rules in this field make it difficult to take swift action, for example to curb the various environmental problems caused by shipping. The Committee believes that the global dimension of carbon dioxide emissions makes it all the more urgent for the Commission to pursue its goals actively within international shipping organizations so that, in the long run, CO2 emissions by ships can be reduced. The Committee also draws attention to the environmental problems caused by emissions of sulphur and nitrogen oxide by maritime transport. The work being done on environmental indexation for ships is important. At an international level, the Commission should work towards improving shipping performance in every way, thus enhancing the overall environmental image of maritime transport. Appropriate environmental rules should apply to shipping/ferries used for public local transport as well as to other modes of transport. The fuel used should, for example, belong to the same environmental category.

2.1.2.8. The Committee of the Regions also believes that the adverse impact of transport on the environment cannot be dealt with by measures taken in the Member States alone. In eastern Europe, traffic is rapidly increasing even though the road network is much too small to meet demand. Many high-emission vehicles from eastern Europe are using roads in the EU. Cooperation with non-Member States must therefore be developed in order to mitigate transport-induced environmental damage.

2.1.3. Safety

2.1.3.1. The Committee of the Regions agrees with the Commission that transport safety is a major concern. The Committee also agrees that transport volumes, both within Member States and across frontiers, will continue to rise. The Committee of the Regions believes that transport safety can be improved only if more people opt to use public transport. But if this is to happen, public transport must be made more attractive.

The incidence of transport-related deaths and injuries is very high. The measures proposed by the Commission such as accident analyses, technical standards for vehicles, improvements in infrastructure, including telematics systems, and special consideration for the human factor are no doubt very useful. The Committee of the Regions suggests that consideration be given to common principles for speed limits, and to whether stricter enforcement of traffic regulations and simplified and more efficient prosecution of infringements within the Community should be added to the list of measures. Excessive differences between the rules and safety regulations of the Member States hamper efforts to make transport safer and also lead to distortions of competition. Efforts should also be made to bring non-EU traffic safety standards into line.

2.1.3.2. The Committee of the Regions agrees that tightening the rules governing the right to drive motor vehicles could raise transport safety levels. In particular transport safety could be improved by limiting the access of certain age groups to particularly dangerous and accident-prone types of vehicle (e.g. high-performance motor cycles in the case of young people).

2.1.3.3. In the Committee's view, transport safety must be approached from a different angle in rural as opposed to urban areas. This should be taken into account consistently in all EU activities. The Committee of the Regions calls for a comprehensive survey comparison of the impact of transport safety measures in various countries. Member States with more or less the same standard of transport safety may differ widely in relation to categories of transport user and transport modes. The abovementioned comprehensive survey will provide transport authorities at national, regional and local level with information which will help them to improve transport safety.

2.1.3.4. The Committee of the Regions feels that traffic-calming schemes can reduce the risk of accident arising from the interaction of different transport user groups. Redesign can achieve this, as well as improving the general appearance of roads. Traffic is slowed down and the risk of accident diminished. Studies in Germany in particular have shown that this can be a very effective way of improving road safety. Comparative studies should be carried out in towns in various Member States and the results evaluated. The Committee of the Regions believes that work on transport safety should, as is the case with quality control in industry, be based on a 'zero defect` strategy. An approach of this kind will have a major impact on strategy and the specific measures chosen, and lead to improved results in the long term. It will be also easier to adopt an approach such as this if transport safety activities are more closely linked to the state health systems.

2.1.3.5. The Committee of the Regions believes that uniform rules on air transport make for improved safety. In laying down common rules, account must be taken of differences in the size of airports and the hazards involved. Generally speaking, large airports with high passenger volumes are at greater risk, for example, of terrorist attack. The precautions taken should therefore reflect the specific risk concerned. Smaller airports need different safety regulations; this should be taken into account when laying down European rules.

Safety problems are a major obstacle to the development of extensive air and sea links with eastern Europe and non-European countries. The Committee feels that the EU Member States should, inter alia via training and development work, contribute to improved safety in shipping and air transport.

2.2. Single market

2.2.1. Market access and structure

2.2.1.1. The Committee of the Regions stresses that properly-functioning competition is an important element in creating an efficient transport market, including in local and regional public transport. Monitoring must be improved to ensure compliance with competition and transport laws regulations.

