COMMUNICATION FROM THE COMMISSION - THE FUTURE DEVELOPMENT OF THE COMMON TRANSPORT POLICY - A global to the construction of a Community framework for sustainable mobility
Date: 1992-12-02
Institutions: DG VII – Transport, European Commission
Subjects: carriage of goods, carriage of passengers, common transport policy, intra-EU transport, single market, sustainable mobility, trans-European network, transport economics, transport network, transport safety

COI\NISSION  OF  THE  EUROPEAN  COMMUNITIES 

C0M(92) 494 

f  Ina I 

Brusse Is,  2  December  1992 

COMMUNICATION  FROM  THE  COMMISSION 

THE  FUTURE  DEVELOPMENT 

OF  THE  COMMON  TRANSPORT  POLICY 

A global  approach  to  the  construction 

of  a  COmmunlty  framework 

for  sustainable  IIOblllty 

TABLE  OF  CONTENTS 

I. 

INTRODUCTION 

1992  AS  A TURNING  POINT  FOR  THE  CTP  par  1-9 

II.  THE  TRANSPORT  ECONOMY 

TRENDS  AND  TENDENCIES 

11. 1 

11 • 2 

11  • 3 

General 

Modes 

Investment  and  pressure  on  capacity 

par  10-12 

par  13-17 

par  18-19 

> 11  .4 

Broader  environmental  and  other  pressures 

par  20-27 

11.5 

11  .6 

I I I • 

Prospects  In  particular  for  the  environment 

par  28 

The  transport  economy 

par  29-34 

OBJECTIVES  AND  SCOPE  OF  THE  COMMON  TRANSPORT  POLICY 
SUSTAINABLE  MOBILITY  FOR  THE  COMMUNITY  AS  A  WHOLE 

• 

I I I • 1 

Objectives  on  the  Common  transport  policy 

par  35-39 

I 11  • 2 

Global  approach 

IV. 

ISSUES  AND  POSSIBLE  ANSWERS 

IV .1. 

THE  COMPLETION,  REINFORCEMENT  ~D  PROPER  FUNCTIONING  OF  THE 
INTERNAL  MARKET 

IV.1.a 

General 

1V .1.b 

Application  of  the  1992  111easures 

IV. 1.c 

Generally  applicable  Treaty  rules 

par  46-47 

par  48-53 

par  54-64 

par  65-69 

IV. 1 .d 

IV. 1 .e 

Further  legislative  development  of  the 
Internal  market 

Information  and  analysis  of  the  functioning 
of  the  market 

par  70-74 

IV.2 

From  the  ell(cid:127)
Integrated  system 

lnatlon  of  barriers  towards  an  effective 

IV.2.a 

IMBALANCES  AND  INEFFICIENCIES 

IV.2.a.1 

Modal  dlsequlllbrla 

IV.2.a.2 

Regional  dimension 

IV.2.a.3 

Environment 

IV.2.a.4 

The  Cha I I enge 

par  75-85 

par  86-90 

par  91 

par  92 

IV.2.b 

TRANSPORT  DEMAND, 
AND  COMPLEMENTARITY 

INTERMODAL  COMPETITION 

IV.2.b.1 

capacity  constraints  and  possible  responses 

par  93-95 

IV.2.b.2 

Costs  charges  and  subsidies 

IV.2.b.3 

Complementary  Measures 

IV.2.c 

SYSTEM  AND  NETWORK  DEVELOPMENT 

IV.2.c.1 

Introduction 

IV.2.c.2 

Research  and  development 

IV.2.c.3 

Trans-European  network  development 

IV.2.d 

ENVIRO~ENTAL  PROTECTION  AND  CONSERVATION 
IMPROVING  THE  ENVIRO~ENTAL  PERFORMANCE  OF 
TRANSPORT 

IV.2.d.1 

Introduction 

IV.2.d.2  Main  environmental  problems 

IV.2.d.3  Reactions  to  the  Green  Paper 

par  96-103 

par  104-117 

par  118-122 

par  123-133 

par  134-147 

par  148-150 

par  151-155 

par  156-160 

IV.2.d.4  The  COmmunlty•s  response  environment  protection 

as  an  Integrated  theme  of  the  CTP 

par  161-184 

IV.2.e 

TRANSPORT  SAFETY  FOR  THE  PROTECTION  OF  USER  AND 
NON-USER  ALIKE 

IV.2.e.1 

General 

IV.2.e.2 

Road  Safety  :  the  current  situation 

par 

185-187 

par 

188-204 

IV.2.e.3 

Maritime  safety:  the  current  situation 

par 

205-221 

IV.2.e.4 

Civil  aviation:  safe  but  perfectible 

par 

222-240 

IV.2.e.5 

Transport  of  dangerous  goods  by  al I  modes 

par 

241-249 

IV.2.f. 

SOCIAL  POLICY  AND  TRANSPORT 

IV.2.f.1.  Community  social  policy  and  the  social 

dl11enslon  of  CTP:  Complementary  instruments  par  250-255 

IV.2.f.2  Principal  areas  of  activity 

par  256-285 

IV.2.f.3  TransPort  for  people  with  reduced  mobility 

par  286-288 

IV.2.f.4  Protection  and  promotion  of  employment 

par  289-290 

IV.3 

STRENGTHENING  THE  EXTERNAL  DIMENSION  OF  THE  CTP 

IV.3.a 

The  external  dimension:  progress  to  date 

par  291-297 

IV.3.b 

current  problems 

par  298-304 

IV.3.c 

Community  powers  In  the  external  fields 

par  305-309 

IV.3.d 

New  approach:  priorities 

par  310-323 

IV.3.e 

IV.3.f 

A global  approach  to  the  transPort  services 
and  systems  of  Europe 

par  324-329 

International  organisations  and  multilateral 
conventions 

par  330-331 

V.  COMMUNITY  POLICIES  AND  PRIORITIES 

V.1 

The  action  programme 

par  332-335 

V.1.a 

The  economic  and  regulatory  framework 

par  336-357 

V.1.b 

Technical  harmonisation 

V.1.c 

Research  and  development 

V.1.d 

Trans-European  Networks 

V.2 

V.3 

V.4 

V.5 

Safety  for  the  protection  of  the  user  and 
non-user  a I Ike 

Environment 

Social  protection 

External  relations 

par  358-362 

par  363-367 

par  368-372 

par  373-380 

par  381-383 

par  384-389 

par  390 

- 3  -

I I.  I:NTBODUCTION  I 

1. 

2. 

3. 

4. 

5. 

6. 

7. 

- 4  -

The  end  of  1992  will  mark  the  beginning  of  a  new  departure  for 
the  Convnunity's  common  transport  pol  Icy  (CTP). 

For  many  years  progress  towards  the  real isat Ion  of  the  CTP  was 
slow,  especially  when  measured  against 
Importance  of 
transport  In  the  Convnunlty  economy. 

the 

to  Intervene  several 

times  on  basic 
The  Court  of  Justice  had 
quest Ions  of 
i nterpretat Ion  of  the  transport  prov Is Ions  of  the 
Treaty  of  Rome  In  order  to  make  progress  possible.  This  process 
the 
reached  Its  cl lmax 
Inland  transport  of  goods  and  passengers  should  be  open  to  al I 
Convnunlty 
to  national lty  or 
place  of  establishment. 

firms,  without  discrimination  as 

the  Court  declared  that 

In  1985  when 

Its 

final  phase 

landmark  Judgement  of 

the  Court  coincided  with 

the 
The  1985 
Commission's  White  Paper  on  the  completion  of  the  Internal  market 
now  entering 
to  1993.  The 
Commission  then  placed  transport  In  the  forefront  of  the  moves 
towards  the  completion  of  the  Internal  market  recognising  that 
transport 
the  abol  It Ion  of  restrictions  on 
services  was 
other, 
administrative,  technical,  fiscal,  customs  and  other  barriers  to 
trade  were  to  real lse  their  ful  I  potential. 

the  provision  of 
ellmlnatlon 

essential 

run-up 

the 

the 

of 

If 

In 

The  Single  Act 
the  decision  making 
process  by  Introducing  majority  voting  on  questions  of  shipping 
and  air  transport  pol Icy. 

that  fol lowed  accelerated 

S I nee  then,  the  CTP  has  deve I oped  rap Id I y,  encompass Ing  a  w I de 
range  of  measures,  act Ions  and 
In It i at Ives  a Im Ing  at  br Ing Ing 
about  the  single  market  for  transport  services.  The  end-result 
of  this  process,  now  emerging  as  a  tangible  real lty  throughout 
the  Convnun I ty,  Is  the  creat Ion  of  a  new  more  open  market  free 
from  unnecessary  red  tape  and  quantitative  restrictions,  but  at 
t lme  maintaining  such  guarantees  as  are  necessary  to 
the  same 
ensure  fair  competition.  Other 
this 
financial 
emerging 
performance 
and 
Improvements  In  the  functioning  and  qual lty  of  transport  systems, 
Including  safety,  rel labi I lty  and  passenger  comfort.  Measures 
have  also  been  taken  for  the  protection  of  the  environment,  whl  le 
a  beginning  has  been  made  concerning  transport  related  research 
and  development  and  transport  Infrastructure.  Transport  relations 
with 
to  be  dealt  with  at 
Convnun I ty  I eve I . 

Improved 
and  eff iclency  of 

third  countries  have  also  begun 

Important  components  of 

transport  undertakings 

competitiveness, 

reality 

are 

Implementation  of 

the  Treaty  on  European  Union  agreed  at 
The 
Maastrlcht  will  at  once  confirm  and  give  a  new  Impulsion  to  the 
evolution  of 
transport  safety 
receive  for  the  first  time  explicit  recognition.  The  provisions 
trans-European  networks  and  economic  and  social  cohesion 
on 
provide  a 

the  CTP.  Measures 

Improve 

to 

- 5  -

new  basis  for  the  Commun I ty  to  contribute  to  the  estab I i shment 
and  development  of  transport 
infrastructure.  The  new  title  on 
Industry  underlines  the  need  for  conditions  that  wi  I I  ensure  the 
the  same  time  the 
competitiveness  of  Community  enterprises.  At 
Union  Treaty  emphasises  that  In  accordance  with  the  principle  of 
subsidiarity  ,  the  CTP  must  consist  of  actions  which  cannot  be 
realised  adequately  by 
individually  and 
therefore,  by  reason  of  their  dimensions  or  effects,  are  better 
realised  by  the  Community. 

the  Member  States 

internal  market 
to 

from  a  po I Icy  which  has  aimed  assent ial ly  at 

Therefore,  1992  marks  an  important  turning  point  in  the  evolution 
the 
the  CTP 
of 
through 
completion  of 
the  elimination  of 
the 
the  provision  of  services, 
artificial  regulatory  barriers 
towards  a  more  comprehensive  pol Icy  designed 
the 
proper  functioning  of  the  Convnunity's  transport  systems,  on  the 
basis  of  an  internal  market  In  which  any  remaining  restrictions 
or  distortions  should  be  el imlnated  as  rapidly  as  possible,  whl  le 
taking 
to  confront 
the  new  challenges 
transport  pol  Icy  in  the  post-1992  period.  Among  those  challenges 
integration  of  environmental 
one  of  the  most 
the  Union  Treaty.  The 
objectives 
in 
Identification  of  the  new  challenges  taken  as  a  whole, 
and  of 
the  extent 
response, 
they 
constitutes  the  necessary  first  step  in  the  deve I opment  of  the 
Community's  CTP  up  to  the  end  of  the  decade  and  beyond  into  the 
new  century. 

important 
laid 

is  the 
down 

into  account 

a  Community 

to  ensure 

to  wh I eh 

requ I re 

I ikely 

now 

as 

Is  to  set  out  a  g I oba I  approach  to 
The  purpose  of  t h Is  paper 
these  issues  that  wi  I I  enable  those  concerned  and,  in  particular, 
them  as  a 
the  Commun I ty 's  po 11 t I ea I  Institutions  to  consider 
whole  before  particular 
In 
1993. 

launched,  start Ing 

inlt lat Ives  are 

8. 

9. 

- 6  -

II. 

THE TRANSPORT ECONOMY  :  TRENDS 
AND  TENDENCIES 

- 7  -

11.1.  GENERAL 

10. 

the  economy 

as  a  whole.  Despite 

Its  development  depends  on  the 
Transport  Is  a  growth  Industry. 
regional 
development  of 
in  the  various  transport 
variations  and  different  developments 
transport  demand  has  experienced  virtually  uninterrupted 
modes, 
growth  since  the  70s.  In  general  transport  demand,  for  both  goods 
and  passengers,  runs  In  parallel  to  growth  In  GDP,  although  there 
In 
are 
rates  may 
lower  GDP  growth 
in 
disproportionately  smaller,  and  higher  GDP  growth 
disproportionately  higher,  growth  of  transport  activity.  Since 
1970  the  annua I  econom l c  growth 
the  Convnun I ty  has  averaged 
the  same  period  the  growth  rates  of 
2.6% 
for 
transport 
passengers. 

services  averaged  2.3% 

result 
rates 

Indications 

terms.  For 

for  goods 

and  3.1% 

in  real 

that 

In 

11. 

following  main  factors  have  generally  been 

The 
contributing  to  this  growth: 

Identified  as 

changes 
in 
resulted  In 
sites  and  contributed 
activities; 
continuing  process  of 
Convnunlty; 

the  structure  of  manufacturing 
industry  have 
locational  shifts  from  urban  to  new  Industrial 
towards  a  dispersal  of  economic 
the 
the 

changes  have  been  amplified  by 
integration  within 

economic 

these 

changes  In  the  production  methods  of  manufacturing  Industry 
towards  stock-reducing,  flexible, 
have 
diverse, 
In 
transport  with  reductions 
tal lored 
shipment  size  and  Increases  in  shipment  frequency; 

led  more  and  more 
rapid  and 

the  rising  share  of  the  service  industry  and  Its  multi-site 
businesses  have  caused  rapidly  growing  professional  mobility 
over  short,  medium  and  long  distances; 

the  Increase  of  net  disposable  Income  and  demographic  changes 
have 
l ncreased 
to  higher  rates  of  car  ownership  and 
holiday  and  leisure  time  travelling. 

I ed 

12. 

is  I ikely  to  persist  if 
This  general  pattern  of  growing  demand 
is  maintained.  While  simple  extrapolation  of 
economic  growth 
past  trends  shou Id  not  be  treated  as  a  forecast  of  what  w i I I 
Inevitably  happen,  Figure  1  shows, 
If  current  trends  continue, 
the  pressures  which  the  Community's  transport  systems  may  have  to 
for  goods 
acconvnodate. 
understates  the  probable  growth  In  traffic  since  average  shipment 
size  is  still  decreasing  whl  le  shipment  frequency  is  Increasing. 

It  should  be  noted 

trend 

that 

the 

- 8  -

Figure  1 

Trends in the fronspor1 of goods and passengers 

·) 

2Sl 

2CX) 

100 

100 

50 

._.;  =---=  __,  -......:  :....- -- ---

- - ...  - - :--: =-= :._: :...: :_ -- -

Index Posserager-
kilometres 

-

-

- Index Goods 

- - - - -

Index EUR 12 GDP 

Tonne-kilometres 

·> projected GNP growth rote until ·20'.X) of 2.7'% p.a. 

11.2.  UOQES 

13.  However • . transport  growth 

In  the  Community  for  both  goods  and 

passengers  has  not  been  spread  evenly  between  modes. 

1~. 

As  regards  goods.  as  $hown 
transport  actlvt-tyC1)  has  Increased  by  wel I 
the 
Increase: 

(annex  I). 
In 
road  transport  account Ing  for  most  of  the 

I 
In  excess  of  SOX 

In  Figure  2  and  Table 

last  20  years, 

transport  by 
Inland  navigation  has  slightly  Increased  Its 
transport  volume  In  absolute  terms  but  Its  relative  share  has 
decreased  by  a  third  to  9X; 

transport  by  rall  has  contracted  by  15X  In  absolute  terms  and 
decreased  In  relative  terms  from  28X  to  15X; 

transport  by  plpel lne  has  sl lghtly  grown 
but  Its  relative  share  has  decreased  to  6X; 

In  absolute  terms 

with  substantial  annual  growth  rates.  transport  by  road  has 
for 
more 
about  70X  of  all  transport  activity. 

terms  and  now  accounts 

than  doubled 

In  absolute 

(1)  ln 

tonne-la  •xcludl119  1110rltlmo 

the  accession  of  Spain  a,d 
Portugol.  Maritime  tran~ort  doe•  not  lend  ltaelf  to  the  convent lonat  measure  of  transport  activity. 
ncnely  t/1111.  but  I•  normally measured  anly  In  tel'IM  of  total  tonnoge. 

tranaport  and  after  odjustmonh  for 

- 9  -

transport  has  a I ways  been  a  major  mode 

terms  of 
Mar It lme 
tonnage  for 
longer.  ma Inly  cross-border  routes.  After  volume 
growth  of  about  35%  between  1975  and  1985  the  volume  of  goods 
transported  has  since  undergone  little  change  In  absolute  terms. 
Maritime  transport  Is  of  particular  Importance  for  trade  between 
Member  States  In  the  eommunlty  where  at  least  30%  of  all  goods 
are  transported  by  sea.  but  Is  much  less  significant  for  domestic 
transport.within  a  Member  State  with  only  an  estimated  2%  to  3% 
sea.  although  generally  over 
transported  by 
of  all  goods 
substantially  longer  distances. 

In 

EC-Freight Transport 

Thousand Million Tonne-Kilometres 

Figure  2 

1200 

1000 

_800 

600 

400 

200 

1970 

1980 

1985 

1990 

11J Road (cid:127)  Rail  111 lnl. Waterways (cid:127)  Pipelines 

15. 

regards  passengers,  as  shown 

As 
II 
(annex  I).  transport  actlvlty< 2>  has  Increased  by  more  than  85X 
In  the  last  20  years,  most  of  the  Increase  being  attributable  to 
use  of  the  private  car  : 

In  Figure  3  and  Table 

(2)  In  poaaer19erj¾n  after  adjustment•  for  the  occeaalon  of  Spain  and  Port&19ol. 

- 10  -

a It hough 
absolute 
about  10%  to  between  6%  and  7%  of  all  passenger  transport; 

its  relative  share  has  been  reduced 

transport  by 
terms, 

Increased  by  about  25% 

r a i I  has 

in 
from 

transport  by  bus  has  increased  in  absolute  terms  by 
eQually, 
about  45%  but  Its  relative  sh~re  decreased  by  3i  to  under  9%; 

a I r  ··transport  a I though  now  represent Ing  on I y  about  6%  has 
experienced  the  blQ~~st  growth  rates  and  more  than  quadrupled 
In  absolute  terms  o~er  the  period; 

the  bulk  of  the  Increase  of  total  passenger  transport  Is  due 
to  the  use  of  the  private  car  which  has  doubled  In  absolute 
terms.  Although  it  was  already  the  predominant  mode 
In  1970 
with  76%,  Its  share  has  further  Increased  to  about  79%. 

Figure  3 

EC-Passenger Transport 

Thousand Million  Passenger-kilometres 

Thousands 

1970 

1980 

1985 

1990 

Ii] Private Cars  II Rail  fl1 Buses and Coaches II Air 

- 11  -

16.  A  more  detailed  analysisC3}  shows 

to 

found 

It  was 

Journeys  were  over  a  distance  of 

that  transport  of  goods  by 
road  has  always 
taken  place  principally  over  short  distances: 
66%  of  all  goods  are  transported  within  50  km  and  a  further  20% 
leaving  only  14%  to 
within  distances  of  between  50  km  and  150  km, 
for  passenger 
longer  distances.  Although  comprehensive  data 
transport  by  private  cars  are  lacking,  Indications  from  two  major 
the  predominance  of  short  distance 
Member  StatesC4)  point 
the  car 
transport. 
In  one  country 
five 
passenger 
kilometres  and  only  every  fourth  over  more  than  ten  kilometres. 
Data  from  the  other  country  show  that  a  private  car  Is  on  average 
only  used  for  2.7  Journeys  per  year  over  a  distance  of  more  than 
200  kilometres  and  that  half  the  private  cars  never  travel  that 
distance.  Transport  of  goods  by  rail  takes  place  primarily  over 
medium 
only 
available  on  national  rail  traffic  In  the  Member  States,  it  is 
estimated  that  Just  under  half  of  all  national  and  international 
rai I  transport  takes  place  over  distances  of  more  than  150  km  and 
about  15%  over  distances  in  excess  of  500  km.  The  characteristics 
of  transport  by  Inland  waterways  result  In  the  majority  of  goods 
in  the  Community  being  transported  over  medium  distances. 

distances.  Although 

information 

that  half 

detailed 

than 

less 

is 

transport  of  passengers 

In  GDP  mainly  because  of 

17.  Although  the  factors  affecting  growth  of  transport  activities  are 
complex,  it  would  appear  likely  that  In  the  absence  of  new  policy 
measures  growth  wi  I I  continue  to  concentrate  on  road  transport  of 
both  goods  and  passengers.  Air 
Is 
generally  expected  to  continue  to  grow  at  rates  above  the  rate  of 
growth 
increasing 
links  between  different  parts  of  the 
commercial  and 
Community,  and  changing  patterns  In  holiday  travel  resulting  from 
income.  However,  under  certain  conditions, 
higher  disposable 
i nc lud Ing 
po 11 cy 
measures,  patterns  may  develop  differently.  For  example,  recent 
figures  from  the  Netherlands  show  a  stabll lsatlon  In  car  use  and 
a  steady  increase  in  rail  passenger  trafficC5).  To  what  extent 
such  developments  may  modify 
is  at  present 
unclear. 

app 11 cat Ion  of  part I cu I ar 

the  general 

industrial 

low  base, 

transport 

trend 

the 

the 

11.3.  INVESTMENT  AND  PRESSURE  ON  CAPACITY 

18.  While  transport  demand  has  grown,  Investment  in  Inland  transport 
Infrastructure 
in  EuropeC6)  expressed  as  a  percentage  of  gross 
domest I c  product  actua I I y  dee I i ned  between  1975  and  1980  from 
1.51  to  1.2%,  but  this  decline  was  halted  In  the  early  1980's  and 
the  relative  Investment  share  remained  at  about  1%  throughout  the 
decade< 7>. 

3  Based  on  :  Euroatat,  Carriage  of  Goode  - Rood,  1989. 
4  <EST,  Synt~N  Mai  1992,  Parle. 

Socialdota  Qnbh,  lil1nchen. 

!51  "Auto••  in  Nederland"  - Centraol  Bureau  van  de  Statiatiek,  Sept.  92. 

6  ear.>riatng  new  conatruct Ion,  extenalon,  reconatruct Ion  and  renewal. 
trends 
7  Source:  ECMT  -

in  transport  inf rostructure 

Investment 

ECMTft:M(91)  9,  chapter  4. 

in  ECMT  count rt ea 

in 

the  1980'•  -

- 12  -

19.  Although 

there  are  fluctuations  on  a  year-to-year  basis, 

relative  Importance  of  investments  In  al I  modes<8) 
1980  and  1989  shows  that 

the 
In  the  years 

road  accounted  for  Just  over  66%  of  a I I  investments  w Ith  a 
smal  I  downward  trend; 

ral I's  share  has  slightly  increased  to  about  23%; 

the  shares  for  both  ports  and  Inland  waterways  have  decreased 
from  5%  to  3.5%  and  from  2%  to  1.5%  respectively; 

airports  have  benefited  most 
their  share  substantially  from  2.9%  to  5.6%. 

from 

Investments 

Increasing 

In 

transport  demand  and 

Inland 
Growth 
Increased  pressure  In 
transport  Infrastructure 
the  road  and  rail  networks'  capacity  which  have 
particular  on 
investments 
reached  saturation  at  many  points.  Even  substantial 
in  airports  have  proved 
in 
combination  with  unsatisfactory  air  traffic  control  mechanisms, 
in  pressure  on  existing  capacity. 

insufficient  equally 

relative  decl lne 

investment  have 

resulting, 

In 

11.4.  BROADER  ENVIROtMENTAL  AND  OTHER  PRESSURES 

20. 

21. 

The  growth 
in  transport  activity  not  only  leads  to  pressures  on 
capacity,  but  raises  broader  environmental  issues.  The  effects  on 
transport  of  the  economic  and  technological  developments  over  the 
I ast  two  decades  have  exacerbated  the  areas  of.  conf I I et  between 
transport  and  the  environment.  These  areas  of  conflict  take  the 
form 
land 
the  carriage  of 
Intrusion,  congestion  and  risks 
dangerous  goods. 

operational 
Inherent 

consumption, 

pollution, 

energy 

of 

to 

Since  the  beginning  of  the  1970's  transport  has  become  a  major 
consumer  of  non-renewable  energy.  Over  the  last  two  decades  the 
energy  consumption  of  road  transport  has  Increased  by  103%,  which 
represents  an  average  annual  growth  of  3.8%,  whereas  energy 
consumption  for  air  transport  Increased  by  approximately  93%,  an 
average 

Increase  of  3.6%  per  annum. 

(8)  Except  pipeline,. 

22. 

23. 

- 13  -

for  atmospheric  pollution  caused  by 

The  available  data 
road 
transport  show  a  substant i a I  increase  over  the  I ast  two  decades 
for  a  number  of  pollutants.  Most 
the 
the  main  man-made  "greenhouse 
emission  of  carbon  dioxide  (Co2>, 
gas",  by  motor  vehicles  which 
increased  by  76%  between  1971  and 
1989,  an  average  annual 

increase  of  3.2%. 

Important  of 

these 

is 

Means  of  transport 

Share  In  total  C02 
emissions 
by  transport  sector 

I I 

1. 

Road:  total 
- private  car 
- goods  vehicles 
- buses+  coaches 

2.  Aviation 

3. 

Ra i I ways:  total 
- passengers 
- goods 

4. 

Inland  waterways 

5.  Other  transport 

79.7% 

10.9% 

3.9% 

0.7% 

4.3% 

55.4% 
22.7% 
1.6% 

2.8% 
1.1% 

Source  Consultant  TNo(9) 

Other  pollutants  include: 

nitrogen  oxide  (NOx),  wh i eh  contributes 
i nd I rect I y  to  the 
"greenhouse  effect"  and  directly  to  acid  rain  and  the  build 
up  of  tropospheric  ozone  and  which  increased  by  68%; 

particulates  detrimental 
106%; 

to  human  health  which 

increased  by 

(HC) 

hydrocarbon 
"greenhouse  effect"  and  the  bu i Id-up  of 
and  may 
increased  by  41%. 

the 
t ropospher I c  ozone 
carcinogenic  effects  and  which 

emissions,  which 

have  potential 

contribute 

to 

Trends  indicate  that,  In  a 
consumpt Ion  and  co2  output  by 
to 

increase  by  24.6%  between  1990  and  2000(10). 

"business  as  usual"  scenario,  energy 
the  transport  sector  are  I ikely 

(9)  TN>  Policy  Research,  Possible  Carmuitty  Measures  Aiming  at  Limiting  COi  Einiasiona 

in 

the 

Transportation  Sector,  Delft,  August  1991,  p.  &-7. 

Energy  In  Europe,  A  view  to  the  future,  Carmlaalon  of  the  European  Carmuilty,  September  1992. 

(10) 

I) 

- 14  -

Transport  also  causes  water  and  soil  pollution  and  is  a  source  of 
noise  and  vibrations. 

Transport  infrastructure  causes  land-intrusion  with  permanent  and 
often  irreversible  Impact  on  the  landscape  and  the  urban 
environment. 

Transport  is  also  increasingly  the  cause  of  congestion.  Between 
1970  and  1989  the  volume  of  road  traffic  (in  vehicle-kms)  doubled 
both  for  private  cars  and  freight  vehicles  (average  annual  growth 
of  about  3.7%).  One  of  the  main  contributory  factors  for  this 
growth  was  the  development  of  car  ownership  in  the  Convnunity.  On 
the  basis  of  trends  since  1975  the  number  of  cars  in  the 
Convnunity  is  expected  to  increase  between  25  and  30  %  during  the 
priod  1990  to  2010. 

In  addition  to  the  effects  identified  above,  transport  activity 
is  also  the  cause  of  physical  damage  to  persons  and  property, 
including  fatal  accidents.  The  resulting  economic  costs  are 
impossible  to  quantify  but  despite  progress  made  in  the 
prevention  of  accidents  in  recent  years,  they  remain  a 
substantial  burden,  financial  and  otherwise,  to  be  borne  by 
society  as  a  whole. 

Cars per 1000 inhabitants 

·~ ·  

EOR12. 

GR 

24. 

25. 

26. 

27. 

SOO 

4(X) 

300 

100 

Q l - - - - - -+ - - - - - - - "1 1 - - - - - - - -+ - - - - - -+ - - - - - - - -1  

1970 

1975 

1980 

1985 

1989 

- 15  -

11.5.  PROSPECTS, 

IN  PARTICULAR  FOR  THE  ENVIROt-MENT 

28. 

in  a 

transport  demand 

in  transport  demand  show 
As  to  the  future,  forecasts  of  growth 
reasonably 
"business  as  usual"  scenario  with  a 
that 
favourable  economic  climate  the  expansion  of  the  road  sector  Is 
I lkely  to  be  buoyant.  Under  these  conditions,  a  near  doubling  of 
road 
freight  seems 
technological  progress  and  measures  already 
I lkely.  Although 
taken  will  mitigate  the  environmental 
Impact,  In  the  absence  of 
additional  pol Icy  actions,  significant  worsening  of  the  situation 
likely  as  regards  pollution,  notably  co2  emissions, 
Is  still 
congestion  and  accidents.  Even 
lower  economic  growth  slows 
the  rate  of  deterioration  for  a  time,  the  risk  of  the  development 
of  the  transport  sector  being  unsustainable  In  the  medium  to  long 
term  due  to  its  broad  environmental 

for  both  passengers  and 

impact  remains  real. 

if 

11.6.  THE  TRANSPORT  ECONOMY 

29.  While  the  scale  and  growth  of  transport  activity  pose  problems, 
the 

they  also  under I ine 
continued  health  of  the  Community's  economy. 

importance  of 

this  sector 

the 

to 

30.  With  only  marginal  changes  since  the  beginning  of  the  1980's,  the 
transport  service 
industry  has  represented  about  4%  of  gross 
domestic  product< 11>. 
If  own  account  and  private  transport  are 
included,  the  share  rises  to  an  estimated  7%  to  8%.  Employment 
figures  over  the  last  decade  reflect  the  changes  in  the  relative 
Importance  of  transport  modes  with  only  insubstantial  changes  In 
representing  a 
the  aggregrate  number  of  salaried  employees 
percentage  of  between 
salaried 
total 
the 
workforceC12). 
total  of  about  5.6  Mi  11  Ion  persons 
were  employed 
in  transport,  distributed  between  the  sectors  as 
shown  below. 

4% 
In  1991,  a 

5%  of 

and 

Transport  sector 

1.  Ra i I ways 
2.  Inland  waterways 
3.  Road  and  other  inland 

transport 
4.  Maritime 
5.  Aviation 
6.  Associated  activities 

TOTAL 

Total  number  of  Jobs  in 
each  sector  ex  1000)  in 
Community  countries 

897.8 
24.2 

2509.0 
217.3 
349.6 
1569.9 

5567.8 

Source 

Estimation  based  on  Community  Labour  Force  Survey,1991 

11 
12 

Eurostat,  Transport,  Annual  Statistics  1989,  p.  3;  sane  estimates  are  higher. 
Euroatat,  Basic  Statiatica,  1991,  p.  120. 

- 16  -

31. 

32. 

33. 

34. 

is 

around 

Its  most 

industry. 

Industry, 

is  one  of 

lndustryCl3) 

second  with 

Industry  being 

important  sector 

transport  eQulpment 

the  pr lnclpal 
The 
in  terms  of  turnover  second 
Industrial  sectors  In  the  Community, 
the 
only  to  the  food 
i nc I ud i ng  parts  and  accessor I es,  wh i eh 
motor  veh I c I e 
accounts  for  over  three  Quarters  of  the  sector's  output  in  1989, 
14%< 14>. 
the  aerospace 
the  second  o i I  er is Is  at  the  beg Inn i ng  of  the  1980s 
Fo I low Ing 
from  1985 
registered  unti I  1985.  However, 
I ittle  growth  was 
onwards  unt i I  recent I y,  substant I a 11 y  Improved  growth  rates,  In 
particular, 
Industries, 
were  among 
the  cont I nued  growth  of  the 
entire  Community  economy,  both  through  own  growth  and  because  the 
important 
transport  eQulpment 
customers  for  a  number  of  other 
the  most 
Important  being  the  iron,  steel  and  metal  Industries,  mechanical 
engineering, 
industries. 
the  electrical,  plastic  and  chemical 
Technical  developments  in  al I  sectors  of  the  transport  eQuipment 
industry  for 
Industry  have 
technological 
range  of  other 
industries  benefit. 

it 
from  which  a  wide 

the  motor  vehicle  and  aeronautical 

the  ma In  cata I ysts  for 

transformed 
Innovation 

into  a  pace-setting 

I ndust r I a I  sectors, 

is  one  of 

the  most 

Industry 

In 

representing 

The  transport  eQuipment  industry  employs  an  estimated  2.6  mi  I lion 
peop1e< 15) 
Community 
industrial  employment. 
It  is  estimated  that  one  out  of  10  Jobs 
In  the  Community  depends  directly  or  indirectly,  from  third-tier 
supplier 
the  motor  vehicle 
sector. 

to  servicing  and  repair  shops,  on 

about 

total 

6.5% 

of 

in  Its  own  right,  the 
Apart  from  being  a  substantial 
transport  eQulpment 
the 
proper  functioning  of  other  manufacturing  and  service  Industries 
wh I eh  depend  on  the  ava i I ab i I i ty  of  ef f I c I ent  state-of-the-art 
transport  eQulpment. 

industry 
is  of  vital 

Importance 

industry 

for 

the 

industry 

is  essential 

transport  service 

the 
Finally, 
Integration  of  the  Community, 
its  economic  performance  and  the 
mob 111 ty  of  Its  c it I zens.  The  prob I ems  of  the  more  per i phera I 
regions  show  that  geographic  disadvantages  may  be  exacerbated  by 
insufficient  transport  resulting  in  a  lack  of  competitiveness  and 
difficult  market  contacts  of  the  economies  concerned.  Should  the 
Convnunlty's  transport  system  cease  to  function  adeQuately  under 
pressures  of  growth,  it  could  not  fai I  to  have  a  serious  negative 
Impact  on  the  Community  as  a  whole. 

for 

(13) 

(14) 

(15) 

Motor  vehicles  (Including  ports  and  accessories),  shipbuilding,  railway  rolling  stock,  moped  and 
motorcycles,  aerospace  equipment. 
Ponorano  of  EC  Industries  1991-1992,  chapter  13.  The  shore  of 
shipbuilding  4.SX,  roll  and  tran  1.~.  cycles  and  motorcycles  1.~.  other~-
1989  figure:  Panorano  of  EC  Industry,  Statistical  Supplement  1992,  chapter  13. 

the  other  sectors  being 

: 

- 17  -

m.  OBJECTIVES AND  SCOPE OF THE 
CCI\I\EN TRANSPORT POL ICY: 
SUSTAINABLE l\EBILITY FOR THE 
CCI\UUNITY AS A VVHOLE 

- 18  -

111.1  OBJECTIVES  OF  THE  COt&tQN  TRANSPORT  POLICY 

35.  According 

the 

convergence  of 

the  EEC  Treaty, 

to  Article  74  of 

fundamental 
objectives  of  the  CTP  are  those  of  the  Treaty  Itself.  These  are 
set  out 
In  Article  2  and,  following  the  Maastrlcht  agreement, 
consist  of  the  promotion  throughout  the  Community  of  a  harmonious 
and  balanced  development  of  economic  activities,  sustainable  and 
non-inflationary  growth  respecting  the  environment,  a  high  degree 
of 
level  of 
economic  performance, 
employment  and  of  social  protection,  the  raising  of  the  standard 
of  I iv i ng  and  qua I it y  of  I if e  and  economic  and  soc i a I  cohesion 
the 
and  so Ii dar i ty  among  Member  States.  Moreover,  as  he Id  by 
in  Case  167/73( 16),  Article  74,  by 
European  Court  of  Just ice 
referring  expressly 
the 
application  of  the  Treaty's  general  rules  to  the  transport  sector 
it  spec if i ea II y  provides  otherw I se.  The 
except 
setting  aside 
transport, 
specific  provisions  on 
fundamental 
the 
such 
establishment  of  a  common  market,  have  as  their  object  to  give 
effect  to  and  complement  them  by  common  actions. 

and  3,  preserves 

to  Articles  2 

in  so  far  as 

concerning 

a  high 

Treaty 

rules 

those 

from 

far 

as 

36. 

37. 

the  Commission 

level.  Even  before  the  Rio  Summit 

The  development  of  the  CTP  has  also  to  respond  to  wider  issues  of 
depletion  of  natural  resources  and  environmental  degradation  at 
the  Community  had 
the  global 
in  the  Dublin  declaration  of  June  1990  committed  itself  to  the 
application  of  the  principles  of  sustainable  development.  This 
its  Fifth 
convnitment  has  been  developed  by 
Environmental  Action 
the 
Programme  which 
Importance  of  the  integration  of  environment  and  resources  Issues 
into  sectoral  policies.  The 
is  of  particular 
importance  In  this  respect.  For  example,  the  greenhouse  effect 
I Inked  directly 
is  without 
importance.  The  Community  has  set  Itself 
question  of  paramount 
clear  targets  for  co2  stabilization  and  the  transport  sector  is 
a  key  actor  in  the  efforts  necessary  to  achieve  the  stab ii izatlon 
target  of  1990  levels  by  the  year  2000.  Final IY, 
in  accordance 
with  the  Maastrlcht  agreement,  Article  130r  of  the  Treaty  will 
environment  protect Ion 
Integrate 
obl lge 
requirements 
implementation  of  other 
the  definition  and 
Convnunity  pol  icles  including  transport. 

to  energy  use  and  co2  emissions 

the  Community 
Into 

transport  sector 

Identified 

has 

to 

in 

least 

favoured.  The 
infrastructure  and 

implementation  of  the  CTP  will 
In  addition,  the  formulation  and 
have  to  take  proper  account, 
in  accordance  w Ith  Art i c I e  130b  of 
the  Maastricht  agreement,  of  the  objective  of  strengthening  the 
in  particular,  by 
Convnunity's  economic  and  social  cohesion, 
reducing  disparities  between  the  regions  and  the  backwardness  of 
improvement  of 
those 
transport 
the  regions 
should  be  seen  In  the  light  of  Its  consequences  on  the  planning 
of 
residential  areas  and  centres  of  employment,  production 
districts  and  areas·  od  consumption  as  well  as  on  the  volume  of 
traffic  and 
the  provision  of 
including  projects  within  assisted 
transport 
transeuropean  networks  should  be 
areas  and 
carefully  planned 
imbalances  and  secure 
effective  mobi  I ity. 

I ink  between 
the  accessibi I lty  of 

infrastructure, 
the  development  of 

Its  organization.  Therefore, 

In  order 

remove 

the 

to 

(16) 

Judgement  of  the  Court  of  Justice  of  4.4.74:  Caae  N•167/33;  E.C.R.  1974,  p.  367. 

38. 

39. 

- 19  -

Accordingly,  In  the  transport  field,  these  objectives  require  the 
development  of  policies  to  ensure  that  the  transport  sector  can 
take  full  advantage  of  the  Treaty's  provisions  on  a  single  market 
and  that  the  different  geographical  components  of  the  Community 
benefit 
provide  services 
the  best  possible  social  conditions 
efficiently,  safely,  under 
and 
the  Community's 
environment  policy. 

the  objectives  of 

respecting 

that  wl  II 

transport 

systems 

fully 

from 

,f 

to 

to 

and 

i nterna I  market, 

the  deve I opment  of 

Transport  efficiency  requires  that,  on  the  basis  of  a  properly 
funct I on i ng 
t rans-European 
the  possibilities  offered  by  best 
transport  networks 
available 
technologies,  citizens  and  enterprises  should  have 
access  to  means  of  mobility  corresponding  as  closely  as  possible 
their  needs  and  expectations. 
In  qua I lty  and  performance 
reasonable  cost 
facl I I ties  should  be  at  a 
these 
Access 
consistent  with  their  long  term  maintenance  and  development.  At 
the  same  time,  transport  services  must  be  safe  from  the  point  of 
v I ew  both  of  the  user  and  others  who  are  p I aced  at  r I sk.  They 
must  also  be  provided  under  conditions  which  promote 
the 
transport  systems  must 
Community's  social  cohesion.  Finally, 
cont r I bu te 
In 
particular,  to  the  solution  of  major  environmental  threats  such 
as  the  greenhouse  effect  and  to  the  achievement  of  sustainable 
lmpl  les 
development.  The  realisation  of  al I 
that  as  a  general  rule  all  transport  users  should  pay  the  full 
costs,  Internal  and  external,  of  the  transport  services  that  they 
consume,  even  if  these  costs  are  In  some  cases  paid  by  society  to 
In  particular,  Internalisation  of  external 
assist  those  in  need. 
costs  should  be  a  major  element  of  a  transport  policy  Integrating 
the  protection  of  the  environment. 

the  protect I on  of 

these  objectives 

the  env I ronment 

and, 

to 

111.2  GLOBAL  APPROACH 

40. 

This  approach,  which 
susta 1nab le  mob 111 tv. 
including: 

can  be 
cal Is 

summarised 
then 

for 

as 
a 

the  pursuit  of 
g loba I  programme 

a) 

the  cont I nued  reinforcement  and  proper  funct Ion i ng  of 
the 
internal  market  facilitating  the  free  movement  of  goods  and 
persons  throughout  the  Community; 

b)  a  transition  from  the  elimination  of  artificial,  regulatory 
right  balance  of 
the  adoption  of 
obstacles 
towards 
Integrated 
the  development  of  coherent, 
policies  favouring 
transport  systems  for  the  Community  as  a  whole  using  the  best 
aval lab le  technology; 

the 

c) 

the 
the  strengthening  of  economic  and  soc i a I  cohesion  by 
contribution 
transport 
Infrastructure  can  make  to  reducing  disparities  between  the 
regions  and 
locked  and  peripheral 
regions  with  the  central  regions  of  the  Community; 

development 

linking 

Island, 

which 

land 

the 

of 

- 20  -

d)  measures  to  ensure  that  the  development  of  transport  systems 
to  a  sustainable  pattern  of  development  by 
contributes 
respecting 
by 
the 
contributing  to  the  solution  of  major  environmental  problems 
such  as  the  I imitation  of  C02; 

environment 

particular, 

and, 

in 

e)  actions  to  promote  safety; 

f)  measures  in  the  social  field; 

g) 

development 

third 
appropriate 
the 
countries,  where  necessary  giving  priority  to  those  for  which 
the 
the 
Community  as  a  whole. 

transport  of  goods  or  persons 

relations  with 

important 

for 

of 

is 

initiative  appears  necessary,  bear Ing 

The  adoption  of  such  a  global  programme  requires  an  analysis  of 
Issues  arising  in  the  transport  sector  in  order  to  Identify  those 
on  wh I eh  a  Community 
in 
mind  the  subsidiarity  principle.  What  actions  should  be  proposed 
at  Commun I ty  I eve I,  because  on I y  the  Community  can  reso I ve 
the 
prob I em  or  because  it  is  best  p I aced  to  do  so  ?  The  fo I I owing 
chapters  seek  to  answer  this  ques1ion  in  relation  to  each  of  the 
in 
main  areas  of  activity  forming  part  of  the  global  programme 
accordance  with  the  undermentioned  principles  flowing  from 
the 
provisions  of  the  Maastricht  agreementC17). 

regards 

the  preparation  of  new  Community  actions 

As 
the 
transport  field,  a  distinction  must  be  made  between  those  matters 
those  for 
the  Community  has  an  exclusive  power  and 
for  which 
which  it  shares  power  with  the  Member  States. 

in 

to 

relation 

important, 

the  areas  of  exclusive  power,  notably 

the 
In 
in  transport 
realisation  and  functioning  of  the  internal  market 
services  and  transport  relations  with  third  countries  which  are 
is  obliged  to  realise  the 
incrasingly 
is 
objectives  assigned 
these 
established  by 
the  principle  of  proportionality, 
areas, 
Commun I ty  actions  shou Id  not  go  beyond  what 
to 
achieve  Treaty  objectives  and  the  manner 
in  which  the  Community 
Intervenes  must  be  evaluated  from  this  point  of  view. 

the  Treaty  itself.  Nevertheless,  even 

in  accordance  with 

the  necessity 

the  Community 

is  necessary 

for  action 

it  and 

to 

In 

it 

is  first  necessary 

In  areas  of  shared  power,  such  as  transport  networks  and  certain 
to  establish 
aspects  of  safety, 
the 
in  mind  the  context  of 
necessity  for  Community  action,  bearing 
the  action  within  the  Treaty  system. 
the  transport  field, 
init iat Ives  wi  11  be  anci I lary  to  the  harmonious 
many  possible 
functioning  of 
the 
the 
Integrate 
policy  on 
convnon 
environment  protection  and  common  actions  on  economic  and  social 
In  such  areas,  the  po I it i ea I  commitment  to  Community 
cohesion. 
action 
the 
transfrontier  dimensions  of  a  transport  problem,  the  difficulty 
for  Member  States  to  address  the  issue  individually  together  with 

In  addition,  criteria  such  as 

internal  market 
transport, 

in  transport  services, 

is  very  strong. 

the  obligation 

to 

In 

41. 

42. 

43. 

44. 

{17) 

For  a  fuller  explanation  reference  can  be  made  to  The  Subsidiarity  Principle,  SEC(92)1990  final, 
27  October  1992. 

- 21  -

they  do,  and 

the  risk  of  competitive  distortions  If 
the  added 
value  at  limited  cost  of  the  Community  complementing  actions  at 
national  or  regional  level  should  be  appl led  to  distinguish  those 
it  wi  11 
issues  on  which  Community  action  Is  Justified.  Again, 
in 
also  be  necessary,  as  a  second  stage,  to  evaluate  the  manner 
which 
the 
principle  of  proportionality.  The  use  of  relatively  flexible 
Instruments  such  as  network  guide I Ines  and  their  accompanying 
measures,  as  wel  I  as 
the  continued  development  of  effective 
approaches  to  enable  Community  objectives  to  be  realised  through 
International 
prove 
and 
particularly  useful  In  this  regard. 

the  Convnunity  should 

In  accordance  with 

organisations 

instruments, 

Intervene 

should 

45. 

in 

as 

be, 

has 

been 

the  past 

As  to  the  management  and  control  of  Community  actions,  the  goal 
will 
the  maximum 
it 
decentra Ii sat ion  compatible  wl th 
the  rea 11 sat Ion  of  Commun I ty 
objectives  and  obligations.  The  use  of  the  directive  and  network 
guidelines,  by  their  nature,  wi  11 
In  the 
field  of  controls,  other  than  controls  for  which  the  Commission 
has 
the 
Community  budget  or  the  Implementation  of  Community  law  by  Member 
States,  the  emphasis  will  be  on  action  by  national  authorities, 
the  Community's 
the 
involvement  being  designed 
effectiveness  of  those  controls  where  necessary. 

respons I bi Ii ty  such  as 

faci I itate  this  task. 

those  connected  with 

increase 

its  own 

to 

- 22  -

ISSUES AND  POSSIBLE AN&WERS 

I 

IV.1 

THE  COMPLETION.  REINFORCEMENT  AND  PROPER  FUNCTIONING  OF 
THE 

INTERNAL  MARKET 

- 23  -

IV.1.a 

GENERAL 

46. 

47. 

Is 

to  be Ing 

now  close 

the  provision  of 

The  adoption  of  leglslatlon  necessary  for  the  establishment  of  an 
Internal  market  ·In  the  transport  sector,  In  accordance  with  the 
SI ng le  European  Act, 
rea 11 sed.  A 
leglslat lve  framework  wl  11  be 
In  place  which  wl  11  provide  the 
transport 
for 
In  particular, 
legal  basis, 
services  without  discrimination  based  on  nationality  or  place  of 
establishment.  As 
the  general  rules  on  right  of  establishment 
a I so  app I y  to  transport,  and  as  restr I et Ions  on  capac I ty  have 
been  largely  eliminated  or  limited  to  a  safeguard  role,  transport 
undertakings  should  accordingly  be  able  to  take  full  advantage  of 
the  Internal  market  and  operate  In  the  manner  that  seems  to  them 
most  effective.  They  wl  11  do  so  on  the  basis  of  condlt Ions  of 
competition  which  have  been  harmonised  In  a  number  of  Important 
areas  such  as  safety  requirements,  technical  specifications  and 
professional  standards. 
In  addition,  movements  by  persons  and 
undertakings  on  their  own  account,  whether  of  goods  or  persons, 
have  also  been  freed  from  many  restrictions.  They  will  also  have 
been  facilitated  by  such  Initiatives  as  common  rules  on  Insurance 
and  dr Iv Ing  11 cences  and, 
in  the  Interests  of  Improved  safety, 
made  subject  to  harmonised  standards,  for  example,  on  the  wearing 
of  seat  belts. 

The  comp I et ion, 
the 
single  market  for  transport  services  wlll  undoubtedly  continue  to 
constitute  one  of  the  main  components  of  the  CTP. 

re I nforcement  and  proper 

funct I on Ing  o.f 

IV.1.b 

APPLICATION  OF  THE  1992  MEASURES 

48. 

49. 

50. 

FI rst,  act Ion  w 111  be  necessary 
the  measures 
adopted  In  the  context  of  the  1992  programme  for  the  realisation 
of  the 
i nterna I  market  are  proper I y  app I I ed.  The  magn I tude  of 
this  task  should  not  be  underestimated.  The  legislation  contains 
provisions  the  application  of  which  requires  more  than  the  simple 
deletion  of  restrictions  in  national  regulations. 

to  ensure 

that 

· 

In 
the  field  of  Inland  transport,  for  example,  situations  may 
develop  In  which  the  crisis  mechanisms  envisaged  for  carriage  of 
goods  and  persons  by  road  may  need  to  be  employed. 

for 

require 

combined 

International 

railway  groupings  and 
transport 

In  the  railway  field,  rights  of  access  to  Infrastructure  granted 
the  purposes  of 
to 
International 
the  groupings  and 
enterpr lses  concerned  to  conclude  non-dlscr lmlnatory  agreements 
on  the  different  administrative,  technical  and  financial  matters 
the  traff le 
to  ensure  adequate  and  safe  management  of 
needed 
concernedC18).  The  conclusion  of  such  agreements  may 
raise 
Issues  of  some  complexity  and  sensitivity.  For  this  reason,  It 
those 
Is  necessary  for 
finding 
directly  concerned 
workable  solutions  as  rapidly  as  possible,  a  process  already 
begun.  The  Commission  In  the  light  of  those  discussions,  which 
have  already  begun,  will  decide  whether  and  what  form  of  further 
action  Is  required. 

In  contact  with 

to  see  whether 

the  Commission 

It  can  assist 

to  be 

In 

(18) 

Article  10  of  Cou,cll  Directive  91/440/EEC  of  29.7.91  (OJ  L Xfl,  24.8.91). 

- 24  -

51. 

52. 

of 

the 

execution 

concerning 

llcenslng  authorltyC19). 

In  the  field  of  civi I  aviation,  the  Commission  has  a  number  of 
responslbl I lties 
third 
the 
It  may  have  to  pronounce  on  the  correct 
llberallsation  package. 
llcenslng  of  air  carriers 
interpretation  of  the  regulation  on 
where  an  air  operator's  certificate  has  been 
refused  by  a 
national 
It  may  have  to  decide  whether 
decisions  taken  by  national  authorities  restricting  exercise  of 
traffic  rights  for  reasons  of  distribution  of  traffic  between 
that  serious 
airports ,within  an  airport  system  or  on  grounds 
congestion  or  environmental  problems  exist•  are 
justlfled(20). 
Finally, 
to  decide  on  complaints 
concerning  excessively  high  air  fares  or  a  downward  spiral  of 
In  this  connection, 
fare 
It  wlll  publish 
It 
Intends  to  use  to  evaluate  whether  air  fares  are  too  high  or  too 
low.  This  wl  I I  permit  those  interested  better  to  predict  how  the 
complaint  mechanism  wl  I I  work  and  so 
the  number  of 
unjustified  complaints. 

the  Commission  may  have 

levels  causing  widespread 

In  an  appropriate  form 

the  methods  which 

lossesC21). 

reduce 

tasks, 

the  proper 

these  specific 

implementation  of 
Besides 
Community  legislation  wlll  have  to  be  checked  for  all  modes  and, 
If  necessary,  action  taken  to  ensure  the  conformity  of  national 
laws,  regulations  and  administrative  procedures. 
In  addition,  to 
avoid  the  expected  effects  of  the  1992  measures  being  undermined, 
work  will  have  to  be  done  to  ensure  that  facl I I ties  such  as  port, 
airport  and  container  terminals  can  be  used  as  effectively  as 
possible  under  non-discriminatory  access  and  usage  conditions. 

the  conformity  of  natlohal 

53.  After  a 11,  It  makes  11 tt I e  sense  to  spend  many  years  adopt Ing 
Community  legislation  If,  once  adopted,  It  Is  not  taken  seriously 
and  effectively  Implemented. 
It  should,  however,  be  noted  that 
In  the  transport  field  this  activity  concerns,  for  the  most  part, 
regulatory  systems  with 
In  cases 
transactions. 
loca I 
the  civil  aviation 
licensing,  routes  and  fares  are  necessary  exceptions, 
the 
rule.  They  have  been  considered  necessary  by 
that  certain  key 

; ensuring 
Community 
Involving  particular 
These  are  pr I mar 11 y  the  respons I b I Ii ty  of  nat Iona I  and 
authorities.  The  possible 
field  on 
not 
the 
Community 
decisions  can  be  subject  to  Independent  verification. 

law  and  objectives  and  not 

transport  enterprises  or 

interventions  In 

Interventions 

to  ensure 

legislator 

In  order 

IV.1.c 

GENERALLY  APPLICABLE  TREATY  RULES 

54. 

The  proper  functioning  of  the  internal  market  In  the  transport 
sector  Is  guaranteed  not  only  by  the  provisions  of  the  transport 
chapter  of  the  Treaty  but  also  by  Its  generally  applicable  rules, 
transport  sector  Is 
particularly  those  on  competltlonC22).  The 
Indeed  likely  to  pose  particular  problems  In  this  regard  In  the 
years  lnvnedlately  ahead. 

Article  13  of  Cow\cll  Regulation  (EEC)  N•2407/92  of  23.7.92  (OJ  L  240,  24.8.92). 
Art lcle  8  and  9  of  Council  Regulation  (EEC)  N•2408/92  of  23. 7.92  (OJ  L  240.  24.8.92). 
Art lcl•  7  of  Cou,cl I  Regulat Ion  (EEC)  N•2409/92  of  23. 7 .92  (OJ  L  240,  24.8.92). 
Judgement  of  the  Court  of  Justice  of  30.4.86,  Joint  cases  209-213/84,  E.C.R.  1986.  p.  1457. 

- 25  -

55. 

56. 

tend 

technical  characteristics  of  transport 
First,  the  economic  and 
activities  are  such  that 
issues  concerning  the  application  of 
competition  rules  are  bound  to  arise.  Transport  systems  based  on 
to  monopoly  or 
single  networks 
the  exploitation  of 
ol lgopoly.  Integrated  systems,  Including  In  particular  lnterrnodal 
transport,  may  require  cooperation  by  agreement  between  different 
economic  operators.  Service  obl lgat Ions 
the  pub I le  Interest 
tend  to  involve  the  granting  of  correlative  special  or  exclusive 
transport  entitles  frequently  rely  on  public 
rights.  Finally, 
finance,  Including  subsidies  some  of  which  may  not  be  compatible 
with 
these 
tendencies  mean  that  the  application  of  competition  rules  In  the 
Importance  for  the  efficiency 
transport  field  Is  of  fundamental 
of  the  sector  and,  at  the  same  time,  must  continue  to  take  Into 
account  Its  specific  characteristics. 

Internal  market.  All  of 

functioning  of 

the 

the 

In 

have  been 

Second,  In  the  period  immediately  ahead,  transport  markets  in  the 
Community  will  be  progressively  opening  up  to  greater  competition 
between  operators  not  on I y  as  regards  serv Ices  between  Member 
States  but  also  within  their  formerly  national  markets,  many  of 
traditionally  protected.  This  process  of 
which 
important  changes  as  both 
I iberal I sat ion  Is  certain  to  provoke 
operators  and  policy  makers  seek 
the  scale  and 
challenges  of  a  genuinely  single  market.  More  dynamic  operators 
can  be  expected  to  seek  econom I es  of  sea I e  and  scope  both  to 
defend 
the  new 
opportunities  that  are  opening  up.  Productivity  gains  through 
technical  modernisation  wi  I I  also  be  sought, 
these 
the  Industry's  response  to 
changes  being  associated  also  with 
environmental  and  safety  requirements. 

the I r  present  market  posit ion  and 

to  exp lo It 

to  adapt 

some  of 

to 

through 

the  scope  of 

Involving  both 

relationships  between 

57.  Accordingly,  It  is  to  be  anticipated  that  the  transport  sector 
the 
Important  structural  changes 
wl  II  undergo 
arrival  of  new  entrants  on  certain  markets  and,  at  the  same  time, 
new 
transport  enterprises  as  well  as 
concentrations  of  different  types.  New  Investments  will  be  made 
both  in  the  public  and  private  sectors.  The  relevant  authorities 
levels  can  be  expected  to  assist  this 
at  national  and  regional 
process  of  adaptation 
their 
the  different  means  at 
disposal,  Including  financial  measures,  some  of  which  will  fall 
the  Treaty's  provisions  on  aids.  The 
within 
Community's  policies  on  concentrations,  agreements  and  concerted 
actions  between  enterprises  wll I  accordingly  have  a  vita I  role  to 
play.  The  same 
Is  true  so  far  as  State  aids  and  special  and 
exclusive  rights  are  concerned.  The  Community  must  ensure  that 
the  process  of  adaptation  to  the  single  market  takes  place  under 
conditions  which  avoid  market  distortions,  allow  participants  a 
fa I r  opportunity  to  compete  and  afford  users 
the  benef It  of 
Industrial  organisations.  These  are  a  necessary 
competitive 
fundamental 
the 
In 
element 
objective  In  the  transport  field  : 
transport  systems  that  wlll 
provide  services  efficiently,  safely  and  under  the  best  possible 
environmental  and  social  conditions. 

the  Community's 

realisation  of 

58. 

59. 

60. 

61. 

- 26  -

The  Community  already  disposes  of  a  series  of 
instruments 
concerning  State  aids  In  the  transport  sector  some  of  them  dating 
back  as  far  as  the 
In  different 
subsectors  are  of ten  not  treated  In  s i mi  I ar  ways,  wh I I e  recent 
instruments 
developments  are  not  always  properly  reflected.  The 
should 
their 
a  view 
rationalisation  and  updating. 

·sixties.  Similar  situations 

re-examined  with 

accordingly  be 

to 

Is  given, 

In  which  support 

In  the  area  of  transparency,  the  Commission  Intends  to  develop  an 
Inventory  of  aids  In  force  to  the  benefit  of  all  transport  modes. 
This  will  permit  periodic  assessments  to  be  made  of  the  scale  and 
nature  of  publlc  financial  support  to  the  transport  system. 
In 
order  that  th Is  Inventory  shou Id  better  ref I ect  the  rea I I ty  of 
the  different  ways 
It  wl  11  also 
propose  measures  to  Increase,  where  necessary,  the  transparency 
of  the  financial  accounts  of  entitles  responsible  for  providing 
Infrastructure  and  services.  This  has  already  been 
transport 
in  some  other  subsectors 
achieved  for  ral lway  undertakings  and 
there 
information  already  avai I able  may  wel  I  be  adequate.  But 
are  f le Ids 
to  be 
leaves  much 
desired,  making  It  difficult  to  evaluate  the  extent  and  impact  of 
State  aids, 
authorities  make 
Investments 
in  Infrastructure  which  may  be  compatible  with  the 
rules  of  competition.  Ports  and  other  terminals  are  a  case  In 
the 
point.  Measures  wl  11  accordingly  be  prepared  to 
transparency  of  their  financial  accounts,  taking  account  of  the 
d If f erent  ways 
In  wh I eh  ports  are  organised  and  their  d I verse 
legal  status.  Basic  transparency  of  this  kind  Is  essential  for 
sound  application  of  the  Community's  aids  regime. 

In  which  avai I able 

example,  where 

lnformat Ion 

Increase 

publ le 

for 

In  the  field  of  notification  of  new  aids,  It  should  be  posslbl'e 
to  work  In  two  directions  simultaneously. 

In 

the 

for  certain 

types  of  aid 

On  the  one  hand,  It  Is  desirable  to  enlarge  the  category  of  aids 
not  requiring  prior  notification  and  examination  pursuant 
to 
Article  93  (3)  of  the  Treaty.  Regulations  1191/69  and  1107/70 
Inland 
provide 
transport,  notably  those  which  constitute  compensation  for  public 
service  obligations,  to  be  subject  to  the  requirement  only  that 
they  be  notified  after  the  event.  Now 
that  the  necessity  and 
legitimacy  of  pubJlc  service  obligations  have  been  recognised  In 
the  fields  of  civil  aviation  and  maritime  cabotage  in  the  context 
of 
to  the 
possibility  of  proposing  similar  treatment  for  those  areas.  Such 
exemptions  would  recognize  that  this  category  of  aids  does  not 
normally  disrupt  the  functioning  of  the  Internal  market  and  can 
accordingly  be  left  primarl IY  to  authorities  at  national  or  local 
level. 

the  1992  programme,  consideration  should  be  given 

field  of 

62.  Consideration  wlll  also  be  given 

the 
preparation  of  a  proposal  for  the  adoption  of  a  de  mlnlmls  rule 
to  apply  generally  to  aids 
the  transport  sector  which  by 
reason  of  their  limited  scale  are  also  unlikely  to  have  adverse 
effects  on  the  functioning  of  the  Internal  market. 

this  context 

to 

In 

In 

- 27  -

63. 

64. 

financial  operations 

In  the  other  direction,  events  have  shown  that  aids  take  many 
forms  not  a 11  of  them  obv lous,  part I cu I ar I y 
the  context  of 
complex 
the  opening  up  of 
previously  closed  markets  to  competition  or  the  privatisation  of 
transport  undertakings.  Consideration  will  accordingly  be  given 
to  the  development  of  rules  clar I fylng 
the  pr lor  not If I cat Ion 
requirements  In  the  case  of  certain  operations  of  this  type  In 
order  to  ensure  that  any  financial 
In  fact 
constitutes  an  aid  Is  Indeed  properly  notified. 

Intervention  which 

linked 

to 

In 

Ind I eat I on 

the  guide I Ines  that 

Fina I ly, 
the  Convnlsslon  has  pub I lshedC23) 
concerning  the  criteria  that  It  uses  to  evaluate  State  aids  will 
them  as  necessary  to  current  conditions. 
be  reviewed  to  adapt 
The  opportunl ty  wl  11  also  be 
taken  to  examine  whether,  at  the 
time,  any  other  changes  are  needed  In  existing  Community 
same 
leglslatlon.  Such  exercises  have  particular  value  since 
they 
to 
to  na t Iona I  and 
g I ve  an 
transport  operators  concerned  of  the  scope  which  Is  aval lab le  for 
In  per lods  of 
measures  designed 
adaptation 
very  different 
conditions.  Given 
characteristics  of  the  different  transport  subsectors,  It  wl  I I  be 
necessary  to  proceed  separately  for  each  subsector  though  on  the 
basis  of  common  principles  which  wlll  ensure  the  coherence  of  the 
CTP's  general  approach  to  aids.  The  questions  of  aids  In 
the 
context  of  lntermodal  transport  Is  considered  further  In  Chapter 
IV.2.b  below. 

I oca I  author I t I es  and 

them  particularly 

to  support 

the 

new 

to 

IV.1.d 

FURTHER  LEGISLATIVE  DEVELOPMENT  OF  THE  INTERNAL  MARKET 

65. 

66. 

67. 

The  adoption  of  the  measures  Included  In  the  1992  programme  will 
not  mark  the  end  of  Convnunlty  legislation  concerning  the  Internal 
market  In  transport  services. 

I 

leglslatlve  activity.  For  example, 

Internal  market  measures  already  adopted 

themselves 
Certain 
contemplate  further 
the 
In 
railway  field,  further  proposed  actions  are  foreseen  with  regard 
to  the  development  of  the  railways,  In  particular,  In  the  field 
transport  of  goodsC24>.  Similar  provisions  or 
of  International 
undertakings  have  also  been  made  amongst  others  In  the  fields  of 
a  permanent  system  of  market  observation  for  carriage  of  goods  by 
rail,  road  and 
road; 
Inland  waterways  and,  In  the  maritime  sector,  manning  rules  for 
Island  cabotage  and  any  other  measures  needed  In  the  context  of 
cabotage 
Ill 
Identifies  measures  of  this  kind. 

Inland  .waterway;  passenger  services  by 

llberallsatlon.  The  action  programme 

In  Annex 

further 

In  existing  Convnunlty 

legislative  activity  has 

Where 
expressly 
Intends 
conditions  preval ling  at  the  time. 
Into  account 
principle,  how  the  objectives  In  question  can  best  be  real lsed. 

contemplated 
the  Commission 
light  of 
the 
It  will  also  consider,  taking 
the  proport Iona 11 ty  d lmens Ion  of  the  subs Id I ar I ty 

to  make  any  necessary  proposals 

leglslatlon, 
In 

been 

(23) 

{24) 

Memoranduw  N•2  on  the  dev.lopment  of  the  Cannl.l'llty  air  tran9Port  policy,  CXM{84)72  flnol,  Annex 
IV  - "Flnaiclal  aid  fl•cal  measure•  concerning  (cid:127) hipping  q>erotlon•  with  (cid:127) hip•  regl•tered  In  the 
Cannl.l'lltyN,  SEC{89)921  final. 
Article  14  of  Couicll  Directive  91/440/EEC  of  29.7.91  {OJ  L  XS/,  24.8.91). 

. 

68. 

69. 

- 28  -

In 

Community 

addition, 
the  Commission 

The  Convnission  wi  11  also  review 
the  functioning  of  Community 
legislation  with  a  view  to  determining  whether  the  objectives  of 
the  Internal  market  In  transport  services  are  being  effectively 
includes 
attained. 
obligations  for 
the  functioning  of 
Community 
legislation  though  without  any  explicit  reference  to 
possible  future  Initiatives.  For  example,  reports  are  called  for 
on  the  appllcatlon  of  the  Council  regulations  on  route  access  and 
fares  In  the  f leld  of  civl I  aviat lonC25).  The  same  applies  to 
the  Implementation  of  the  1986  shipping  regulatlons< 26)  and  to 
the  regulation  on  social  Issues  In  the  field  of  road  transport 
be 
reports  wlll 
such  as  driving 
accompanied  by  proposals  for  action  wl  I I  be  decided  at 
the 
appropriate  time. 

tlmeC27).  Whether 

legislation 

to  review 

these 

transport  and 

requiring  analysis 

it  wi  I I  be  necessary 

rental  of  motor  vehicles.  On 

In  addition,  the  1992  programme  concentrated  on  known  priorities. 
But  problems  that  were  put  to  one  side  as  being  of  secondary 
Importance,  or  s Imp I y  not  ant I c i pated,  may  we 11  now  emerge  as 
meriting  attention.  Here 
to  establ lsh, 
under  the  conditions  now  prevailing  or  likely  to  prevail  In  the 
type  of  In It I at I ve  wou Id  most  ef feet I ve I y  rea I I se 
future,  what 
the  Treaty's  objectives.  Areas 
Include 
general  aviation,  taxi  services,  security  transport,  ambulances, 
own  account 
the 
harmonisation  side,  the  opening  up  of  hitherto  national  markets 
calls  for  a  continued  examination  of 
for  Community 
measures  to  address  prob I ems  wh i eh  I i ber a I Isa t ion  measures  w I I I 
not  by 
through  the  work Ing  of  the  I nterna I 
the 
market. 
development  of  direct  competition  between  operators  subjected  to 
still  divergent  national  or  regional  regulatory  regimes  applying 
to  matters  as  diverse  as  the  organisation  of  market,  taxes  and 
other  charges,  technical  requirements,  social,  environmental  and 
safety  obllgatlons,  civil 
liability  regimes  and  so  on.  These 
matters  are  considered  further  In  subsequent  chapters  since  they 
need  to  be  examined  in  the  light  of  major  developments  which  will 
the  Community's 
have  a  decisive 
transport  system  and  consequent I y  on  the  prov Is Ions  of  the  CTP 
relating  to  the  functioning  of  the  Internal  market  In  transport 
services. 

Indeed  these  prob I ems  may 

indeed  be  aggravated  by 

the  development  of 

themse Ives  reso I ve 

Impact  on 

the  need 

IV.1.e 

INFORMATION  AND  ANALYSIS  OF  THE  FUNCTIONING  OF  THE  MARKET 

70. 

future 

Initiatives  and 

their  possible 
The  Justification  for 
content  depends  In  large  measure  on  the  aval labllity  of  relevant 
Information  on 
transport 
services  and  of  the  different  transport  systems  upon  which  It 
the 
depends.  This  applies 
functioning  of  the  market  and  also  to  other  possible  developments 
of  the  CTP. 

to  measures  directly  addressing 

functioning  of 

the  market 

the 

in 

Articl•  13  of  Councl I  Regulation  2408/82  (OJ  L  240  of  24.8.92)  and  Art lcle  9  of  Councl I 
Regulation  2409/92  (OJ  L  240  of  24.8.92). 
Article  11  of  CoW'icl I  Regulation  (EEC)  N•4055/86  of  22.12.86  (OJ  L  378.  31.12.86). 
Art lcle  16  §1  of  Councl I  Regulation  (EEC)  N•3820/85  of  20.12.85  (OJ  L  370,  31. 12.85). 

- 29  -

71. 

Inland  goods 

transport  statistics, 

the  col lectlon  of 
As 
to 
is  co-ordinated  by  Eurostat  under  four 
statistical 
information 
Counci  I  DirectivesC28). 
is  obtained  by  national 
Information 
statistical  institutes  or  national  transport  administrations  for 
road  and  inland  waterways  and  by  the  main  railway  enterprises  for 
rai I  data.  The  responsibi I ity  for  data  collect ion  and  survey 
methodology  lies  and  wi  I I  continue  to  I le  essentially  within  the 
Member  States  and  their  national  networks  of  statistical  sources. 

72.  Other 

is 

at 

present 

dispersed, 

information 

incomplete, 
I neons I stent  and  of ten  of  very  uneven  qua I I ty.  The  "temporary" 
system  for  observing  markets  for  the  carriage  of  goods  by  rail, 
road  and  inland  waterways  continues  to  function  under  the  Counci  I 
the  purpose  of  providing 
Resolution  of  21  March  1992(29)  for 
In 
information  on  the  development  of  Inland  transport  markets. 
Information  is  gathered 
other  sectors  no  such  mechanism  exists. 
as  occasion  demands 
including 
stat I st i ea I 
consu I tanc i es, 
offices, 
industrial  organisations  and  transport  operators.  The  suggestion 
this  situation  an 
has  been  made 
organisation  such  as  a  transport  observatory  should  be  created  to 
generate  relevant  information  in  a  more  systematic  way. 

a  variety  of 

institutes, 

in  order 

research 

sources 

improve 

that 

from 

to 

73.  However,  work  currently  under  way 

to  extend 

Information  System 

the  European 
is  based  on  a  global 
Transport  Statistical 
the  different 
approach  aimed  at 
transport,  and  considers  al I  modes.  A  significant 
modes  of 
the  coverage  of  existing 
effort 
statistical  work 
the  Statistics  Framework 
Programme,  other  transport  sectors  such  as  combined,  maritime, 
~ir,  and  passenger 

transport  as  wel  I  as  transport  safety. 

to  widen 
include,  within 

improved  comparabl I lty  between 

in  progress 

to 

is 

74.  Whl  le  new  initiatives  in  this  field,  such  as  the  actions  being 
taken  to  set  up  a  European  Centre  for  Prospective  Analysis  on 
Infrastructure,  are  welcome  it  would  not  be  practical  to  try  to 
centralise  the  function  of  gathering  and  analysing  all  transport 
data  in  a  central  "observatory"  as  some  have  proposed.  Instead  It 
would  be  preferable  to  promote  the  cooperation  of  bodies  engaged 
in  this  field,  existing  and  yet  to  be  created,  by  developing  a 
the  EURET  programme 
network  between 
stocktaking  of  national  and  other  data  gathering  and  forecasting 
activities  will  be  carried  out  with  a  view  to  evaluating  the 
possibi I ities  for  cooperation  and  co-ordination. 
In  the  I ight  of 
taken  bul  I ding  on  what 
that  evaluation, 
already  exists.  The  future  of  the  Community's  existing  system 
for  market  observation  should  be  decided 
in  the  light  of  these 
developments. 

initiatives  wi  I I  be 

this  end,  under 

them.  To 

(28)Councll  Directive  78/546/EEC  of  12.06.78  (O.J.  L168/29,  26.06.78) 
Council  Directive  89/~2/EEC  of  18.07.89  (O.J.  L226/8,  03.08.89) 
Councl I  DI rect ive  80/11n/EEC  of  04.12.80  (O.J.  L350/23,  23.12.80) 
Council  Directive  80/1119/EEC  of  17.11.80  (O.J.  l339/30,  15.12.80) 

(29) 

O.J.  N•C86/4  of  7 April  1992. 

[5) 

- 30  -

IV.2. 

FROM  THE  ELIMINATION  OF  BARRIERS  TOWARDS 
AN  EFFECTIVE  INTEGRATED  SYSTEM 

- 31 

-

IV.2.a. 

IMBALANCES  AND  INEFFICIENCIES 

IV.2.a.1  MODAL  DISEQUILIBRIA 

75. 

76. 

77. 

in 

the 

the 

In  Chapter 

the  movement 

the 
including 

I I,  economic  growth, 

into  market  economics  of 

towards  a  considerable  expansion  of 
internal  market, 

As  was  shown 
I ncreas Ing 
importance  of  services  and  major  social  and  economic  changes  have 
transport 
contributed 
sector.  The  completion  of 
the 
lifting  of  cabotage  restrictions,  the  creation  of  the  European 
Economic  Area  and 
the 
the  CIS  wi  I I 
countries  of  Eastern  and  Central  Europe  and 
certainly  contribute  to  further  expansion 
the  future.  The 
expansion  of 
the  transport  sector  has,  however,  brought  problems 
In 
its  wake;  growth  has  produced  or  ex acerbated  a  number  of 
in  the  transport  system  taken  as  a 
imbalances  and  inefficiencies 
whole  and  also  within  transport  modes.  Despite  the  considerable 
inadequate 
success  of 
integration 
practical 
in  some 
alternatives  to  current  services. 
modes  is  producing  congestion  and  environmental  damage,  while,  in 
others,  underused  capacities  exist. 
incomplete 
networks  cause  bottlenecks  in  some  areas;  in  others,  they  prevent 
fuller  integration  of  peripheral  regions  into  the  single  market. 
imbalances  and  inefficiencies  are  not  simply  the  cause  of 
These 
inconvenience 
to  a 
growing  body  of  pub I ic  opinion  and  uncorrected,  they  threaten  to 
the  process  of 
damage 
economic 
international 
competitiveness. 

in  meeting  consumer  demand, 
some 

integration  and  adversely  affecting  its 

frustration.  They  are  unacceptable 

the  Community's  development, 

Inadequate  capacity 

Inadequate  or 

of  modes 

transport 

denying 

slowing 

users 

and 

is 

transport 

Imbalances  and 

important  reasons  why 

One  of  the 
inefficiencies 
have  arisen  is  because  transport  users  have  not  been  adequately 
confronted  with  the  full  costs  of  their  activities  and  because 
I agg i ng 
the  construct ion  of 
behind  what  was  needed. 
thus  gave 
soc i a I I y  sub-optima I  resu Its  by  distorting  the  ba I ance  between 
transport  demand  and  supply,  both  across  modes  and  within.  As 
prices  do  not  reflect  the  full  social  cost  of  transport,  demand 
has 
and 
infrastructure  policies  were  to  be  pursued,  these  inefficiencies 
would  largely  disappear  over  time. 

Individual  decision-making 

Infrastructure  has  been 

artificially 

appropriate 

pr1c1ng 

high. 

been 

If 

cases 

to  do  so.  Moreover, 

Road  transport  activity  has  grown  faster  than  other  modes  and  in 
genera I  cont I nues 
the  di stances  of  road 
Journeys  for  both  passengers  and  goods  are  in  the  vast  majority 
for 
of 
alternative  solutions  to  compete.  The  private  car  and  lorry  have 
thus 
causing 
the  dominant  means  of 
congestion 
road  corridors  and  urban  centres.  The 
present  traffic  situation  in  many  city  centres  and  conurbations 
it.  Further 
saturation  or 
is  one  of 

relatively  short,  making 

it  more  difficult 

as 
in  main 

transport 

complete 

emerged 

close 

to 

- 32  -

development  of  road  infrastructure  alone  is  unlikely  to  resolve 
the  problem,  necessary  as  it  may  be  in  some  areas.  In  others,  the 
construction  of  new  capacity  Is  In  any  case  meeting  significant 
obstacles,  physical  and  pol itlcal.  Moreover,  associated  with  a 
continuing  Increase  of  cars  and  lorries  is  an  Inevitable  increase 
In  pollution  and  in  the  number  of  dead  and  injured  from  accidents 
on 
technical  or  other 
always  off-set  by 
Improvements  in  the  fields  of  environment  protection  and  safety. 

road, 

not 

the 

78. 

in 

decline 

population. 

Insufficient 

In  the  case  of  rai I,  traffic  and  destinations  have  changed  with  a 
growth  in  some 
traffic,  notably  urban  and  inter-city,  but  a  fal I 
In  others  notably  in  the  old  Industrial  areas  and  those  suffering 
a 
in 
Infrastructure  has  produced  a  number  of  saturation  points  In  the 
rai I  network.  However,  the  entry  Into  service  of  new  sections  of 
high  speed  I Ines  and  the  closure  of  many 
I ight ly  used  services 
have  created  surplus  capacity,  even  If  this  surplus  capacity  is 
It 
not  always  available  where 
In 
is  most  needed.  Reductions 
the  spare  resources  that  cou Id  be 
reduced 
ro 11  i ng  stock  have 
rapidly  deployed.  Nevertheless, 
further 
future, 
development  of  the  high  speed  network  wil I  release  more  capacity 
on  the  existing  I Ines  which  with  limited  investment  could  be  used 
for  long  distance  freight  or  other  new  services. 

Investment 

the 

the 

In 

Inland  Waterways 

by 

to 

I imlted 

accessibi I lty 

suitable,  wel  I 

79.  Waterways  are  particularly  efficient  for  bulk  traffic  but  have 
not  yet  been  widely  exploited  for  other  trades;  the  possibi I ities 
are 
equipped 
waterways,  such  as  the  Rhine  and  the  Rhone.  Evidence  available 
suggests  that  the  overal I  European  waterway  network  Is  capable  in 
than 
time  of  handling  much  more 
the  current  traffic  provided 
in  maintenance  and  works  to  improve 
realistic  investment  is  made 
the  existing  network, 
some  major 
in  particular, 
bottlenecks  and  stimulate  transport  particularly  along  the  north 
south  axis  and  eastwards  towards  the  new  L~nder  of  Germany  and 
Eastern  and  Central  Europe. 
Improved  handl  Ing  facl I lties  to  cope 
with  the  increase  in  container  traffic  are  particularly  necessary 
if  any  expansion  in  this  sector  is  to  occur. 

remove 

to 

80. 

transport 

infrastructure.  Problems 

Strong  growth  rates  in  air  traffic  inside  and  to  and  from  Europe 
have  been  sufficient  to  place  severe  strain  on  some  parts  of  the 
air 
the 
fragmented  and  non-standardised  nature  of  air  traffic  management 
and  control  (ATM/ATC)  systems  in  Europe  and  from  the  division  of 
the  airspace  coincide  with  a  serious  lack  of  avai I able  runway  and 
terminal  capacities  at  some  major  airports.  The  structure  of  the 
Community  air  space  which  is  constrained  by  the  fixed  civil  air 
traffic  routing  systems,  the  dedication  of  extensive  volumes  of 
air  space  for  military  purposes,  the  separation  of  air  traffic 

resulting 

from 

- 33  -

Is  an 

control  systems  along  national  I Ines  and  the  fact  that  commercial 
air  traffic  control  of  en-route  traffic  does  not  generally  apply 
below  10000  feet 
In 
capacity  and  eff i c I ency.  Peak  period  air  traff I c  de I ays  have 
worsened  over  the  years  and  are  now  at  an  unacceptable  level  with 
predictions 
future.  Competitive 
leading  airlines  to  opt  for  higher  freQuencles  with 
pressures 
to 
smaller  aircraft  and  hub  and 
exacerbate  the  problem. 

important  obstacle  to 

spoke  networks  are 

serious  worsening 

Improvements 

I lkely 

of 

In 

81. 

Physical  extension  of  infrastructure  capacities  in  air  transport 
Is  very  often  hampered  by  extremely  long  planning  periods  and  a 
significantly 
the 
sensitivity 
environmental  Impact  of  aircraft  movements.  Short-term  rel lef  by 
making  better  use  of  existing  capacities  Is  delayed  by  a  lack  of 
technical  and  economically  meaningful  degree  of  lntermodal lty,  in 
particular  between  rai I  and  air. 

Increased 

relation 

to 

In 

Maritime 

82. 

Is 

for 

Instead  of 

the  use  of 

important  role 

services  around 

the  maritime  mode 

In  compet it Ion  wl th 

land  modes  wl  11  have 

involving  the  shortest  seacrosslng  and 

transport  sector  has  played  and  will  continue  to 
The  maritime 
in  the  transfer  of  goods  between  Member 
play  an 
States.  However, 
too  often 
I lmited  to  situations  where,  due  to  geographical  factors  such  as 
I and  modes  do  not 
the  ex i stance  of  a  necessary  sea  crossing. 
constitute  an  alternative.  The  potential  contribution  of  short 
sea  transport 
to  be 
fully  developed,  particularly  now  that  cabotage  will  provide  new 
the  Community's  maritime 
opportunities 
the  usual  combined  sea-rail/sea-road 
periphery. 
Journey 
longer  rail/road 
longer  sea  Journey  could  reduce  considerably  those 
Journeys,  a 
land.  Obstacles  barring  the  exploitation  of  this 
necessary  by 
short-sea  potential 
include  hand I Ing  costs  and  delays  when 
transferring  goods  between  modes,  delays  In  ports  due  to  factors 
considered  below,  complex  documentation  procedures,  customer 
demands  for  Just-in-time  de I i very,  cont ractua I  I i ab i I i ty  systems 
traditional 
In  case  of  accidents  and 
the  poor 
the 
short-sea  shipping.  To 
relatively  minor 
in 
combined  transport  networks  and  the  fact  that  possibi I It les  of 
coastal  traffic  have  not  yet  been  widely  exploited  due  in  part  to 
the  restrictions  on  cabotage. 

image  of  much 
I ist  should  also  be  added 

role  at  present  of  short-sea 

transport 

this 

to  other  modes  of 

83.  When  discussing  maritime  transport,  particular  mention  should  be 
made  of  sea-ports  which  play  a  vital  role  in  providing  transfer 
transport.  Shortage  of  basic 
facl I I ties 
capacity 
the 
Community.  Competition  between  ports  of  different  countries,  and 
within  the  same  country,  has  resulted  In  capacity  being  provided 
to  match,  or  even  run  in  advance  of  demand. 
However,  there  are 
ports  In  some  parts  of  the  Community,  notably  In  Ireland  and  on 
infrastructure 
the  southern  periphery.  where 

Is  not  a  general  problem  among 

the  ports  of 

investment 

in  new 

- 34  -

to 

I inks 

in  providing 

inland  networks  has 
to  meet 
faci  I ities 

lagged  behind, 
and  connecting 
particularly 
Increasing 
the 
demand  for  commodities  to  be  delivered  Quickly  and  predictably. 
Combined  with  organisational  and  operational  difficulties,  these 
handicaps  have  contributed  to  the  development  of  a  situation  in 
which  the  hinterland  of  some  North  Sea  ports  extends  very  far  to 
the  south  and  west,  even  south  of 
in I and 
In  other  circumstances  wou Id  not  seek  to  transit 
traffic  wh i eh 
such  long  distances. 

the  A I ps  generat Ing 

traffic  point 

84.  Moreover  the  demand  for  rapid  and  reliable  services  is  reflected 
in  the  continuing  trend  for  traditional  methods  of  hand I ing  goods 
to  be  replaced  by  the  use  of  containers,  which  offer  advantages 
in  terms  of  speed,  rel iabi I ity  and  security.  Forecasts  available 
to  a  growth  of  approximately  30% 
on  container 
same  advantages  are  even  more 
between  1990  and  1995.  The 
in  the  case  of  RORO  traffic,  and  use  of  this  type  of 
apparent 
length  sea 
service  has  grown 
short  and  medium 
rapidly  on 
crossings  within  Europe.  To  cope  with  continuing 
in 
these  fast  moving  types  of  traffic  new  faci  Ii ties  will  probably 
largest 
be  reQuired.  Previous  experience  suggests  that 
ports  of 
in 
providing  them.  The  position  may  be  different  in  the  peripheral 
areas  and  for  small  ports,  however,  where  resources  may  not  be 
to  present 
read i I y 
organisational 
be 
also 
necessary  in  order  to  ensure  that  existing  and  future  faci Ii ties 
the  ports 
are  used  as  effectively  as  possible, 
concerned  to  share  in  the  increased  traffic  of  the  single  market 
and  to  play  their  proper  part  in  a  more  balanced  distribution  of 
traffic. 

arrangements  will 

I ittle  difficulty 

and  operational 

In  many  ports, 

there  wi  I I  be 

the  Community 

improvements 

to  enable 

ava i I ab I e. 

increases 

in  the 

85. 

Finally  as  regards  the  maritime  sector,  mention  should  be  made  in 
this  context  of  the  continued  erosion  of  the  Community's  deep  sea 
fleets  through  flagging  out. 
If  maritime  transport  is  to  make  a 
full  contribution  to  the  functioning  of  the  Community's  Internal 
transport  system,  it  wi  11  be  better  able  to  do  so  to  the  extent 
that  the  shipping  industry,  its  ski I Is,  structures  and  associated 
activities  have  not  been  al lowed  to  decline  so  seriously  that  it 
will  be  very  difficult, 
to 
reverse  the  trend.  Measures  I ike  EUROS  which  seek  to  restore  the 
competitiveness  of  al I  Community  deep-sea  fleets  by  re-balancing 
the  conditions  under  which 
in  competition 
these  operating  under 
with 
third  country  carriers, 
in  this 
flags  of  convenience,  have  an 
respect. 

including 
important  role  to  play 

in  some  areas  perhaps 

they  have  to  operate 

impossible 

IV.2.a.2  REGIONAL  DIMENSION 

86. 

imbalances  and 
Furthermore,  when 
the  regional  dimension 
inefficiencies  of 
the 
is  a  close 
must  be 
development  of  transport  and  the  spatial  distribution  of  economic 
activity. 

·examining 
the  transport  sector, 

interaction  between 

the  problems  of 

included.  There 

- 35  -

87.  Most  of  the  critical  performance  sectors  of  the  European  economy, 
namely  services  and  high-tech  manufacturing,  tend  to  be 
located 
In  congested,  environmentally  sensitive  areas  :  on  the  one  hand, 
major  cities  and  conurbations,  and  on  the  other,  in  the  corridor 
Barcelona-Marsei I le/Lyon-Mi Ian/Strasbourg-Stuttgart-Munich. 
These 
supplementary 
infrastructure  is  particularly  difficult  due  to  environmental  and 
economic  costs.  Alpine  routes,  which  have  strategic  importance 
for 
to  the 
I inkage  of  the  northern  part  of  the  Community 
south,  pose  particularly  sensitive  problems. 

in  which 

provision 

places 

are 

the 

of 

88. 

89. 

the 

the  same 

to  60  %  of 

rural  exoduses  and 

infrastructure  representing  only  50 

the  economic 
time,  as  growing  congestion  affects 
At 
core,  there  has  also  been  under-investment  In  peripheral  areas. 
Nonetheless  it  is  widely  accepted  that  reliable  transport  systems 
Important  contribution  to 
are  Instruments  capable  of  making  an 
Indeed, 
the  redressing  of  current  centre-periphery  disparities. 
level  of 
regions  eligible  for  ERDF  objective  1  funding  show  a 
the 
transport 
regional 
Community  average. 
functioning  of 
In  addition, 
transport  networks  has  been  negatively  affected  by 
several 
factors  for  example  changes  in  transport  demand  due  to  increased 
the  closing  down  of  numerous 
car  use, 
transport  lines.  The  reasons  for  this  lack  of 
investment  are  : 
the  relatively  low  ranking  of  infrastructure  investments  In  the 
in  part  to  the  difficulties  in  identifying 
periphery,  mainly  due 
and  Quantifying  benefits  from  such  schemes;  and  the  high  costs 
involved  in  overcoming  the  problems  of  isolation  of  these  areas, 
often  related  to  the  existence  of  natural  barriers  (the  Alps,  the 
is  particularly 
Pyrenees  or 
disadvantageous  for  Ireland  and  Greece.  The  result  is  a  failure 
to  complete  networks  which  clearly  acts  to  the  detriment  of  the 
periphery  and 
the 
Community  as  a  whole.  Of  course  the  regions  most  affected  by 
this  Investment  gap  tend  to  be  the  least  prosperous  parts  of  the 
Community. 

the  coherent  development  of 

sea  crossings); 

this  situation 

therefore 

to 

its 

long 

fought 

to  overcome 

in  the  financing  via 

the  geographic 
The  Community  has 
disadvantages  of 
regions.  The  European 
less  well-off 
Investment  Bank  (EIB)  has  been  acting  since  the  origin  of  the 
loans  of  infrastructure  projects 
Convnunity 
of  common  interest  and  in  the  financing  of  projects  aimed  at  the 
promotion  of  regional  development, 
including  transport  projects. 
In  1975  it  was  Joined  by  the  European  Regional  Development  Fund 
improve 
(ERDF)  which  had,  up 
transport  infrastructure  in  lagging  regions,  that  is  36  %  of  the 
In  1982  a  specific  budget  line  was  created 
total  ERDF  expenses. 
to  cont r i bu te  to  the  deve I opment  of 
i nf r ast ructure. 
transport 
the  Community  was 
The  overall 
then  of 
in  1981  and 
accentuated  by 
responded 
Spain  and  Por tuga I 
to  that 
Community's 
the 
challenge  with 

infrastructure  deficit  of 
the  entry  first  of  Greece 

in  1986.  The  Community 
of 

to  1988,  granted  8786,6  MECU 

reform 

1988 

the 

to 

- 36  -

through 

programmes 

structural  Funds  which  wi  11  contribute,  between  1989  and  1993, 
5583,9  MECU  to  transport  projects  in  Objective  1  regions  via  the 
convnunlty  Support  Frameworks.  Additional  projects  are 
to  be 
(crossborder 
such 
funded 
cooperation)  and  REGIS  (ultraperlpheral  islands).  The  Convnission 
has  now  proposed  a 
the 
Convnunlty  budget  In  the  period  1993  to  1997(30).  This  Includes 
a  substantial  increase  In  the  structural  Funds  and  provision  for 
the  Cohesion  Fund  agreed  at  Maastricht  under  which  help 
Is 
specially  targeted  on 
transport  Infrastructure  and  environment 
needs  In  the  four  poorest  Member  States. 

reinforced 

framework 

financial 

INTERREG 

for 

as 

90. 

In  very  simple  terms, 

the  Community's  geography,  physical 

and 
In  addition,  given 
economic,  some  areas  have  to  bear  a  disproportionate  burden  of 
the  costs  of  cross-frontier  traffic,  particularly  road  traffic. 
This  Issue  has  become  particularly  acute  regarding  the  transit  of 
heavy  goods  vehicles  from  which  transit  regions  may  derive  little 
it  can  be  said 
or  no  economic  benefit. 
that  some  Member  States  enjoy  an  approximate  ba I ance 
that 
In 
their  lorries  travel  as  much  on  roads 
in  other  Member  States  as 
do  other  lorries  on  theirs.  Others  do  not,  however.  Some  enjoy  a 
to 
significant  positive  balance  while  conversely  others  have 
support  a  burden  which  significantly  exceeds 
their 
lorries  make  of 
in  other  countriesC31).  Progress  on 
the 
tackling 
fixing  of  a  common  minimum  rate  for  excise  duty  on  diesel  fuel 
(32)  but  much  remains  to  be  done 
in  the  area  of  approximation 
of  user's  charges  and  particularly  on  taxes  for  lorrlesC33). 

roads 
the  problem  at  Community 

level  has  consisted 

the  use 

In 

IV.2.a.3  ENVIROtNENT 

91. 

the 
to 

growth 
the  Community's 

contributing 
Finally, 
posit I ve I y 
i ndustr I a I  and  service  economy, 
has  caused  a  variety  of  Increasingly  serious  problems  as  already 
indicated  In  Chapter  11.  This  quest ion  Is  further  developed  In 
Chapter  IV.2.d  below. 

transport 

though 

in 

IV.2.a.4  THE  CHALLENGE 

92. 

In 

and 

Is  how 

against 

Inefficiencies 

transport  system 

the  Community's 
the  most  efficient  manner, 

to 
The  cha I lenge  for 
provide, 
the  services  that  are 
necessary  for  the  continued  success  of  the  single  market  and  the 
mobility  of  the  individual  traveller,  while  continuing  to  reduce 
the 
and 
increased 
safeguarding 
this 
transport  activity  generates. 
free 
challenge,  whl  le 
market,  by  the  Introduction  of  economically  efficient  transport 
require  a  number  of  actions, 
policies. 
Convnunlty  and  national, 
to  ensure  that  the  transport 
market  contributes 
the  highest  possible  societal  welfare, 
taking  into  account  both  the  benefits  for  the  user  and  the  cost 
to  the  environment,  in  al I  regions  of  the  Community . 

of 
effects 
is  possible 

Imbalances 
harmful 
It 

to  meet 
the 

the  basic 

tenets  of 

respecting 

this  will 

in  order 

However, 

system 

that 

the 

the 

to 

..,,,(30=..-)---,Th=--e--=Carmu,,--__,l,...,.t-y-e--•• 
(31) 

finances  between  now  Cl'ld 

1992. 
See  Elimination  of  Distortions  of  Ca11>etitlon  of  a  Fiscal  Nature  In  the  Transport  of  Goods  by 
Road,  EuropeCl'l  Cannlsslon,  1986. 
Council  Directive  92/82/EE.C  of  19.10.92  (OJ 
CXM{92)405  f lnol,  30.9.1992 

1997,  CXM(92) 

10  March 

(;~) 
(..,.,,,) 

ftnal, 

2001 

- 37  -

IV.2.b. 

TRANSPORT  DEMAND. 

INTERMODAL  COMPETITION 

AND  COMPLEMENTARITY 

IV.2.b.1  CAPACITY  CONSTRAINTS  AND  POSSIBLE  RESPONSES 

93. 

The  trends  presented  in  Chapter  II  Indicate  that,  in  a  "business 
as  usual"  scenario,  the  demand  for  transport  both  passenger  and 
freight,  Is  likely  to  continue  to  increase  at  a  rate  at  least  as 
fast  as  that  of  the  economy  as  a  whole.  This  would  Imply  that  by 
the  end  of  the  decade  demand  could  wel  I  be  between  a  Quarter  and 
a  third  higher  than  It  is  today.  Unless  action  Is  taken,  much  of 
this  Increase  wl  11  probably  be  concentrated  In  the  road  sector 
wh I eh 
Is  a I ready  under  pressure,  somet I mes  severe.  The  reasons 
for  this  pressure  stem  largely  from  the  following  factors  : 

first,  transport  users  have  not  been  obl lged  to  pay  the  ful I  cost 
of  the  services  that  they  use,  notably  the  external  costs; 

second,  public  Investment 
real  terms  over  the  last  ten  years  while  traffic  has  increased; 

in  Infrastructure  has  been  reduced  In 

third,  planning 
opinion  have 
of  new  projects. 

reQuirements  and 

from  pub I le 
imposed  Increasing  restraints  upon  the  development 

resistance 

the 

The  net  result 
needed  to  meet  demand. 

Is  a  shortfal I 

In 

the 

level  of  Infrastructure 

Important 

in  Chapter 

resources  aval lable 

Is  a  continued  effort 

to  examine  how  under-used  capacity 

the  Union  Treaty's  provisions  on 

these  objectives  as  explained  more  fully 

94.  One  possible  solution,  at  least  In  part,  is  to  look  for  ways  to 
Increase 
Investment,  particularly  by 
for 
involving  the  private  sector.  The  approach  being  developed  on  the 
basis  of 
trans-European 
in 
networks  pursues 
Chapter  IV.2.c  below.  But  new  Investment  can  only  be  part  of  the 
answer.  Also 
to  el lminate 
art If I c I a I  restr I et Ions  on 
the  prov Is ion  of  transport  serv Ices 
which  prevent  the  most  efficient  solutions  being  used,  a  matter 
already  considered 
is 
essential 
the  transport 
than  road,  could  be 
system,  part lcular ly 
the  principle  of  free 
brought 
cho Ice  for 
the  user.  There  are  good  grounds  to  consider,  as 
Indicated  In  the  preceding  section  of  this  chapter,  that  spare 
capacity,  actual  and  potential,  does  exist  as  regards  ral I, 
inland  waterways  and  short-sea  shipping.  Pol  Icy  measures  and 
advanced 
the 
attractiveness  of 
in  question  and  promote 
individual  mode 
the  combined  use  of  different  modes.  Combined  transport  should 
Include  the  wider  possibi I it ies  that  are  offered  by  different 
combinations  of 
rail/Inland  waterway, 
rail/air 
In  particular.  These  "lntermodal  operations"  should 
provide  the  best  combination  of  the  different  systems  to  meet  the 
needs  of  operators  and  users . 

into  service,  while  respecting 

technologies 
the 

the  modes  other 

In  addition, 

IV.1  above. 

services, 

rail/sea, 

Increase 

seek 

both 

can 

to 

in 

It 

in 

. ) 

- 38  -

95. 

Beyond  these  measures,  however,  it  will  be  necessary  to  address 
the  fundamental  question  of  the  true  costs  of  transport  and  the 
necessity  of  I nterna I Is Ing  ex terna I  costs  so  as  to  ensure  the 
transport  system.  Such  a  po I icy 
deve I opment  of  a  susta i nab I e 
will  Influence  the  demand  for  all  modes  by  Increasing  the  price 
these  Impose  costs  on 
of  Individual  modes 
society  which  are  presently  not  paid  for  by 
the  respective 
the  external  costs  associated  with  various 
transport  users.  As 
modes  differ  slgnlflcantly,  the  price  Increases  will  also  vary 
leading  transport  users  to  adjust  their 
across  transport  modes, 
those  forms  of  transport  that 
demand, 
In  particular.  to  favour 
reduce  or  avoid 
fewer 
impose 
unnecessary  movements. 

external  costs  or  even 

to  the  extent  that 

to 

IV.2.b.2  COSTS,  CHARGES  AND  SUBSIDIES 

the 

thereby 

reach  of 

the  other  modes, 

96.  Why  has  such  a  strong  shift  to  road  occurred  both  In  passenger 
and  freight  transport,  In  the  past  30  years,  seemingly  neglecting 
short 
the  posslbllltles  offered  by  rail,  Inland  waterways  and 
sea?  To  answer  this  fundamental  question  it  Is  necessary  to  look 
at  the  determinants  of  mode  choice.  Obviously,  the  Increasingly 
finer  penetration  and  avallablllty  of  road  haulage  at  virtually 
locat Ions  p I ays  an  Important  ro I e  and  Is  someth Ing  that  Is 
a 11 
I lmltlng 
not  within 
In  transport 
lntermodal  competition,  especially  on  short  hauls. 
markets  where  all  modes  compete.  various  elements  enter  Into  the 
mode  cho Ice  process:  flex I b 111 ty,  speed,  re 11 ab 111 ty,  frequency 
In  freight 
and  price  are  probably 
transport,  the  Increasing  share  of  high  value/low  volume  goods 
lnformat Ion  technologies,  both  In 
and  the  surge  In  the  use  of 
production  and  distribution,  have 
that  score 
four  criteria,  which  could  be 
relatively  well  on 
described 
a I r 
the 
transportation,  the  latter  offering  high  quality  transport  though 
at  relatively  high  cost,  profited  strongly  from  this  development. 
Furthermore,  due  partly  to  the  fact  that  external  costs  were  not 
road 
fully 
costs  charged  to  users  stimulated  this  process,  as  they  not  only 
made  road  haulage  more  attractive  In  Itself,  but  also  reduced  the 
Incentive  to  further  develop  and  exploit  the  potential  of  other 
systems. 

the  constant  relative  reductions 

the  first 
I abe I 

"qua Ii ty".  Road 

Important  ones. 

favoured  modes 

Internalised, 

the  more 

hau I age 

and 

by 

In 

97. 

To  change 
levels  : 

this  situation  action  might  be 

taken  at  different 

first,  to  reduce  the  charged  cost  differences  between  modes, 
by  Incorporating  Into  the  transport  prices  the  Infrastructure 
and  external  costs  which  are  presently  not 
Into 
account; 

taken 

second,  to  Improve  the  quality  of  service  that  Is  available, 
particularly  for  lntermodal  systems. 

- 39  -

98. 

99. 

The  problem  of  coverage  of  infrastructure  and  external  costs  Is 
complex  and  involves  a  wide  range  of  issues.  However,  the  weight 
of  the  best  available  evidence  suggests  that  certain  sections  of 
costs, 
their 
Industry 
the 
particularly  when  external  costs  are  taken  Into  account. 

transport 

cover 

road 

not 

do 

in 

the 

to  whether  changes 

level  of  charges  can  vary 

the 
As 
distribution  between  modes,  common  sense  suggests  that,  under  the 
right  conditions,  it  will.  After  all,  the  growth  in  the  share  of 
the  road  sector  has  owed  much  to  the  constant  reductions  in  Its 
charged  costs  relative  to  other  modes.  Clearly,  however,  changes 
wlll  only  take  place  where  there  are  viable  alternatives,  which 
Is  not  always  the  case,  particularly  over  short  distances.  But 
for  medium  and 
Indeed 
exist  and  In  this  case  should  make  other  modes  more  competitive 
and  therefore  moves  to  ensure  that  road  transport  does  pay  Its 
proper  share  of  Infrastructure  and  external  costs  should  effect  a 
shift  in  their  favour,  particularly  If  other  measures  are  also 
being  taken  to  Increase  their  attractiveness. 

longer  hauls  potential  alternatives  do 

In 

congested 

and  other 

in  demand. 

100.  Two  further  considerations  reinforce  the  case  for  proceeding  In 
this  direction.  First,  even  if  road  users  were  covering  the  real 
costs  of  the  road  transport  system,  It  Is  a  finite  resource  in 
the  sense  that  road  capacity  cannot  be  constructed  to  meet  any 
growth 
environmentally 
sensitive  areas,  In  particular,  the  posslbllltles  for  Increasing 
the  system  by  adding  to  the  network  are  now 
the  capac I ty  of 
In  conditions  of  scarcity  It  makes  sense  to 
rather 
limited. 
ensure  that  demand  management  mechanisms 
Including  charges  are 
Imposed  which  wlll  create  an  Incentive  for  users  to  reflect  on 
to  consider  other 
the  value  of  a  particular 
a I ternat Ives.  Second,  to  re I y  on  cost 
lmputat ion  or  even  road 
pricing  Is  to  use  a  market  mechanism  which  still  leaves  operators 
with  choice  whlle  ensuring  a  better  utilisation  in  time  and  space 
of  different  transport  modes.  Some  other  possible  techniques  for 
deal Ing  with  problems  do  not  have 
It  makes 
sense  to  explore  fully  the  posslbllites  for  resolving  problems  on 
the  basis  of  such  a  mechanism  if  It  can  avoid  the  need  for  more 
for  user  choice, 
direct lve 
albeit  a  conditioned  one. 

techniques  subst I tut Ing  regulat Ion 

these  advantages. 

Journey  or 

- 40  -

to 

road 

to  transport  operators  but 

101.  The  object ion  may  be  made  that  increas Ing  the  charged  costs  of 
transport,  would  be  economically 
transport,  part lcular ly 
damaging  not  only 
the  economy 
generally.  One  option  that  could  be  examined  which  would  avoid 
or  limit  general  Increases  In  the  cost  of  transport  would  be  to 
reduce  simultaneously  the  I lcence  and  other  charges  appl led  to 
lntermodal  systems,  while 
heavy  goods  vehicles  that  are  used  In 
those 
level  of 
Increasing 
in 
Imposed  on  use  of  the  private  car.  An 
this  context  might  be 
the  conclusion  In  specifications  for 
heavy 
road  vehicles  of  high  standards  as  regards 
lntermodal 
safety  and  protection  of  the  environment.  The  special  tax  regime 
to  apply  to  such  vehicles  would  reflect  the  fact  that  they  would 
have  lower  road  mileages  than  ordinary  ones  and  would  also  Impose 
the 
lower  external  costs.  The  specifications  would  also  have 
the  I nteroperab I I I ty  of  I ntermoda I  systems 
ef feet  of  promot Ing 
throughout  the  Community. 

the  charges  overal I, 

Idea  to  be  explored 

Including 

the 

In 

It 

It 

the 

relieves 

entitles 

is  unlikely  to  produce  viable  efficient, 

types  of 
long  distance  passenger  and  freight  movements, 

102.  The  relationship  between  the  charged  costs  of  different  transport 
the  use  of  pub I I c  f I nanc Ing  to 
modes  can  a I so  be  mod I f I ed  by 
reduce  those  of  the  modes  which  have  the  potential  capacity  to 
a  general  policy  of 
relieve  modes  under  stress.  However, 
transport  operat Ion, 
permanent I y  subs Id Is Ing  cert a In 
Is 
particularly 
from 
unacceptable. 
concerned 
the I r 
compet It I ve  pressure  wh I I e  s imu I taneous I y  di sadvantag Ing 
competitors. 
long 
term  solut Ions.  Nevertheless,  aids  do  have  a  role  to  play  not 
the  cost  relationship  of  modes  but  also  In 
only  In  modifying 
rendering  certain  modes  more  attractive  In 
Is 
necessary  to  develop  guide I Ines  concerning  the  condit Ions  under 
which  they  are  to  be  considered  acceptable  under  Convnunlty 
law. 
Aids  to  Investment,  particularly  In  new  systems,  for  example,  a 
new  approach  to  the  movement  of  road  freight  vehicles  by  rail,  or 
the  sw Itch  of  env I ronmenta I I y  sens It I ve  f I ows 
wh I eh  encourage 
away 
this 
from 
regard.  Such  guldel Ines  would  not  only  serve  to  clarify  what 
measures  may  be 
loca I  author It les.  They 
would  also  serve 
to  orient  discussions  made  on  Convnunlty 
financing  of  projects  forming  part  of  trans-European  networks  and 
the 
on  pos It i ve  measures 
favourable  environmental 
possibility  of  new  capacity  under 
conditions, 
and  maritime 
transport. 

the  road  will  merit  particular  attention 

transport  modes  offer Ing 

taken  by  nat Iona I  or 

Inland  waterways 

In  particular, 

themselves. 

to  support 

It 

In 

103.  Measures  affecting  the  charged  costs  of  transport  have  a  direct 
the  competitive  position  of 
transport  systems  and 
impact  on 
operators. 
It  Is  dlfflcult  for  national  or  local  authorities  to 
act  alone  If  by  doing  so  they  wl  11  prejudice  the  position  of 
their  enterprises  relative  to  those  from  other  regions.  For  this 
reason,  measures  of  this  kind  are  best  taken  within  a  framework 
decided  at  Community  level. 
Indeed,  It  may  be  that  they  can  only 
be  taken  In  this  way.  The  development  of  a  Community  framework 
in  this  field  can  nevertheless  leave  scope  for  national  or  local 
authorities  to  take  account  of  their  particular  circumstances, 
In  deciding  on  the  Introduction  of  particular  road 
for  example, 
In  so  far  as  charging  systems  wl  11 
pr Icing  schemes.  Likewise, 
Is 
Increasingly  use  electronic  devices 

for  payment,  action 

- 41  -

that  vehicles 

Justified  at  Community  level  to  ensure  that  compatible  technologies  are 
developed  so 
from  different  Member  States  can  be 
processed  with  equal  facility.  Past  and  current  Community  R&D  work  has 
Is 
verified 
currently  assisting  the  development  of  common  specifications  for  a  Pan 
European  system  for  charging  operations. 

the  compatlbl lity  and  capabl I ity  of 

technologies  and 

IV.2.b.3  COMPLEMENTARY  MEASURES 

104.  Other  complementary  measures  to  Improve  the  qua I lty  of  different 
modes  and  of  I ntermoda I  serv Ices  as  such  w I I I  a I so  need  to  be 
considered. 

New  entrants  In  lntermodal  services 

105.  First, 
depends 
management  and  supervision  that  Is  applied. 

the  development  of  more  attractive 

to  a  considerable  degree  on 

lntermodal  services 
the 

the  efficiency  of 

Into 

I nternat Iona I  routes  ex I sting  serv Ices 
Part I cu I ar I y  as  regards 
In  this  context, 
have  of ten  not  met  performance  requirements. 
the  railway  Directive  91/440/EEC  will  as  from  next  year  allow  new 
railway  operators 
transport  market,  which 
the  combined 
should  stimulate  a  higher  quality  of  service  from  al I  concerned. 
Further  steps  now  need  to  be  taken  to  g I ve  fu 11  effect  to  the 
the  Direct lve.  An  examination  wi  11  be 
pr Inc I pie  contained 
made  of  the  need  for  new  measures  In  relation  to  access  to  and 
charging  for  railway  Infrastructure  and  for  the  establishment  of 
ral lway  companies,  since  present 
Its 
absence,  Directive  91/440(34)  might  well  have  rather  limited  or 
unacceptably  divergent  practical  results. 

Ind I cat Ions  are 

that 

in 

In 

Cooperation  and  competition  rules 

106.  Second, 

lntermodal  services  may 

require  co-operation  between 
different  transport  enterprises  particularly  in  the  light  of  the 
to 
provisions  of  Direct lve  91/440.  Such  agreements  wl  11  have 
the 
comp I y  wl th  Commun I ty  compet It Ion 
Commission  wl  11 
the 
possibility  of  a  modification 
to  Regulation  1017/68(35),  and 
Inform  concerned  undertakings  by  appropriate  means  of  Its 
will 
policy  In  this  respect.  The  treatment  of  maritime  undertakings 
operating  In  lntermodal  transport  will  also  be  reconsidered. 

I aw. 
possible  opt Ions, 

this  context, 
Including 

examine 

In 

34 
35 

Council  Directive  91/+10/EEC  of  29.7.91  (OJ  L  237,  24.8 .. 91). 
Councl I  Regulation  (EEC)  1017/68  of  19.07.68  (OJ  L175,  23.07.68). 

- 42  -

Technical  Harmonisation 

107.  The 

is 

the  vital  one  of 

third  area  of  activity 

technical 
interconnect Ion  of 
harmonlsat ion, In  particular  to  guarantee  the 
lntermodal  systems  and  the  interoperability  of  mobile  eQulpment. 
The  field  Is  vast  and  complex.  Accordingly  it  will  be  necessary 
to  fix  priorities  and  begin  by  addressing  those  problems  likely 
results  quickly  such  as  divergences  causing 
to  yield  useful 
I inkages 
problems  for 
between 
term,  more 
comprehensive  Initiatives  might  be  taken  such  as  the  posslblllty 
mentioned  above  of  deve I op Ing  spec If i eat ions  for  heavy  goods 
vehicles  dedicated 
addition 
lntermodal 
operations. 
appropriate  compatible 
Information  systems  must  be  developed. 
Research  and  development  projects  to  prepare  the  ground  for  these 
initiatives  will  have  an  important  role  to  play. 

the  transfer  of 
the 

lncompat Ible 
longer 

loads  and 
somewhat 

components. 

to 

In 

In 

108.  Technical  harmonisation,  essential 

to 

the 

interoperabi I ity  of 
systems  throughout  the  Community  and  affecting  the  output  of  Its 
Industries,  necessarily  requires  action  at  Community 
eQuipment 
level  based  as  far  as  possible  on  the  Community's  new  approach  to 
technical  harmonisation  followed  since  1985,  whereby  essential 
and 
reQu I rements 
technical 
to 
European  standards  developed  by  recognised  standardising  bodies. 
In It i at Ives 
the 
Community's  borders  will  also  need  to  be  considered. 

In  Community  DI rect i ves 
through 

specifications  are  achieved 

the  measures  beyond 

are  estab I I shed 

the  ef feet  of 

to  extend 

reference 

Llabi I lty  and  Insurance 

109.  Fourth,  at  present,  different  regimes  apply  to  the  liability  of 
interrnodal  operators  not  only  as  between  Member  States  but  also 
· 
to  the  different  modal  stages  of  an  lntermodal  Journey. 
As  a  United  Nations  Convention  on  multlmodal 
international 
transport  of  goods  was  adopted  on  24.5.1980  but  has  not  yet  come 
into  force,  an  Investigation  Is  needed  of  the  extent  to  which  a 
the  attractiveness  of 
more  uniform  approach  would 
mu It imoda I  serv Ices.  Shou Id  It  appear  des I rab I e, 
the  d If ferent 
methods  of  real Ising  that  objective  will  then  require  evaluation 
bearing 
rules 
appl lcable  to  the  operators  being  appl led  also  to  thos~  from 
third  countries,  particularly  those  from 
the  European  Economic 
Area  and  Eastern  and  Central  Europe. 

the  Community's 

Increase 

Interest 

In  mind 

seeing 

In 

Trans-European  lntermodal  networks 

110.  The  fifth  area  of  activity  concerns  the  development  of  trans 
European  networks 
their  progressive 
for  different  modes  and 
integration.  This  topic  is  developed  as  a  whole  in  Chapter  IV.2c 
but  certain  aspects  of  particular 
lntermodal 
relationships  merit  ~ttentlon  at  this  point. 

relevance 

to 

- 43  -

Fretght 

111.  As  regards  freight,  efforts  wlll  have 

to 

to  be  made 

to  Identify 
those  corridors  where  the  maximum  potential  for  transfer  exists 
and  also  those  flows  of  goods  that  particularly  lend  themselves 
to  transfer.  A start  has  been  made  with  the  recent  proposal  for 
p1·1ot  actions  for  combined  transport  :  PACT.  Specifications  for 
In 
tracking  and  Information  systems  should  also  be  developed. 
rapidly  as  possible  certain  peripheral 
order 
In  mind 
regions 
dlfflcultles  that  wl  11  be  encountered  with 
loadlng 
gauges  on  certain  routes,  particular  attention  should  be  given  to 
the  systems  wl th 
the  Interfaces  between 
which 
the 
necessary  eQulpment  to  ensure  efficient  transfers  to  spokes  which 
wlll  continue  to  have  different  technical  specifications  for  some 
time  to  come. 

the  exercise,  and  bearing 
track  and 

Include  as 
the  benefits  of 

It  connects.  Hubs  wl  II  have 

the  core  network  and 

to  be  provided  with 

In 

112. 

const I tute 

Importance.  They 

in  the  context  of  lntermodal ity,  terminals  of  al I  kinds 
Indeed, 
are  of  part I cu I ar 
the  v I ta I 
interfaces  which  In  large  part  wlll  determine  the  competitiveness 
and  utility  of  the  systems.  To  the  extent  that  they  become  more 
effective,  the  average  distance  at  which  combined  Journeys  become 
competitive  with  road  which  Is  at  present  estimated  to  be  In  the 
region  of  700  kilometres,  will  decrease.  Given  the  reality  that 
takes  place  over  shorter  distances,  as 
most  freight 
indicated  In  Chapter  II,  the  future  contribution  of 
intermodal 
transport  depends  critically  on  Improvements  In  efficiency  which 
wi  II  allow  It  to  compete  effectively  In  those  markets. 

transport 

imbalances  and 

the  western  and  southern  periphery  are  essent I a I 

113.  Terminal  efficiency  can  also  make  contributions  to  the  reduction 
of  some  other 
Inefficiencies.  More  effective 
if 
In 
ports 
short  sea  sh I pp Ing  Is  to  p I ay  a  b I gger  ro I e,  re I I ev Ing  some  of 
the  pressure  on  north-south  transit  across  the  Alps.  Freight 
areas 
distribution  centres 
can 
they  can  act  as 
contribute  In  various  ways.  Careful IY- sited, 
to  date 
lntermodal  hubs  and, 
technology 
the 
efficiency  of  distribution  In  urban  areas,  reducing  the  number  of 
factories  by  appropriate 
trips  needed 
sort Ing  and  consol idat Ion  of 
loads.  Where  freight  centres  can 
also  be  developed  as  sites  for  productive  activity,  the  concept 
of  the  •freight  village",  they  also  attack  some  current  transport 
for  movement 
problems  at 
directly. 

the  application  of  up 

to  stock  shops  and 

pract Ices,  greatly 

located  near 

large  urban 

loglst lcal 

the  need 

reducing 

root  by 

through 

Improve 

their 

and 

- 44  -

Passengers 

114.  Turning  to  passengers, 

the 

intermodal ity  needs  a  new  appraisal 

If 
the 
a I ternat Ives  are  to  be  developed  wh I eh,  by  approx I mat Ing 
door-to-door  convenience  and  flexibility  of  the  private  car,  can 
In  this  regard  there  is  a  strong  argument  that 
compete  with  It. 
in  addition 
the  Community  networks  already  envisaged,  an 
to 
effort  shou Id  a I so  be  made  to  create  an  Integrated  network  for 
collective  transport,  having  at  its  core  complementary  air,  bus 
including  the  capi I lary  systems  that  provide 
and  rat I  systems, 
access  to  and  from 
terminals.  This  Citizens' 
include  systems  and  services  offered  by  different 
Network  would 
types  of  operator,  publ le  and  private.  Combined  with  other 
information 
measures  such  as  the  development  of  user  friendly 
systems, 
and 
flex Ible  collect lve  transport  Including  tax I  services,  such  an 
true  Community 
approach  would  give  pub I le  service  transport  a 
dimension  and  so  contribute  to  reducing  the  power  of 
the  car 
"reflex"  which  so  dominates  many 
individual  travel  decisions  at 
present.  After  all,  it  makes  little  sense  to  bring  a  high  speed 
train  into  a  crowded  city  center  if  many  of  Its  passengers  must 
then  fight  their  way  through  congested  streets  to  an  airport  some 
distance  away,  not  served  by  efficient  collective  transport. 

appropriate  mobile 

communications 

longer  haul 

facilities 

115.  One  accompanying  measure 

Is 

that 

should  be  considered 

the 
establishment  of  a  Quality  Charter  for  the  services  forming  part 
of  the  network.  Such  action  would  contribute  to  both  the  future 
CTP  and  to  the  development  of  a  citizens'  Europe  by  defining  the 
quality  of  service  that  Community  citizens  would  be  entitled  to 
expect. 
It  would  address  such  issues  as  frequency,  reliability, 
accesslbl I lty,  aval labl I lty  and  qua I lty  of  Information,  ease  of 
Interchange  between  services,  comfort  and  so  on.  It  should  build 
the 
on  efforts  already  made 
International  Road  Union's  (IRU)  service  standards  for  buses  and 
the  quality  assurance  movement 
International 
Standards  Organisation's  (ISO)  9000  series. 

this  direction 

based  on 

such 

the 

as 

In 

the  Union  Treaty  will  ensure 

116.  An  approach  to  a  Citizens'  Network  based  on  the  trans- European 
network  provisions  of 
the 
Community's  Intervention  Is  limited  to  what  is  necessary  to  meet 
Its  needs  while  leaving  plenty  of  scope  for  authorities  at  other 
levels  to  discharge  their  own  responslbi II ties. 
It  also  permits 
the  Community  to  have  an  impact  on  decisions  at  other  levels,  for 
example,  In  the  field  of  land  use  planning,  while  still  leaving  a 
I lberty  to  other  responsible  bodies  to  take 
large  measure  of 
account  of 
Issues  are 
exposed  In  greater  detail  In  Chapter  IV.2.c  below. 

their  particular  circumstances.  These 

that 

- 45  -

Traffic  management  and  restrictions 

117.  The  problems  caused  by  road  traffic,  both 

to 

responses 

that  need 

to  be  made 

the  problems. 

limiting  traffic  flows 

restrictions  car  pool  Ing,  park  and 

lorries  and  private 
led  to  the  introduction  of  many  schemes  for  guiding 
cars,  have 
and 
:  bans  on  access  to  certain  areas. 
restrictions  on  parking,  obl lgatory  routes  for  certain  vehicles. 
night  and  weekend 
ride 
schemes,  and  traffic  Information  and  guidance.  Such  techniques 
clearly  have  their  part  to  play  as  one  component  In  the  range  of 
pol Icy 
In 
general,  such  measures  are  best  taken  at  national,  regional  or 
It  has  not  so 
local  level  depending  on  the  scope  of  the  measure. 
far  proved  necessary  to  consider  Commun I ty  act I on  to  harmonise 
these  approaches  which,  of  course,  must  not  discriminate  against 
vehicles 
flowing 
from  other  Member  States.  This  safeguard, 
to  ensure  that 
the  Treaty,  may  well  be  enough 
directly  from 
measures  taken  do  not  pose  a  significant  problem  from  the  point 
of  view  of  the  CTP.  The  Commission  accordingly  considers  that, 
In  so 
In  genera I.  no  Commun I ty  measures  are  needed.  However. 
te I ema t I c 
far  as  management  systems  may 
the  context  of 
technologies,  such  as  those  being  developed 
the  systems  are 
DRIVE,  action  may  be  needed 
compatible,  as  already 
in 
automatic  toll  collection  and  road  pricing.  The  Commission  wi  I I 
a I so  keep 
i dent I fy  developments 
that  might  pose  a  problem  for  the  free  circulation  of  goods  and 
persons. 

that 
technologies  used 

the  s I tuat ion  under  rev I ew 

I ncreas Ing I y  re I y  on 

to  ensure 
for 

indicated 

to 

In 

') 

- 46  -

IV.2.c.  SYSTEM  AND  NETWORK  DEVELOPMENT 

IV.2.c.1 

INTRODUCTION 

the 

latest 

those  systems 

the  ability  of  European 

technologies  and  of  al I 

118.  The  capacity  of  the  Community's  transport  systems  to  respond  to 
the  challenges  already  out I ined  depends  to  a  considerable  extent 
Industries  to  develop  new  systems 
on 
to 
using 
Incorporate 
their 
practical  utility  to  the  user.  Successful  results  of  research 
programmes 
latest 
scientific  and  technological  developments  are  applied  to  enhance 
the  performance  and  qua I lty  of 
the 
objectives  of  transport  policy.  For 
the  progressive 
development  of  transport  networks  guide I ines  must  ensure  that  the 
their  different  components,  operate  smoothly  and 
systems,  and 
effectively 
these  are 
together 
modal,  geographical,  or  technical. 

the  transport  field  can  ensure  that 

transcending  frontiers  whether 

in  networks  which  maximise 

transport  systems  serving 

those  concerned 

Its  part, 

the 

in 

119.  The  Community  has  an  important  role  to  play  in  these  areas  since 
in  different 
many  prob I ems  are  common  to  a I I  Member  States,  if 
indeed  have  cross-border  dimensions  and  effects. 
degrees,  and 
According I y, 
it  makes  sense  to  f Ind  new  common  so I u t ions  and 
develop  common  specifications  through  cooper at ion  at  Community 
levels.  Risks  can  be  shared  and 
and  even  broader  European 
economies  of  scale  are 
the 
development  of  new  systems  requiring  heavy  "up-front"  investment. 
The 
implications  of  such  activities  are  accordingly 
considerable. 

realised  assisting 

industrial 

I ikely 

to  be 

new 

services 

120.  The  potent I a I  synergy  between  research  and  network  deve I opment 
should  also  be  noted.  If  new  technologies  are  developed  In  common 
"up-stream",  it  becomes  far  easier  to  decide  on  the  application 
of  those  technologies  through  appropriate  standards  and  technical 
regulations  for  the  subsequent  development  of  European  networks 
and 
compatibi I ity, 
Interconnection  and  lnteroperabl I ity.  Conversely,  the  progressive 
development  of  European  networks  and  new  transport  services  wl  I I 
technical  solutions  to 
certainly  stimulate  the  search  for  new 
realize  those  same  objectives.  Again  the  industrial 
lmpl  !cations 
of  the  relationship  between  research  and  network  development  are 
considerable  for  they  constitute  a  potentially  powerful  means  of 
lmprov Ing 
In 
compet it I veness  of  Commun I ty 
accordance  with  Article  130  of  the  Union  Treaty. 

I ndustr I es 

interests 

the 

the 

of 

in 

telecommunications 

121.  Finally,  it  should  be  borne  In  mind  that  advances  In  information 
the 
and 
transport  and 
interdependence  which  has  always  characterised 
Information 
In 
communications. 
technology, 
telecommunications  network  operators  are  now 
beginning  to  Introduce  broadband  transmission  faci I I ties  and  new 

parallel  with 

technologies 

transforming 

advances 

are 

the 

In 

- 47  -

In 

for 

env I sage 

addition, 

the  Community.  Broadcasters 

digital  mobl  le  communications  services  within  the  open  network 
po 11 cy  of 
the  ear I y 
Introduction  of  digital  audio  transmission  which  wl  I I  enormously 
the  distribution  of  coded 
Increase  the  capacity  available 
transport  and  travel 
information.  These  new  techniques  promise 
to  offer  unprecedented  services  to  support  the  whole  transport 
chain  and  to  facilitate  cooperation  between  different  transport 
as 
modes. 
teleconferencing,  teleworking,  teleshopplng  and  various  forms  of 
to  modify 
personal  electronic  communlcat ion  are  quite 
slgnlflcantly 
for 
in  which  people 
physical  displacement.  However,  while  the  relationships  between 
physical  movement  and  communication  over  distance  may  well  change 
significantly,  It  should  not  be  assumed  that 
Increased  use  of 
telecommunications  will 
in  transport.  For 
while  they  reduce  the  need  for  movement,  personal  communications 
actually  Increase  the  freedom  to  move  without 
losing  access  to 
others. 

lead  to  a  reduction 

electronic 

techniques 

the  need 

the  way 

regard 

I ikely 

such 

new 

122.  The  hybrid  character  of  transport  and  communications  means  that 
an  appropr I ate  regu I atory  framework  must  be  developed 
through 
cooperation  between  a  diversity  of  actors  from  both  sectors 
Including  the  final  users  who  Increasingly  draw  on  the  combined 
services  of  transport  and  telecommunications.  This  framework  Is 
to  contribute  most 
vital 
effectively 
industrial  and  economic 
Infrastructure  In  Europe. 

Industry  and  government 

the  advances 

are 

the 

to 

If 

In 

IV.2.c.2  RESEARCH  AND  DEVELOPMENT 

123.  Community  research  and  development  actions  concerning  transport 
shou Id  prov I de  new 
: 
efficient,  safe  transport  under  the  best  possible  environmental 
and  social  conditions. 

too Is  for  rea Ii z Ing  susta i nab I e  mob 111 ty 

Efficiency 

124. 

in 
regards 

the  efficiency  of  the  transport  system  can  be 
Improvements 
sought  as 
individual  modes  and 
operators,  the  capacity  of  each  mode  to  operate  with  others,  and 
the  functioning  of  the  transport  system  taken  as  a  whole. 

the  performance  of 

125.  The  efficiency  of  an  Integrated  system  wl  11  be 

should 

I imited  by 

rapidity  of  each  mode 

qual lty  of 
flexibility  and 

the 
its  weakest  components.  Avai  labl I ity,  rel labl I lty, 
therefore  be 
. enhanced  as  much  as  possible,  while  at  the  same  time  any  negative 
effects  on  safety,  the  environment  or  social  conditions  should  be 
minimised. 
In  relation  to 
modes  under  stress  and  those  which  offer  the  prospect  of  spare 
capacity,  actual  or  potential.  They  should  be  sought 
the 
Infrastructure; 
material  used; 
operational 
manufacturing 
information  and 
efficiency,  notably  through  the  application  of 
communication  technologies  for  the  development  of  new  tools  to  be 
used  by  network  managers,  operators  and  users. 

Improvements  should  be  sought  both 

the  design  of  equipment  and 

techniques; 

processing 

and 

and 

In 

126. 

127. 

- 48  -

Improvements  within  different  modes  should  be  developed,  however, 
in  the  context  of  other  actions  designed  to  ensure  that  each  mode 
can  function  more  effectively  with  the  others.  All  modes  should 
accordingly  be  regarded  as  part  of  a  larger  system  which  should 
function  increasingly  as  an 
integrated  whole.  Careful  attention 
shou Id  be  given  to  avoiding  new  divergences  and  cont rad I et Ions 
such  as  information  or  tracking  systems  for  one  mode  that  cannot, 
or  only  at  high  cost,  be  connected  to  others  or  new  transshipment 
techniques  for  road  and  rai I  that  cannot  be  easily  used  for  road 
and 
flow  and 
in 
management  of 
Information-based  services  also 
increased  ef f  I c i ency  of  phys I ea I  movements. 
contributes  to  the 
Compatibi I lty,  Interconnection  and  lnteroperabl I lty  should  be  key 
criteria.  They  are  the  necessary  conditions  to  bring  about  the 
Integration  of  all  modes 
into  one  European  transport  system  In 
which  each  mode  contributes  where  it  Is  strongest  al lowing  the 
operator  and  user  to  choose  the  best  combination  for  his  Journey. 

Inland  waterway  or  shipping.  Progress 

Information  and 

the 

its 

and 

local, 

regional 

Indeed  beyond  improvements  in  the  efficiency  of  particular  modes 
and  their  capacity  to  operate  with  others,  actions  are  needed 
that  address  the  functioning  of  the  transport  system  as  a  whole, 
though  distinguishing  between 
long 
distance  components.  The  goal  would  be  to  develop  new  tools  that 
enable  those  who  use  or  manage  parts  of  the  system  to  be  as  fully 
informed  as  possible  about  their  present  functioning  and 
likely 
future  deve I opment 
too Is  are 
in  the  short  and 
essential  for  those  concerned  to  make  sound  decisions  not  only 
about  current  operations  but  also  the  longer  term  development  of 
the  system  and  Its  component  parts.  This  combination  of  rapid 
technological  change  with  changes  In  user  requirements  presents 
a  major  challenge 
the  necessary 
technical  compatibility  while  enabl Ing  its  industries  to  compete 
the 
effectively  with 
deve I opment  of  common  spec if i eat ions  and  European  standards 
is 
essential 
transport  network 
the  development  of  an  "open" 
interoperability  of  mobile  equipment  and  access  to 
permitting 
It  is  one  of  the  domains  where 
users  of  all  modes  of  transport. 
the  Community  can  best  fulfi I  its  role. 

the  world.  Collaboration 

to  maintain 

the  rest  of 

term.  Such 

if  Europe 

I ong 

for 

Is 

in 

Safety 

128.  The 

for 

safety  of 

al I  modes 

transport  operations, 

but 
particularly  for  road  transport,  remains  a  major  preoccupation  of 
the  Member  States  as  explained  more  fully 
IV.2.d. 
Research  and  development  programmes  have  already  made  significant 
level  and  more  modestly 
contributions  primarily  at  national 
through  Community  actions  such  as 
telematics  systems 
applied  to  road  transport,  vessel  traffic  systems,  air  traffic 
railways.  These 
control  and  control  and  command  systems 
initial  actions  constitute  a  sound  basis  for  the  development  of 
future  activities  building  on  what  has  been  achieved, 
in 
particular,  to  produce  operational  results  as  soon  as  possible. 

In  Chapter 

those  on 

for 

- 49  -

Env I ronment 

129.  Research 

and  development,  when 

combined  with  complementary 
actions,  can  contribute  to  alleviate  many  of  the  environmental 
In  Chapter  11  and  so  help  real lse  the  basic 
problems  out I lned 
objective  of 
environmental 
sustainable  mobility.  Moreover, 
performance  Is  an  area  in  which  transport  and  environment  policy 
research  and  development 
provides  a  clear  orientation 
programmes  by  setting  targets  which  are  not  attained  by  current 
technology  but  which  can  and  must  be  achieved  In  the  foreseeable 
future. 
including 
In 
in  traffic  management  and  influencing  the 
environmental  factors 
user  of  the  private  car  and  the  overall  demand  for  transport  and 
the  implications  of  such  possibilities  for  the  vehicle  Industry 
require  further  attention. 

the  possibi I it ies  for 

this  context 

too, 

for 

Social  dimension 

it 

that 

factor 

Improve 

investigation  of 

remains  central  whether 

labour  productivity  while 

130.  The  development  of  new  transport  technologies  and  systems  is  not 
s Imp I y  a  matter  of  deve I op i ng  new  hardware  and  software.  The 
is  a  question  of 
human 
Innovations 
requiring 
higher  ski I I  levels;  automate  functions  previously  carried  out  by 
human  operators;  or  permit  more  effective  enforcement  of  rules 
and  systems.  The  development  of  new  technical  components  needs  to 
be  accompanied  by  appropriate 
the  behavioral 
implications  of  the  new  technology,  including  telematlcs,  and  the 
best  means  for  ensuring  that  it  wl  I I  receive  a  positive  reception 
from  those  who  will  operate  it  or  use  it  as  clients.  Moreover, 
isolation  from  other 
the  technical  changes  cannot  be  viewed 
measures 
their  effective 
app 11 cat Ion,  for  examp I e,  the  use  of  f i sea I  and  other  economic 
their 
Instruments 
Incorporation  In  technical  standards  Including  those  associated 
w Ith  gu I de I i nes  for 
t rans-European  transport  networks  or  their 
association  with  measures  aimed  at  making  collective  transport 
innovation  need  to 
more  attractive.  Actions  concerning  technical 
be  accompanied  by  an  investigation  of  how  they  can  be  integrated 
into 
their  social  and  organizational  context  and  by  other 
supportive  measures  forming  part  of  the  CTP. 

that  may  be  necessary 

in 
to  ensure 

Influence  user 

and  operator 

choice, 

to 

A new  integrated  approach 

131.  Convnunity 

and 

concerning 
research 
the  context  of  a  number  of 
transport  have  been  carried  on 
programmes  having  different  primary  objectives.  As  a  result  the 
approach  appears  somewhat 
the 
objectives  of  the  common  transport  policy  were  not  always  clearly 
estab I i shed. 

development 
in 

fragmented  and 

I inks  with 

activities 

the 

- 50  -

132. 

in  a  coherent  manner  ensuring 

In  the  fourth  framework  programme,  provision  wi  II  be  made  so  that 
activities  concerning  transport  related  research  and  development 
wl  II  be  conceived 
those 
activities  will  also  serve  the  objectives  of  the  CTP.  Priority 
w I I I  be  g I ven  not  on I y  to  common  prob I ems  hav Ing  cross-border 
Implications,  guaranteeing  the  Interoperability  of  equipment  and 
the 
the 
realisation  of  economies  of  scale  but,  In  addition,  the  projects 
selected  will 
reflect,  wherever  appropriate,  objectives  and 
priorities  of  the  CTP. 

Interconnect Ion  of  networks, 

the  shar Ing  of  r I sk  and 

that 

an 

assessment  of 

133.  The  approach  will  establish  a  transparent,  coherent  framework  for 
transport-related  research  and  development.  The 
framework  has 
three  main  components  :  a  foundation,  designed  to  establish  the 
strategic  parameters  for  the  technical  changes  to  be  developed, 
two  technological  components,  one  focused  on  telematlcs  In 
and 
their  application  to  transport  and  the  other  on  the  appllcatlon 
technologies.  The  foundation  activity  will 
of  other  Industrial 
focus  on 
new 
technologies  on  the  transport  and  distribution  system,  Its  users 
long 
and  operators  distinguishing  between 
distance  movements.  A  key 
the 
In 
relationship  between  human  factors  and  possible  technical  change. 
The  telematlcs  component  wil I  focus  on  how  these  technologies  can 
be  applied  to  all  modes  and  their  more  integrated  operation.  The 
technologies, 
f lnal 
such  as 
including  generic 
advanced  manufacturing,  materials  and  processing 
technologies, 
can  contribute  to  the  solution  of  transport  problems  and  promote 
synergies  with  Industries  which  Interface  with  transport.  These 
activities  are  described  In  greater  detal I  In  Chapter  V below  and 
In  the  fourth  framework  programme  Itself. 

investigate 
technologies  developed 

local,  regional  and 
this  domain  wi  11  be 

component  wl  11 

the  possible 

impacts  of 

in  areas 

other 

issue 

how 

IV.2.c.3  TRANS-EUROPEAN  NETWORK  DEVELOPMENT 

The  problem 

134.  Until  very 

recently, 

Important  problems.  These 

transport  networks  have  been  designed 
largely  from  a  national  point  of  view.  Moreover,  emphasis  has 
frequently  been  placed  on 
the  development  of  particular  modal 
networks  rather  than  on  the  relationships  between  them,  much  less 
their  Integration  as  a  transport  system.  From  the  point  of  view 
of  the  Community,  the  traditional  approach  has  Inevitably  led  to 
a  number  of 
frequent 
absence  of  adequate  Interconnections  between  national  networks, 
missing 
to 
I nteroperab 111 ty  enta 111 ng  huge 
I neff I c I enc I es.  Such  obstac I es 
are  found  both  within  modes,  for  example,  as  regards  differences 
In  gauge  and  electric  current  In  the  railway  sector,  and  between 
technical 
modes, 
specifications 
particularly 
the  air  traffic  area  where  wide 
significant  example  exists  In 
systems, 
incompatible 
divergences 

to 
transport.  A 

for  example, 
for 

Incompatible  approaches 

and  bottlenecks, 

as  obstacles 

as  wel  I 

combined 

national 

between 

Include 

exist 

I inks 

the 

the 

- 51  -

have 

resu I ted 

In  addition,  differences  in 
standards  and  operating  practices. 
the  Member 
the  geographical  situation  and  economic  history  of 
States 
the 
In 
avallablllty  and  qua I lty  of  transport  infrastructure,  In  general 
the  centre  and  north  of  the  Community  being  much  better  equipped 
the  south.  The  general 
by  comparison  with 
stagnation 
the 
Infrastructure  over 
last  decade  has  not  provided  an  environment  favouring  the  early 
elimination  of  these  obstacles  and  Imbalances. 

the  periphery  and 
transport 

cons I der ab I e 

divergence 

Investment 

in 

In 

In 

135.  Beyond 

the  overall 

efficiency  of 

these  difficulties, 

the 
Community's  transport  networks,  on  which  the  free  circulation  of 
persons  and  goods  depends, 
is  increasingly  determined  and  Indeed 
threatened  by  the  growing  concentration  of  traffic  on  a  certain 
number  of  routes,  modes  and  destinations  with  which  the  present 
organisation  of  the  networks  Is  finding  It  Increasingly  difficult 
the 
to  cope.  Examples 
Community's  ports  to  which  reference  has  already  been  made 
In 
Chapter  IV.2.b;  the  continuously  rising  demand  on  the  Rhine  and 
Rhone  corridors;  the  crossing  of  London  and  Paris  by  train;  the 
stress  on  the  Air  Traffic  Management  (ATM)  system  particularly  In 
North  Western  Europe;  congestion  on  roads 
leading  to  the  newly 
opened  regions  of  Eastern  and  Central  Europe,  particularly  at 
border  crossings,  and,  more  genera I I y,  at  major  motorway  nodes 
and  urban  centres. 

the  unbalanced  development  of 

include 

The  Community's  role 

on  Transport 

limited  role,  though 

136.  The  planning  and  development  of  European 
transport  networks 
:  European, 
I nvo Ives  author It I es  at  a I I  dee is ion  making 
I eve Is 
Community,  national,  regional  and  local.  Up  to  now  the  Community 
has  had  a  rather 
in  recent  years  the  pace 
has  quickened  notably.  Beginning  In  1978  with  the  setting  up  of  a 
consultation 
Committee 
procedure  for 
the  development  of 
transport 
the  Commun I ty  began  to  make 
modest  ad  hoe  financial  contributions  to  investment  In  projects 
of  Community  interest  in  1982.  In  1990,  a  medium  term  multiannual 
budget  was  decided  for  a  three  year  period  and,  at  about  the  same 
time,  a  network  for  high  speed  trains  was  developed  on  the  basis 
of  preparatory  work  by  a  High  Level  Working  Group  consisting  of 
experts  from  government,  industry,  transport  operators  and  users. 

the  purpose  of  coordinating 

the  Commun I ty, 

Infrastructure 

I Inks 

and 

In 

a 

The  same  approach  has  s i nee  been  app I i ed  to  the  deve I opment  of 
networks  for  combined  transport  for  freight,  motorways  and  inland 
waterways. 

- 52  -

137.  Of  much 

the 

the 

funds  and 

reform  of 

the  assistance  requirements  of 

larger  quantitative  Importance  have  been  the  transport 
Infrastructure  Investments  financed  by  the  Community  through  its 
structural 
the 
instruments.  Since 
structural  funds  In  1988  and  the  move  away  from  the  financing  of 
Individual  projects, 
less 
developed  Member  States  and  regions  are  Integrated  Into  overall 
economic  development  plans  for  the  regions  concerned. 
In  these 
development  strategies  accessibility  considerations  have  played  a 
transport 
major  role.  Under 
Infrastructure  s Ince  1975  have  been  est I mated  at  about  16,000 
long  stand Ing 
MECU.  Th Is  has  been  add It Iona I  to  the  huge  and 
Infrastructure, 
contribution  of 
loans 
the 
and 
evaluated  at  about  14,000  MECU 
relatively  smaller  but  stl I I 
the 
important  contribution  of 
European  Coal  and  Steel  Community  to  promote  steel  consumption, 
around  1,200  MECU  s I nee  1987.  Many  of  the  projects  funded 
In 
these  ways  have  had  a  broad  Community  Interest  since  they  have 
Improved  Its  transport  networks  from 
the  point  of  view  of  al I 
potential  users. 

the  ERDF,  commitment  credits  for 

to 
from  1982 

transport 

the  EIB 

to  1991 

138.  Reference  should  also  be  made 

to  the  activities  of  the  United 
Nations'  Economic  Commission  for  Europe  which  has,  for  ten  years, 
with  the  Community's  participation,  been  developing  Its  network 
In  particular,  for  motorways  and  rail,  TEM  and  TER. 
project, 
the 
These  have  ensured  at 
development  of  those  networks  throughout  the  larger  Europe. 

least  a  minimum  of  coordination  for 

139.  The  provisions  on 

In 

trans-European  networks 

the  Union  Treaty 
provide  a  new  basis  for  Community  action,  define  more  clearly  the 
involvement,  and  Introduce  a 
objectives  and  limits  of  Community 
new  decision  making  process  as  wel  I  as  a  new  approach 
to 
financing.  All  of  these  provisions  provide  clarification  as  to 
the  application  of  the  subsidiarity  principle  In  this  area  and 
therefore  as  to  how  the  Community  should  relate  Its  activities  to 
levels.  Environmental 
those  of  competent  authorities  at  other 
protection 
the 
integrated 
also  be 
requirements  must 
establishment  and  development  of  these  networks. 

Into 

ObJectlves 

140.  The  substantive  goal  of  Community  action 

of 

the 

and 

through 

promotion 

development 

trans-European 

is  defined  as 

the 
establ lshment 
transport 
networks,  within  a  framework  of  a  system  of  open  and  competitive 
and 
markets, 
lnteroperabi I ity  of  national  networks  and  access  thereto.  It  must 
take  part I cu I ar  account  of  the  need  to  11 nk  Is I and, 
I and locked 
and  peripheral  regions  with  the  central  regions  of  the  Community. 
In  brief, 
improvement  of 
the  I ntegrat Ion  of  the 
transport  Infrastructure 
Convnunlty's 
and 
completion 
combination  of  Its  networks, 
taking  particular  account  of  the 
needs  of  Its  more  geographically  Isolated  regions. 

in  genera I  but 
through 
system 

interconnection 

to  be  pursued 

transport 

the  goa I 

Is  not 

the 

the 

of 

- 53  -

their 

regional 

productivity.  New 

the  development  of 

regional  aspects  of 

Territorial  and 
the 
transeuropean  transport  network  should  be  taken  into  account  to 
enhance 
and 
economic  disparities  should  not  be  allowed  to  originate  from  a 
lack  of  complementarity  between  the  Trans-European,  national  and 
regional 
the  absence  of 
the  one  hand, 
networks,  on 
for  example,  plane  and  urban 
Interconnection  between  modes, 
for 
transport,  or  between 
example,  High  Speed  Train  and  conventional  railway,  on  the  other 
hand. 

two  generations  of 

the  same  mode, 

geographical 

and 

The  process 

and 

and 

and 

the 

the 

regional 

though  with 

at  Community 

impact  of  new 

infrastructures  on 

regional/local 
to  prepare 

capillary, 
procedures  used 

the  strengths,  weaknesses  and  potential  of 

141.  The  realisation  of  this  goal  accordingly  requires,  first,  an 
examination,  on  the  basis  of  work  already  completed  or  under  way, 
the  different 
of 
transport  networks  and  their  interrelationships,  with  a  view  to 
Identifying  how  best  to  proceed.  This  task  must  necessar i I y  be 
the  maximum 
carried  out 
level 
local 
concerned  national, 
participation  of 
authorities  as  wel  I  as  network  managers,  operators  and  users. 
In 
particular, 
the  directly 
concerned  areas  and  on  other  affected  areas  should  be  assessed. 
Reg Iona I  nodes  of  commun i eat I on  shou Id  be  further  deve I oped  to 
ensure  the  optimal  efficiency  of  the  connection  between  the  main 
networks.  The 
network 
infrastructure 
structures 
In It i at Ives  a I ready  taken  can  be  used  for  th Is  purpose  and, 
if 
the  basis  of  this  preparatory 
necessary,  further  developed.  On 
work,  the  Commission  must  then  propose  guidelines,  indicative  In 
character,  covering  the  objectives,  priorities  and  broad  I Ines  of 
trans-European  networks, 
measures  envisaged 
Interest, 
Identification  of  projects  of  common 
Including 
together  with  any  necessary  accompanying  measures 
to  ensure 
network  Interconnection  and  interoperability  of  mobile  equipment 
Including 
In 
technical  standardisation.  These 
particular, 
guidelines  are  then  to  be  adopted  by  the  Council  under  the  co 
the  European  Parliament  and  after 
decision  procedure  with 
consulting 
the  new 
and  Social  Committee  and 
the  Economic 
the  Community's 
Committee  of 
guide I Ines  have  been  adopted, 
the  competent  nat Iona I,  regional 
and  local  authorities  determine  the  precise  Implementation  of  the 
Infrastructure  projects  required 
the  networks  as 
defined.  As  necessary  the  guidelines  can  be  further  amended  and 
developed  to  reflect  changes  in  circumstances. 

the  Regions.  Moreover,  once 

transport  management, 

telemat lcs  for 

the  sphere  of 

the  field  of 

the  use  of 

to  real lse 

the 

In 

In 

142.  This  process  and  the  indicative  guidelines  which  It  produces  thus 
those 
constitute 
real lsatlon,  maintenance, 
authorities 
in 
management  and  use  of 
the 
Interests  of  the  Community  and  the  role  of  Its  Institutions,  are 
brought  Into  harmony  with  those  of  competent  authorities  at  other 
levels. 

the  design, 
transport  networks. 

a  partnership  between  al I 

the  basis 
Involved 

this  way, 

for 

In 

8) 

- 54  -

Financing 

to  be 

to  2010 

investment 

required  during 

realised.  Given 

the  period  1990 

level  of  Investment 

its  financial  participation  have 

143.  Th~  financing  of  transport  Infrastructure  in  the  Community  poses 
a  number  of  major  problems.  On 
the  one  hand,  as  already 
Indicated,  while  traffic  has  been  increasing  for  many  years,  the 
general 
in  transport  infrastructure  has  been 
stagnating  at  about  1%  of  GDP  and  in  some  areas  there  has  been  a 
decline.  On  the  other  hand,  a  reasonable  estimate  of  the  volume 
of 
to 
guarantee  adequate  functioning  of  the  total  transport  system  Is 
of  the  order  1,000  to  1,500  billion  ECU,  or  1  to  1.5%  of  GDP,  and 
If  significant 
the  higher  end  of  that  range 
probably 
towards 
improvements  are 
the 
size  of 
the 
the  multiple  claims  upon  it,  the 
Community's  total  budget  and 
to  be 
scale  and  nature  of 
carefully  considered.  There 
is  clearly  no  possibi I ity  at  this 
time  of  the  Community  becoming  the  primary  source  of  investment 
in  p I ace  of  the  Member  States  or  the  private  sector.  It  s imp I y 
does  not  have  the  resources  and,  even  if  it  did,  its  role  under 
to  develop 
the  network  prov Is ions  of  the  Un ion  Treaty 
transport  infrastructure  as  such  but  to  focus  on  the  more  I imlted 
objectives  described  above.  Moreover, 
those  provisions  also 
indicate  that  it  should  privilege  certain  forms  of  intervention, 
namely  the  financing  of  feasibility  studies,  loan  guarantees  and 
interest  rate  subsidies.  This  clearly  lmpl  ies  that  such  Community 
that  are 
interventions  are 
to 
primarily  funded  by  others.  The  Community  contribution 
Is 
that 
ensure 
provide 
at  nat Iona I  or 
Infrastructure  programmes 
regional 
larger 
into 
the  Community  as  a  whole  has 
framework  and  priorities  which 
the  Cohesion  and 
In 
decided 
in  that 
Regional  Development  Funds, 
the  broader  economic  goals  of 
the 
Community  to  provide  finance  on  a  scale  and  in  ways  which  permit 
the  realisation  of  projects  that  would  otherwise  probably  not  be 
realised,  either  at  all  or  at  least  In  the  next  five  years  or  so. 
This 
the 
Community  are  already  handicapped  by 
levels  of 
investment  and  that  special  efforts  have  to  be  made  to  reduce  the 
gap. 

the  context  of 
the  situation  is  different 
those  programmes 

leverage 
funded  pr imar I IY 
Integrate 

level  wi  I I  nevertheless 

to  support  operations 

is  Justified  by 

that  weaker 

Insufficient 

regions  of 

that  wl  I I 

It  needs. 

financial 

intended 

require 

is  not 

that 

fact 

the 

the 

the 

144.  The  need  to  make 

Interventions 

the  best  poss I b I e  use  of  I Im i ted  funds  w I I I 
require  that  every  effort  be  made  to  maximise  the  effectiveness 
of  Community 
the  careful  selection  and 
through 
combination  of  available  financial  techniques.  These  include  the 
encouragement  of  private  Investment  through  instruments  I Ike  the 
declaration  of  European  Interest  and  the  real isatlon  of  synergies 
between  different  forms  of  Community 
intervention,  for  example, 
loans  from  the  European  Coal  and  Steel  Convnunlty  Instrument  or 
the  network  guidelines  provide  a 
the  EIB.  More  general IY, 
flexible  tool  for  ensuring  that  Community  investment  in  transport 
Infrastructure,  In  whatever  context  It  Is  made,  forms  part  of  an 
overall  transport  strategy. 

- 55  -

Network  development  and  the  guidelines 

about  alternative  modes, 

the  performance  of  nodes  and 

information  both 
their  costs, 

145.  The  adopt Ion  of  network  guide I Ines  and  necessary  accompanying 
measures  will  constitute  the  foundation  for  Community  actions  on 
transport  Infrastructure.  The  technique  is  a  flexible  one  which 
permits  a  broad  range  of  Issues  to  be  addressed  going  well  beyond 
the  establishment  of  a  consensus  on  routes  and  destinations.  For 
example,  attention  can  be  given  to  the  appl lcation  of  Information 
and  communications  technologies,  In  part  developed  by  Community 
to 
research  programmes, 
to  provide  useful 
network  users 
time 
consumption  and  to  network  managers  on  the  real  tlmeuse  of  their 
networks,  demand  forecasts,  capacity,  and  cost.  Attention  can  be 
the 
focused  on 
Interests  of  promoting  network 
and 
lnteroperabl llty.  Environmental  and  safety  considerations  can 
also  be  given  the  attention  that  they  deserve.  The  environmental 
implications  of 
to 
analysis  on  the  basis  of  common  criteria  with  a  view  to  ensuring 
their  compatibility  with 
the  Community's 
environment  policy.  This  wi  II  permit  the  role  of  each  mode,  and 
its  relationship  with  others,  to  be  assessed  in  order  to  optimise 
their  contribution 
is 
effective  and  which  respects  the  environment.  Finally,  the  Issue 
to 
of  qua I I ty  assurance 
Infrastructure,  fixed  and  mobile,  and  as  to  the  service  offered 
by  operators. 
taken  by 
certain  operators  and  In  the  context  of  quality  standards  based 
on  the  ISO  2000  series  will  need  to  be  taken  Into  account. 

the  different  networks  wl  I I  be  subject 

In 
terminals 
Interconnect Ion 

Initiatives  already 

the  objectives  of 

addressed  both 

this  context, 

to  a  global 

system  which 

transport 

a I so  be 

access 

can 

as 

In 

the 

recently  added 

Initiatives  already 

146.  Proposa Is  on  comb I ned  transport,  In I and  waterways  and  motorways 
have  been 
taken 
to 
concerning  the  high  speed  train.  Preparatory  work  has  already 
begun  on  convent Iona I  ral lways;  mar It lme  and  coastal  shipping, 
Including  ports; 
control.  The 
and 
guidelines  will  need  to  Include  provisions  on  the  deployment  of 
the  particular  sector.  As  already 
telematlcs  appropriate 
explained  In  Chapter  IV.2.b, 
initiatives  wi  11  also  be  taken  In 
relation  to  a  citizens'  passenger  network  on  an  lntermodal  basis. 
Indeed,  the  process  of  developing  these  different  networks  must 
have  as  its  finality  an  intermodal  transport  system  embracing,  to 
the  maximum  extent  possible,  al I  of  them. 

airports 

traffic 

air 

to 

147.  Finally,  the  problems  affecting  Community  transport  networks  also 
arise  In  relation  to  third  countries,  particularly  those  of  the 
Community's  European  neighbours.  The  network  provisions  of  the 
Union  Treaty  refer  to  trans-European  not  trans-Community  networks 
and  specifically  provide  for  cooperation  with  third  countries  to 
to  ensure  network 
promote  projects  of  mutual 
lnteroperabl llty  (Article  129c  (3)).  The  Community  should  adopt  a 
global  approach 
third 
countries  as  outlined  in  Chapter  IV.3  below.  Network  development 
should  form  an  Important  part  of  those  relations  in  the  context 
relevant 
of 
mu It 11 atera I  arrangements.  The  work  of  the  Economic  Commission 
for  Europe  in  this  field,  to  which  reference  has  been  made  above, 
wl  II  form  a  useful  basis  for  further  action. 

transport  relations  with 

interest  and 

co-operation 

agreements 

bilateral 

these 

both 

and 

Its 

In 

- 56  -

IV.2.d 

ENVIROt-MENTAL  PROTECTION  AND  CONSERVATION: 
IMPROVING  THE  ENVIROt-MENTAL  PERFORMANCE  OF  TRANSPORT 

IV.2.d.1 

INTRODUCTION 

148.  As  already  indicated  the  sustained  growth 

in  transport  services 
and  traffic  volume  has  led  to  environmental  problems.  These  have 
so  far  been  dealt  with  on  a  case-by-case  basis  with  the  adoption 
of  Convnunity 
issues  such  as  motor 
vehicle  emissions,  aircraft  noise  emissions  and  marine  pollution 
prevention. 

legislation  on  particular 

149.  However,  growing  concern  about  a  number  of  global  environmental 
Issues,  particularly  the  "greenhouse  effect",  focused  attention 
on  the  more  wide-ranging  effects  of  transport  on  the  environment 
and  the  need  to  adopt  a  global  approach.  such  an  approach  was  the 
basis  for  the  Commission's  recent  Green  Paper  on  the  Impact  of 
Transport 
a 
EnvironmentC36), 
comprehensive  assessment  of  the  overal I  Impact  of  transport  on 
the  environment  and  suggested  a  strategy  for 
the  Convnunity's 
the  Fifth  Environmental  Action  Programme 
response.  Likewise 
highlights 
requiring 
Integration  of  environmental  objectives. 

transport  as  one  of 

presented 

the  key 

sectors 

which 

the 

on 

150.  Assessments  made 

so 

far 

never 
show 
environmentally  neutral,  but  that  the  effects  on  the  environment 
in  scale  and  nature  according  to  the  mode  of  transport. 
vary 
the  form  mainly  of  energy  consumption,  operational 
They 
take 
pollution,  land-take,  congestion  and  the  potential 
impact  of  the 
carriage  of  dangerous  goods. 

transport 

that 

is 

IV.2.d.2  MAIN  ENVIROt-NENTAL  PROBLEMS 

Energy  consumption  and  operational  pollution 

the 

total 

that  of 

transport 

energy  consumption 
to 

151.  Al  I  power-driven  transport  consumes  energy  and  causes  operational 
sector 
energy  consumption  of 
pollution.  The 
the 
In 
represents  30  X  of 
final 
industry.  The 
Community,  virtually  equivalent 
operational  pollution  caused  by  transport  takes  the  form  of  air, 
soil,  water  or  marine  pollution.  In  the  case  of  road  transport, 
form  mainly  of  gaseous 
the  operational  pollution 
(CO), 
carbon  moNOx  Ide 
such 
emissions 
(VOCs)  and  sulphur  dioxide 
volatile  organic  compounds 
(S02), 
i nc I udes  so 11  and 
lesser  extent  It 
noise  and  v I brat Ions.  To  a 
Ind I rect I y  water  po I lut Ion.  The 
cause  no I se  and 
ra I I ways 
vibrations  and,  Indirectly,  air,  soil  and  water  pol lutlon.  In  the 
case  of  Inland  navigation,  operational  pollution  takes  the  form 
mainly  of  water  pollution  and  gaseous  emissions.  Shipping  causes 
mainly  marine  pollution, 
through  accidental  and  operational 
discharges.  Operational  pollution  In  the  case  of  aviation  takes 
the  form  pr I mar 11 y  of  no I se,  vibrations,  gaseous  em I ss ions  and 
Indirectly  sol I  and  water  pol lutlon. 

the 
takes 
co2 ,  HC,  NOx, 

as 

(36) 

Can(92)  46  final  of  20  February  1992. 

- 57  -

152.  Road  transport  has  the  biggest  environmental  effect  in  terms  of 
energy  consumption  and  operational  pol lutlon.  Road 
transport 
consumes  over  BOX  of  the  total  final  energy  used  In  the  transport 
sector  and  contributes  over  75%  to  Its  total  co2  output. 

Congestion 

Insufficient 

153.  Transport  also  leads  to  congestion  where  Infrastructure  capacity 
Is 
to  cope  with  demand,  particularly  at  peak 
per lods.  Congest Ion  not  on I y  adverse I y  affects  the  operat Iona I 
Increases  energy 
efficiency  of 
It  also 
thus  exacerbates 
consumption  and  operational  pollution  and 
environmental  inefficiency.  Congestion  Is  most  prevalent  for  road 
and  air  transport,  particularly  In  the  core  regions  as  wel  I  as  in 
and  around  large  conurbations. 

transport 

systems, 

Land-use 

154.  Transport  does  not  only  affect 

in 

land-take  and 

the  environment 

terms  of 
energy  consumption  and  operational  pollution,  Its  infrastructure 
Intrusion  has  a  permanent  and  often 
through 
Irreversible  Impact  on  the  environment.  Again  the  impact  varies 
according  to  the  mode  of  transport.  The  total 
land-take  of  road 
Infrastructure  considerably  outstr lps  that  of  the  ral lways  and 
other  modes.  At  present  the  Community  road  network  takes  up  1.3  X 
of  the  total 
land  area  of  the  Community,  compared  to  0.03  X  for 
the  railway  network.  An  Important  measure  of  land-take  Is  land 
use  In  terms  of  Infrastructure  needed  to  move  one  transport  unit, 
expressed  In  persons  or  tonnes  of  freight,  over  a  given  distance. 
Land-use  Is  most  efficient  for  air  and  sea  transport  due  to  the 
fol  lowed  by 
relatively  smal  I 
inland  navigation.  It  Is  less  efficient  for  ral I  and 
least  for 
road. 

land-take  for  a  given  Journey, 

carriage  of  dangerous  goods 

155.  Transport  a I so  carr les  a  potent I a I  r I sk  for 

the  env I ronment  as 
well  as  human  life 
In  so  far  as  the  transport  of  dangerous  goods 
is  concerned.  Since  the  bulk  of  these  goods  are  carr led  by  sea 
and  road,  these  two  sectors  present  the  biggest  potential  Impact 
for  the  environment  In  the  form  of  air,  sol I,  water  and  mar lne 
pol lut Ion. 

IV.2.d.3  REACTIONS  TO  THE  GREEN  PAPER 

Issue  of 

transport  and 

156.  The  purpose  of  the  Green  Paper  was  to  Initiate  a  public  debate  on 
the 
the  environment.  The  Community's 
Institutions  \ook  part  In  this  debate  as  did  the  stakeholders  : 
consumers, 
and 
transport 
Industry, 
env I ronmenta I  protect Ion  groups, 
the  soc I a I  partners,  reg Iona I 
and  local  authorities.  The  outcome  of  this  consultation  provides 
the 
an 
Insight 
the 
environmental 
participation  of  the  different  actors. 

it  should  be  possible 

policy  with 

operators, 

transport 

component 

integrate 

into  how 

users 

Into 

the 

to 

- 58  -

157.  The 

improvement  of 

their  part  of 

the  participation  of  al I 

the  need  and  willingness 

the  env i ronmenta I  performance  of 
legislation. 

transport 
It  wi  11 
cannot  be  achieved  merely  by  Convnunity 
the  stakeholders.  A  clear 
require 
to 
indication  on 
participate  in  this  exercise  and  contribute  to  the  objective  was 
in  general 
given  during 
endorse  the  comprehens I ve  assessment  of 
impact  of 
transport  on  the  environment  as  well  as  the  new  'global'  approach 
industry  as  a  whole 
set  out 
nevertheless  emphasizes 
to 
economic  growth  as  well  as  economic  and  social  cohesion  In  the 
Community.  Views  differ,  however,  as  to  which  measures  will  best 
the  transport  sector 
improve 
and,  at  the  same  time,  satisfy  other  Important  policy  goals. 

the  publ le  debate.  The  stakeholders 
the  over a 11 

in  the  Green  Paper.  The  transport 

the  env I ronmenta I  performance  of 

the  key  contribution  of 

transport 

158.  The 

the 

technology  or 
excessive 

reduction  of  operational  pollution 

the  best  cost-effective 
entail Ing 

local  and 
reduct Ion  of  operational  pollution  wi  11  not 

Is  viewed  by  all 
stakeholders  as  essential,  with  special  emphasis  on  the  need  to 
promote  research  Into  new  technologies.  Transport  operators  and 
industry  stress  that  the  best  aval lable  technology  should  be  seen 
the  best  aval lable 
as 
Environmental 
not 
technology 
regional  authorities 
protection  groups,  consumers, 
maintain 
In 
Itself  suffice  to  improve  the  overall  environmental  performance 
of  transport.  It  wll  I  also  be  necessary  to  rationalise  and  manage 
transport  demand  by  means  of  a  traffic  volume  oriented  approach, 
a 
including 
and 
collective 
transport  and  a  better  utilisation  of  existing 
capacity.  The  development  of  multi-modal  and  combined  transport, 
the  use  of  pipe-I Ines  for  freight  transport 
coastal  shipping, 
are  viewed  by 
transport  operators  as  ways  of 
industry  and 
Inducing  such  a  shift  for  the  carriage  of  goods. 

environment-friendly  modes 

towards 

costs. 

shift 

159.  Limitation  of 

is  viewed  as  a  key 
objective  by  the  local  and  regional  authorities,  who  stress  the 
need  to  integrate  transport  in  land-use  and  spatial  planning. 

land-Intrusion 

land-take  and 

160.  The  majority  of 

stakeholders  believe  economic 

fiscal 
instruments  can  be  used  in  order  to  influence  transport  demand. 
While  collective  transport  operators,  environmental  protection 
the  use  of 
groups, 
environmental  charges  and/or 
to 
promote  or  to  provide  funding  for  the  more  environment-friendly 
modes  as  wel  I  as  col lectlve  transport,  industry  warns  against  the 
possible  negative  effects  of  fiscal  measures  on  economic  growth. 

regional  authorities  advocate 

Incentives 

local  and 

in  order 

fiscal 

and 

IV.2.d.4  THE  CQMMUNITY•s  RESPONSE 

INTEGRATED  THEME  OF  THE  CTP 

:  ENVIROt&tENT  PROTECTION  AS  AN 

if 

the 

future  development  of 

161.  The  deliberations  on  the  Green  Paper  have  accordingly  confirmed 
that 
the 
Convnunlty  Is  to  meet  the  objective  of  'sustainable  mobility',  not 
only  wi  II  transport  need  to  respond  efficiently  to  market  demand, 
It  will  need  to  do  so  at  the  lowest  possible  cost  for  society, 
taking  fully  Into  account  environmental  costs.  This  requires  the 
pursuit  of  efficient  policies  in  the  fields  of  pricing,  Including 
the 
the 
removal  of  market  barriers  as  explained  in  Chapter  IV.2.b. 

internalisation  of  external  costs, 

infrastructure  and 

transport  policy 

in 

- 59  -

to 

the 

improve 

i neff I c I enc I es 

initiatives  adapted 

interrnodal  transport 

the  progressive  lntegrat ion  of  the  modes 

162.  One  of  the  key  objectives  of  the  CTP  wi  I I  therefore  be  to  correct 
env I ronmenta I 
env I ronmenta I 
and 
performance  of  the  transport  sector.  This  will  require  a  full 
the  needs  and 
range  of  measures  and 
characteristics  of  the  different  transport  modes.  They  will  also 
need  to  al low  for 
in 
to  derive  maximum  benefits,  economic  and  env I ronmenta I, 
order 
from 
in  the  largest  possible  sense.  Indeed 
many  of  the  Community  act I ons  a I ready  discussed  wh I eh  concern 
the  proper  functioning  of  the  Internal  market,  Internalisation  of 
external  costs, 
intermodal  competition  and  complementarity  as 
well  as  interoperability  and  Integration  of  systems  and  networks 
transport  and 
contribute  at  one  and 
environment  objectives.  They  address  the  economic,  operational 
and  environmental  efficiency  of  the  transport  system.  Protection 
of  the  environment  Is  thus  not  accessory  to  the  CTP  but  one  of 
the  actions  already 
Its 
to  focus  on  a  broad  range  of 
mentioned,  a ttent I on  w I I I  need 
measures 
the  specific  environmental 
to 
that  can  contribute 
efficiency  of  the  different  transport  systems.  Some  of  these  wl  II 
be  most  effectively  taken  at  Community  level,  many  others  wil I  be 
more  appropriately  pursued  at  national  or  local  level. 

In  addition 

the  same 

to  both 

integral 

themes. 

time 

to 

Energy  consumption  and  operational  pollution 

163.  An  essential  element  of  the  Community's  strategy  towards  reducing 
pollution  caused  by  the  transport  sector  will  be  the  setting  of 
for  gaseous  emissions,  energy 
progressively  higher  standards 
transport 
consumption  and  noise  emissions 
sectors  by  means  proposals 
technical  and 
technological  progress. 

In  accordance  with 

the  different 

for 

164. 

by 

up 

and 

backed 

two  decades.  The 

In  recent  years  the  Community  has  made  considerable  strides  In 
the  establishment  of  strict  emission  standards 
from  motor 
vehicles.  The  standards  coming  Into  force  In  1993,  If  strictly 
Implemented 
and 
efficient 
lead  to  significant  reductions  In  emissions 
maintenance,  should 
of  the  main  sources  of  air  pollution  from  motor  vehicles  over  the 
Introduction  of  progressively  higher 
next 
standards 
reduce 
emissions  though  the  reductions  are  likely  to  be  proportionately 
legislation. 
less  dramatic 
in 
Attention  will  also  be  paid 
test 
procedures 
range  of 
In  order 
conditions  of  use  as  we 11  as  cond It Ions  closer  to  the  actua I 
driving  situation. 

to  new  developments 
take  account  of  a  broader 

those  resulting  from  current 

the  coming  years 

should  help 

Inspection 

further 

than 

to 

in 

165.  Str I cter  Inspect Ion  and  ma I ntenance  requ I rements  and  act Ion  on 
fuels  have  the  potential  of  a  greater  Impact  on  emissions  as  they 
are  not  dependent  on  turnover  of  the  fleet  as  are  standards  on 
new 
of 
environmentally  friendly  transport  technology  and  management  of 
operat Ions  wl  11  also  make  a  contr I but Ion 
towards  updat Ing  and 
improving  these  and  other  standards.  Advanced  technologies  stl I I 

vehicles.  The 

promotion 

area 

the 

R&D 

of 

In 

- 60  -

in  order 

to  be  developed 

have 
the 
efficiency  of  present  conversion  techniques,  for  example,  through 
the  use  of  heat  pumps  and  fuel  cells.  They  are  also  needed  to 
reduce 
the 
the 
level  of  emissions, 
advanced 
f oss i I e 
deve I opment 
of 
propulsion  systems  using  new  fuels. 

for 
techno I og I es 

Improve  substantially 

example, 

c I eaner 

through 

and 

to 

166.  While 

the  main  attention  so  far  has  been  directed  at  gaseous 
the  problem  of  emissions  from 
emissions  from  motor  vehicles, 
clvl I  avlat Ion  wi  11  need  to  be  addressed  more  fully.  Although 
civil  aviation  Is  responslbie  for  a  relatively  small  percentage 
of  gaseous  emissions  from  all  forms  of  transport,  It  is  the  only 
these  emissions  are  directly  Injected  at  critical 
mode  where 
altitudes. 

167.  The  discussion  of 

the  Green  Paper  has  shown 

the 
technical 
the  Member  States  view 
stakeholders  and 
standards  as  essential  in  improving  the  environmental  performance 
of 
taken  at 
Community 
they  wl  II  ensure 
conformity  throughout  the  Community  which  is  essential  in  view  of 
the 
free 
circulation  of  goods. 

the  transport  sector  and  consider 
that 

they  should  be 
level 

for  manufacturing 

Introduced  at 

Industry  and 

implications 

that  both 

Improved 

level. 

the 

168.  Standards  can  be  made  more  effective  and  deadlines  for 

if 

their 
Implementation  can  be  accelerated, 
they  are  accompanied  by 
"targets"  for  both  the  values  of  the  standards  and  the  dates  of 
Implementation.  Fiscal 
encourage 
could 
these  targets  as  quickly  as  possible,  while 
to  meet 
industry 
imposed  on  manufacturers  who  do  not 
fiscal  penalties  could  be 
meet 
cou Id 
ex amp I e, 
the  dead Ii nes.  For 
encourage  the  user  and  the  operator  to  opt  for  the  technically 
for  example, 
most  environment-friendly  vehicle  or  aircraft, 
before  a  "target  date"  and  thus  in  turn  put  pressure  on  industry 
to  achieve  the  performance  In  question. 

incentives 

incentives 

further 

f  i sea I 

169.  Fiscal  and  economic 

to 

the 

that 

should 

In  amount 

instruments  have  a  number  of  advantages. 
They  can  be  focused  on  the  source  of  po I I u t I on  and  g i ve  equa I 
to  different  sources  and  uses.  They  can  be  made 
treatment 
equivalent 
the  external  costs  associated  with 
pollution  and  are  thus  a  particularly  direct  application  of  the 
the 
polluter 
principle 
Internal lsatlon  of  external  costs.  They  are  flexible 
the 
sense  that  they  can  be  used  as  an  Incentive  or  to  avoid  or  IJmlt 
certain  behaviours.  Tax 
incentives  can  directly  encourage  the 
user,  for  ex amp I e,  to  opt  for  a  more  energy-ef f I c I ent  veh I c I e 
while  a  progressively  heavier  charge  on  the  user  of  less  energy 
efficient  vehicles  can  discourage  their  use.  The  Commission  has 
already  adopted  an  approach  of  this  kind  In  Its  proposal  aiming 
at  reducing  the  excise  duties  on  blofuels,  as  the  new  fuels  allow 
a  significant  reduction  In  C02  emlsslonsC37).  Such 
Instruments 
can  easily  take  account  of  new  situations  by  a  variation  In  the 
rate  of  the  fiscal  charge  or  benefit  with  almost  Immediate  effect 
local  problem.  Thus  a  surcharge  on 
to  deal  specifically  with  a 

through 

pay 

In 

(37) 

CX:M(92)36  final 

- 61  -

parking  space  In  congested  urban  areas  can  rapidly  dlsco~rage  the 
user  from  taking  his/her  car  Into  the  city  centre,  particularly 
If  tax  relief  Is  available  on  attractively  priced  season  tickets 
for  weekday  convnuter  Journeys.  Although  the  choice  of  the  user 
the  ful I  range  of  opt Ions 
thus  be 
wl  11 
remains  available. 

lnf luenced  and  guided, 

170.  Given  the  financial  Impact  of  many  such  measures  on  manufacturing 
Industry  and  on  transport  operators,  and  the  Impact  of  some  of 
them  on  the  free  movement  of  persons  and  goods,  COmmunlty  action 
to  prevent  distortions  of  competition. 
Is  required 
However, 
the  posslbl I lty  of  al lowing 
scope  for  some  differences  in  approach  at  national  or  local  level 
within  a  common  framework. 

this  should  not  exclude 

In  order 

171. 

road 

transport  alone  wl  11 

carbon  dioxide.  Transport 

such  a  global  approach  Is  particularly  necessary  in  relation  to 
Is 
the  main  greenhouse  gas 
responsible  for  around  25%  of  total  COmmunlty  co2  emissions  and 
Its  share  Is  rising.  On  current  trends  co2  emissions  from  the 
transport  sector  will  rise  by  some  24%  between  1990  and  the  year 
for  30%  of  C02 
2000  and 
the  year  2010.  The  Community  has  set  Itself  an 
emissions  by 
Interim  target  of  stabilisation  of  co2  emissions  by 
the  year 
the  years  beyond. 
2000  at  1990 
Addressing  the  Issue  of  reducing  road  transport's  co2  emissions 
wlll  require  In  the  first  Instance  considerable  improvements  In 
fuel  efficiency.  Fuel  consumption  standards  could  be  made  more 
effective 
can  be 
accelerated  by  fiscal  incentives. 

and  deadlines 

Implementation 

levels  and  a 

reduction 

account 

their 

for 

In 

172.  However, 

traffic, 

technical  norms 

in  view  of  the  expected  growth 

In  the  car  fleets  and 
therefore 
reducing 
co2  emissions  wi  11  not  suff Ice  by  themselves  or  In  conjunct Ion 
with  fiscal  measures.  For  example,  calculations  for  C02  show 
that  even  with  a  40%  Increase 
in  passenger 
the  year  2005,  stabl I isatlon  of  co2  would  not  be 
cars  by 
achieved  by  2010.  As  regards  other  pollutants,  such  measures  may 
also  prove  to  be  only  a  partial  solution. 

in  fuel  eff lclency 

targeted 

towards 

173.  This 

that 

is  mainly  due 

to  the  fact 
Improvements  will  not  be 

the  Initial  benefits  of 
to 
energy  efficiency 
compensate  for  the  projected  growth  In  the  fleet.  The  technical 
and  f I sea I  measures  w I I I  the ref ore  need  to  be  accompan I ed  by 
complementary  measures  addressing 
transport, 
particularly  that  currently  satisfied  by  the  private  car.  These 
measures  will  also  help  to  tackle  problems  of  congestion. 

the  demand 

sufficient 

for 

congestion 

174.  Optimal  use  of  spare  capacity  In  the  less  encumbered  sectors,  as 
mentioned  In  chapter  IV.2.b,  wl  II  be  essential  In  order  to  reduce 
the  pressure  In  the  most  encumbered  sectors.  In  addition,  In  the 
road  sector,  transport  authorities  will  need  to  take  action  In 
order  to  deal  more  speciflcal ly  with  the  congestion  caused  by  the 
use  of  the  private  car.  Such  action  should  be  twofold  In  order  to 
be  fully  effective.  It  will  r·equlre  promotion  of  collective  and 
envlronmentaly  friendly 
the 
dissuasion  of  private  car  use. 

transport  and  at 

the  same 

time 

- 62  -

Promotion  of  collective  and  environmental Iv  friendlv  transport 

to 

to 

Into 

regard 

Improving 

transport  as  an  alternative 

Investment  wl  I I  be  essential 

integrate  environmental  objectives 

175.  Promotion  of  collective  transport  is  a  vital  component  of  efforts 
transport  policy 
to 
the  urban  environment. 
especially  with 
to  promote 
Public  and  private 
col lectlve 
the  private  car. 
Collective  transport  systems  which  offer  a  high  quality  servlce, 
schemes  which  provide  easy  passage  and 
trafflc  management 
enhanced  accessibility 
transport  as  well  as 
for  collective 
attractive  pricing  and  payment  technologies  should  encourage  the 
user  to  opt  for  collective  transport,  particularly  for  urban  and 
Inter-urban  Journeys  and  more  specifically  during  certain  periods 
of  the  day  and  certain  times  of  the  week  and  year.  This  shift  can 
be  made  easier  by  a  proper  I Ink-up  of  the  different  stages  of  a 
Journey  :  from  point  of  departure  (home/office)  to  metro/bus  stop 
to  train  station/airport  to  metro/bus  stop  to  final  destination. 
Such 
publ le 
could  be 
Information  Initiatives,  providing  the  user  with  information,  If 
possible,  on  line,  about  available  services,  fares,  frequencies 
facl I I ties  as  wel  I  as  by  guaranteeing  frequent, 
and  special 
reliable  and  rapid  services. 

supplemented 

Instruments 

pol Icy 

by 

176.  Action  to  promote  the  use  of  envlronmentaly  friendly  forms  of 
transport  such  as  the  bicycle  and  the  electric  car  can  also  make 
a  useful  contribution. 

Innovative 

role  wl  11  be  more 

the  Quality  Charter  as  well  as  R&D 

transport,  whereas 
I imlted.  Community  action 

177.  The  role  of  national  and  more  speclflcal ly  local  authorities  wl  II 
be  Important  In  the  use  of  these  Instruments  In  order  to  promote 
the 
collective  and  envlronmentaly  friendly 
Is 
Community's 
nevertheless  Justified  In  such  areas  as  Introducing  the  Citizens' 
the 
Network  and 
development  and  use  of 
the 
telecommunications.  The  Community 
electric  car,  telematlcs  and 
contribution  might  also  Include  clarlflcatlon  of  the  scope  for 
aids  for  urban  collective  transport,  bearing  in  mind  the  limited 
effect  of  such  aids  on  trade  between  Member  States  and  the  social 
benefits  derived  from  the  wider  use  of  environment-friendly  forms 
of  urban 
the 
framework  for  the  use  of  tax  incentives  which  make  environment 
fr lendly  transport  solutions  more  attract lve.  Employers  and/or 
employees  could,  for  Instance,  be  given  tax  relief  for  collective 
transport 
through 
fiscal  deterrents  and  charges  Introduced  to  discourage  use  of  the 
private  car  In  sensitive  areas. 

transport.  The  Community  could  further  provide 

Into 
technologies,  such  as 

Incentives  could  be 

fares.  Such 

recovered 

- 63  -

Discouragement  of  private  car  use 

178.  The  behaviour  of 

leaving 

the  owner 

Instruments  aval lable  for 

it  may  nevertheless  be  useful 

the  private  car  owner  will  be  essential 

In 
reducing  congestion.  While 
the  ultimate 
to  dissuade 
freedom  of  choice, 
him/her  from  making  Inefficient  use  of  his/her  motor  vehicle.  The 
pol Icy 
this  purpose  particularly  In 
certain  circumstances  such  as  at  peak  times  during  the  week  and 
traffic  demand  management 
include 
for 
schemes  which  reduce  accesslblllty  to  the  most  congested  areas  at 
peak 
such  as  parking  policies, 
congestion  pricing  and  use  of  traffic  lanes  for  high  occupancy 
vehicles  only. 

for  motor  vehicles, 

intra-city 

Journeys, 

times 

179.  High  occupancy  rates  are  essential 

to  the  management  of  road 
traffic  volume.  Increasing  the  occupancy  rate  of  passenger  cars 
require  a  more  environmentally  conscious  approach  to  Its 
wl  11 
use. 
to  promote  car  pools  and  other 
Information  campaigns 
slml lar  arrangements  based  on  a  change  of  attitude  towards  the 
private  car  constitute  the  first  step.  Such  approaches  could  be 
reinforced  by  the  Introduction  of  economic  measures,  for  example, 
a  progressive  environmental  charge  on 
the  annual  mileage  of 
private  cars. 

180.  These  measures  are  not  primarily  the  Community's  responsibility 
the  use  of  econom I c 
but  a  common  framework  and  guide I i nes  for 
their  effectiveness  while 
could  contribute 
instruments 
Convnunlty 
the 
Justified 
be 
compatlblllty  of  technical  systems  used  for  traffic  management. 
These  wl  I I  In  any  event  be  kept  under  review  as  Indicated  at  the 
end  of  chapter  IV.2.b. 

Involvement  may 

ensure 

to 

to 

Land-use 

181.  Although, 

land-use  and  spatial  planning  are  primarily  a  national 
loca I  matter,  there  Is  a  Commun I ty  d lmens Ion.  Th Is  was 
and/or 
examined  In  the  Commission's  report  "Europe  2000"  the  outlook  for 
the  development  of 
the  Commun I ty 's  terr I toryC38)  and  wl  11  be 
further  considered  In  the  fol low-up  work  to  that  report.  At  the 
national  level,  urban  and  industrial  planning  as  wel  I  as  regional 
development  can  contribute  to  changes  In  travel  patterns  and  thus 
reduce  pressure  points.  Local  authorities  can  also  contribute  by 
ant I c i pat Ing  poss I b I e  areas  of  conf 11 et  arising  from  transport 
take 
thus,  making 
development 
preventive  action  In  the  form  of  land-use  rules,  for  example,  In 
the  case  of  airport  development. 

It  possible 

prospects, 

to 

(38) 

Europe  2000  - Outlook  for  the  development  of  the  Carmunlty'a  territory 

- 64  -

Environmental  Impact  assessment 

182. 

of 

the 

transport 

environmental 

such  options 

eff lclency  of 

assessing 
for 

the  planning  stage  of 

Improvement 
transport 
Infrastructure  requires  careful  assessment  of  the  environmental 
Impact  at 
Infrastructure, 
according  to  common  criteria,  with  the  posslblllty  of  alternative 
options.  When 
the 
methodology  used 
Including 
external  costs  and  benefits,  of  Infrastructure  Investment  for  the 
different  transport  modes  would  allow  for  a  better  comparison  of 
the  different 
Investment 
decisions.  A  standard  methodology  of  this  kind  would  provide  a 
In  assessing  the  external  costs  and  benefits  of  a 
useful 
particular  project  In  the  context  of  the  development  of  trans 
European  networks. 
responsible 
It  would  also  encourage 
authorities  to  adopt  more  convergent  approaches. 

the  cost-benefit  analysis, 

Infrastructure  opt Ions 

transparency  of 

pr lor 

tool 

the 

to 

183.  Complementarity  between  transport  modes  will  be  given  effect  by 
d I fferent 
the 
turn  wl  11  contribute  to  the 

Interconnect Ion 
Infrastructure  networks  which 
environment-efficiency  of  the  overal I  transport  system. 

I nteroperab 111 ty 
In 

and 

of 

Dangerous  goods 

184.  The  environmental  performance  of 

to  such 

transport  will  be 

transport.  As  out I lned 

further 
enhanced  by 
the  safer  carriage  of  dangerous  goods.  Strict 
Convnunlty  requirements  for  such  transport  will  reduce  the  risks 
Inherent 
IV.2.d  on 
transport  safety,  general  transport  safety  measures,  particularly 
In 
to  be 
supplemented  by  Convnunlty  Initiatives  geared  specifically  towards 
the  potential  harmful  effects  of  dangerous  substances  In  the  case 
the  organisation  of  rapid  and 
of  accidental  discharge.  However, 
efficient  Intervention  In  the  case  of  accidents  wlll  necessarily 
continue  to  be  done  by  national  and  local  authorities. 

the  mar It lme  and  road  sectors,  w i I I ,  however,  need 

In  chapter 

- 65  -

IV.2.e  TRANSPORT  SAFETY  FOR  THE  PROTECTION  OF 
USER  AND  NON-USER  ALIKE 

IV.2.e.1  GENERAL 

Is  a  major  concern  of  those  respons Ible  for 

185.  The  safety  of  transport,  In  the  Interests  of  user  and  non-user 
a 11 ke, 
transport 
policy  in  the  Community.  Unsafe  transport  can  have  catastrophic 
in  many 
effects  and,  despite 
is 
areas, 
sti II  very  great. 

the  scale  of  the  damage  caused  by  unsafe  transport 

in  safety  standards 

improvements 

Is 

ental Is 

Increased 

transport  movements 

thus  under 11 ned  and, 

transport  operator.  The  need 

186.  The  completion  of  the  internal  market  in  transport,  together  with 
the  continuing  Integration  of  the  economies  of  the  Member  States, 
necessarl ly 
across 
than  the  country  of 
front lers  and  wl th In  Member  States  other 
for  appropriate 
the 
origin  of 
Commun I ty  act Ion  on  safety 
th Is 
for 
reason  no  doubt,  the  Union  Treaty  contains  a  modification  of  the 
transport  chapter  In  Article  75  to  make  expl lclt  for  the  first 
time  that  the  CTP  should  include  "measures  to  improve  transport 
safety".  Safety  requirements  may  fall 
in  any  case  within  the 
area  of  the  Community's  exclusive  powers,  for  example,  because 
transport 
they  affect 
the 
services.  Where 
the 
application  of 
conclusion  that  action  Is  best  taken  at  other 
the 
amendment  of  Article  75  now  makes  It  quite  clear  that,  even  In 
the  absence  of  an  exclusive  power,  transport  safety  Is  a  matter 
which  should  be  addressed  by 
In  a 
position  to  act  usefully. 

free  circulation  of  vehicles  or 
they  do  not 

that  area, 
lead 
to 
levels.  But 

the  subsidiarity  principle  may 

the  Community  when 

fall  within 

the 

Is 

It 

187.  The  main  areas  of  concern  in  the  field  of  transport  safety  relate 
to  ace I dents  on  the  road,  at  sea  and  In  the  a I r  and,  for  a 11 
transport  modes,  to  the  movement  of  dangerous  goods. 

IV.2.e.2  ROAD  SAFETY:  THE  CURRENT  SITUATION 

lnjur les  on 

than  a  ml  I I Ion  and  a  half 

the  Treaty  was  signed,  almost 

188.  Each  year,  accidents  are  the  cause  of  about  50.000  deaths  and 
the  roads  of  the 
more 
two  mi  I lion 
Community.  Since 
in  the  twelve  countr les  which  are  now 
people  have  been  kl I led 
Community  Members  and  almost  forty  ml  I I Ion 
road 
accidents  do  not  only  have  cdramatlc  consequences  In  human  terms; 
the  economic  cost  Is  also  substantial.  For  the  Community,  these 
I osses  can  be  va I ued  at  about  70  thousand  m I I I I on  ECUS  a  year 
from  estimates  that,  according  to  the  method  used,  range  between 
45  and  90  thousand  mllllon  ECUS. 

Injured.  But 

- 66  -

189.  At  the  Community  level,  the  principal  actions  taken  so  far  In  the 
area  of 
road  safety  have  been  concerned  with  the  harmonisation 
of  rules  relating  to  vehicle  construction,  through  the  adoption 
tyre 
of  over  100  d I rect Ives;  max I mum  dr I ver • s  hours;  m In imum 
tread  depth  for  private  cars;  the  periodic  Inspection  of  vehicles 
including  harmonised  standards  for 
the 
general 
for  obtaining  a  Community  model  driving 
the  mandatory  wearing  of  seat  belts  including  the 
licence;  and 
restraining  of  children  and  speed  I imiters  for  heavy  vehicles. 
In  add It ion, 
two  Important  draft  direct Ives  are  on  the  Counc 11 
table  :  harmonisation  of  speed  I imits  for  commercial  vehicles  and 
maximum  permitted  blood  alcohol  concentration. 

the  testing  of  brakes; 

standards 

190.  Nevertheless,  even  with 

those  with 

that  have  been  made 

fatal  accident  rate  (expressed  per  kl tometre  of 

In 
the  advances 
technical  and  behavioural  standards,  the  road  safety  record  of 
Member  States  varies  significantly. 
travel) 
The 
differs  more  than  sevenfold  as  between  the  most  advanced  Member 
the  trend 
States  and 
also  varies  considerably  with 
their 
position  much  better  than  others  while  in  a  few  the  situation  is 
actually  deteriorating.  Using  the  same  basis  of  measurement,  the 
average  risk:  on  Community 
the 
in 
United  States  :  If  it  were  possible  to  attain  the  US 
level  more 
than  20,000  deaths  every  year  could  be  avoided.  The  scope  for 
Improvement  Is  clearly  considerable. 

the  worst  figures.  Moreover, 

some  States 

Is  nearly 

improving 

roads 

twice 

that 

191.  The 

in 

for 

taken 

reasons 

road  safety 

the  part i cu I ar 

the  differences 

the 
to  enforce  Community  and  nat Iona I  road  safety 
measures 
legislation,  the  degree  and  effectiveness  of  national  legislation 
geograph i ea I, 
and 
and 
soc i a I, 
that  exist  between  and  within 
infrastructural  pecul laritles 
to 
Member  States.  Of  particular 
quantify,  Is  the  variance  in  general  behavioural  characteristics. 
All  of  these  factors  have  an 
impact  on  the  type  of  measure  that 
should  be  envisaged  at  Community  level. 

but  difficult 

demograph I c 

relevance, 

I le 

in 

Scope  for  action  and  the  Community  programme 

192.  A  Community  programme  on  road  safety  wl  11  be  presented  which 
proposes  an  integrated  approach  based  on  qualitative  targets  and 
the  identification  of  priorities.  The  process  of  harmonisation 
by  means  of  legislation  and  the  development  and  application  of 
types  of 
common 
research  projects  continue 
:  users· 
Community  act I on  wh i eh  w i I I  cover 
behaviour,  vehicles  and  infrastructure. 

to  be 
the  main 
three  main  areas 

Users 

193.  Human  behaviour 

Is 
ace i dents,  accord Ing 
casesC39).  The  Community 
issues  white 
these 
necessarily 
approach 
divergences  In  their  regard. 

reflects 

the  major 
to  some  est I mates 

programme  must 

to 

factor  contributing 

road 
in  as  many  as  90%  of 
address 
since  human  behaviour 
and  cultural 
an 
takes  account  of  present 

therefore 

context, 

that 

recognizing 

Its  social 

should  be  adopted  which 

{39) 

Report  of  the  High  Level  Group  of  E>eperta  on  a  European  Rood  Safety  Polley,  (Gerondeou  Report), 
February  1991,  p.24. 

- 67  -

194. 

taken  on  dr Iv Ing 

It  follows  that  In  the  field  of  legislation,  the  programme  should 
concentrate  on  aspects  of  the  problem  where  action  at  Community 
level  can  make  an  effective  contribution.  Measures  have  already 
11 cences  and  use  of  safety  be Its,  and 
been 
proposed  concerning  speed  I lmits  for  heavy  vehicles  and  blood 
alcohol 
should 
accordingly  be  given  to  basic  rules  of  the  road  and  road  signs; 
the  Improvement  of  the  Community  model  driving  licence  from  the 
enforcement  point  of  view;  and  measures  to  protect  particularly 
vulnerable  road  users. 

consideration 

I lmlts.  To 

complement 

these, 

195.  outside  the  legislative  field, 

in  schools, 
campaigns.  Such 

the  Commission  can  also  