2.2.1.2. The Committee of the Regions points out that further legislation is required to promote competition in the transport sector. In awarding transport contracts, all competitive avenues must be explored so as to raise efficiency and cut costs, especially in public transport. If competition is promoted and local public transport made subject to competitive conditions, this will free resources which can be used to fund further improvements in the standard and quality of public transport, and reduce fares and tax subsidies. This holds true for buses, trams and trains.

2.2.1.3. The Committee of the Regions feels that the EU should make long-term arrangements with regard to the current and agreed future rules on the dimensions and maximum permitted load and weight of lorries and buses used in cross-border transport. Increasing the dimensions and weight of heavy vehicles creates problems not only because it means exceeding the carrying capacity and expansion potential of transport infrastructure, but also because it actually makes road transport cheaper. In addition, it gives road transport a permanent competitive edge, unacceptably increasing the pressure on the environment. However, there are EU regions, particularly in northern Europe, where conditions are quite different and where large, heavy lorries are of great importance for economic development. These regions must be allowed flexibility with regard to the rules on weights and dimensions.

2.2.1.4. The Committee of the Regions urges the harmonization of tax levels and social provisions in order to eliminate differences between terms of competition in road haulage.

2.2.2. Costs, charges and pricing

2.2.2.1. The Committee of the Regions welcomes the harmonization of the charging regimes for the various transport modes and the efforts to reduce differences between these modes. The regions however also urge backing for intermodal transport, including the measures necessary to improve transfer between various modes and greater use of new combined transport technologies. This will on the one hand make it possible to relieve some of the pressure on the more heavily used parts of the transport system and, on the other, to exploit fully the potential benefits of intermodal transport for the system as a whole.

2.2.2.2. The Committee of the Regions welcomes the Green Paper on the internalization of external costs. A fair and efficient system of taxes and charges is essential for reasons of safety and efficiency and to protect the environment. The Committee of the Regions considers it a matter of urgency that the European Commission draw up, without delay, proposals for Community legislation on the internalization of external costs, for example via the Directive on transport infrastructure costs. In particular, it is vital that external costs be taken into account in sensitive geographical areas and regions; this could be done, for example, via road tolls, toll surcharges or regional road pricing.

2.2.2.3. It would be appropriate to develop a common road-pricing system which makes it possible to set road-use prices fairly and efficiently, taking account of external costs. A road-pricing system would be much more effective than the current toll and 'vignette` systems in attaining overriding environmental, safety and efficiency objectives. Pricing and operation of the scheme should be left to the individual regions or towns. However, the EU should develop a common standard for road pricing in order to ensure the compatibility of the technical equipment required.

2.2.2.4. The COR considers satisfactory operation of the slot allocation system at airports to be of importance to the regions. For the regions to be attractive to industry, regional air traffic must be allocated appropriate landing slots at major airports, to facilitate access to connecting flights. In remote regions of both northern and southern Europe, flying is the only realistic option for domestic and European travel. It is unacceptable that people living in these sparsely populated areas should be put at a disadvantage for lack of airport slots. The Special arrangements for regional transport must not be abolished or diluted by the review of Council Regulation (EEC) No 95/93 of 18 January 1993 on common rules for the allocation of slots at Community airports. Moreover, transport must continue to be coordinated in the Member States. Each country knows its own regions' problems and transport needs best.

2.2.3. Social dimension

2.2.3.1. The Committee of the Regions shares the view that the harmonization of regulations on health and safety at work is not only important in social policy terms, but that it also helps considerably to prevent distortions of competition. Road haulage is a particularly important case in point.

2.2.3.2. The Committee of the Regions draws particular attention to the importance of facilitating access to public transport for the disabled. At the moment, this group is not made up primarily of people confined to wheelchairs. Efforts should therefore focus on making it easier for the majority of people with limited mobility to use public transport. Special additional solutions are required for wheelchair-users. The Committee of the Regions proposes that the Commission initiate a comprehensive exchange of relevant experience across the EU and introduce trial schemes in a number of regions.

2.3. External dimension

2.3.1. The Committee of the Regions considers it extremely important to develop links between EU border regions and neighbouring regions in non-EU countries, especially where there is the long-term prospect of that country's accession. Good transport links are a sine qua non of improved, inter-regional contact and the opportunities this offers for the democratic, cultural and economic development of the EU's neighbouring countries. The EU should, for example, consider proposing and promoting the establishment of efficient ferry, air and rail links.

2.3.2. The Committee of the Regions also welcomes the Commission's efforts to step up EU contacts with the various international transport organizations.

Proposals and actions for the period 1995-1996

Annex 1 lists a whole range of ongoing and in some cases planned activities for 1995/96 in all the areas covered by the Action Programme.

The Committee of the Regions would particularly stress the importance of activities in the following areas: implementation of new technologies, integration of transport systems, intermodality, environment, safety, liberalization and competition, costs, charges and pricing.

Activities for the period 1997-2000 (and beyond)

Annex 2 of the Action Programme lists proposals for action after 1996. This focuses mainly on maritime and air transport.

The Committee of the Regions considers that the proposals made in this Opinion should be added to the list of activities.

3. Conclusions

The Committee of the Regions

3.1. welcomes the Action Programme designed to ensure long-term, sustainable mobility in Europe. The Committee of the Regions stresses that in dealing with the question of sustainable mobility, it has put citizens' interests first;

3.2. therefore considers that customers' views must be a major determinant of EU transport policy. Here the local authorities and the regions have a particularly important role to play. This is also in line with the principle of subsidiarity;

3.3. therefore considers that the views of affected sections of the population should be a further determinant of transport policy. Public acceptance of transport systems is an important precondition for long-term mobility in Europe;

3.4. points out that local areas and regions should be given more scope for influencing transport planning. The aim is to develop an integrated blueprint for local and regional communication links, so that the various transport modes, infrastructure and landuse planning all fall within the same planning and decision-making system;

3.5. considers that the terms of competition between individual transport modes must reflect all the costs involved. Moreover, special measures should be taken in ecologically sensitive areas and regions to transfer traffic to more environment-friendly forms of transport;

3.6. calls for new measures to combat the severe environmental damage caused by transport. In relation to passenger traffic, this means greater use of public transport and pressing ahead with new, environmentally sound transport solutions and means of transport. In relation to goods, it means transferring all long-distance shipments from road to rail and inland waterway and applying new, integrated solutions designed to exploit technological progress in the interests of public and environment;

3.7. calls on the Council and the Commission to provide prompt, appropriate support, for the planning and implementation of environment-friendly transport schemes having a European dimension;

3.8. feels it is important to develop new strategies for improving general mobility which allow people to combine different forms of transport (private vehicles, taxis, rail, air etc.) quickly, comfortably and reliably;

3.9. stresses the importance of providing transport services for people with limited mobility, and thus make public transport more attractive to them by tailoring it more closely to their needs;

3.10. draws attention to the need for the development of new technologies, in particular in motor vehicle engineering, for the use of alternative energies and for information and traffic management systems. It is therefore proposed that research projects be promoted in this area to ensure that improvements which are essential for environmental reasons are achieved as quickly as possible, and that European industry remains competitive in this economic sector;

3.11. calls for action to improve transport safety, in particular by expanding public transport and making it more attractive, by applying traffic calming measures and by introducing a zero defect strategy;

3.12. calls for external costs to be taken into account when calculating and financing road costs. A common system of road pricing should be introduced and changes made to the taxation of the various fuels and vehicle types, so that transport users can make choices which are in tune with the needs of the environment. The EU Directive on mineral oil should be amended to create incentives for the use of environmentally sound fuels. The Committee also calls for approval of cross-financing in relation to major transport routes, such as the trans-European networks, if urgently needed investments in infrastructure can be (part-) financed in this way. A road-pricing system should however accommodate the special circumstances of thinly populated areas with low traffic levels and few traffic jams, otherwise road pricing might shift traffic to other roads where vehicles cause greater environmental damage than on main roads.

3.13. advocates harmonizing air safety regulations, with due consideration for the special situation of smaller airports. In allocating slots at Community airports, it is important that the special rules for regional transport are neither abolished nor diluted;

3.14. calls for a common long-term standard to be set for all international combined transport equipment (containers, swap bodies for lorries etc.). This is essential if goods are to be transferred with maximum efficiency from one mode of transport to another. Standards governing the weights and dimensions of vehicles used for cross-border road transport also need to be laid down and applied on a long-term basis;

3.15. wishes to see cooperation between the regions of the EU Member States and eastern Europe and other non-Community countries with a view to tackling fast-growing environmental problems, discussing safety aspects and promoting the expansion of economic relations. In this context, the Committee of the Regions is keen to see promotion of maritime and air-transport safety, inter alia by means of training and development work, and the establishment and promotion of efficient ferry and air links between EU border regions and neighbouring non-Community countries.

Done at Brussels, 13 June 1996.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA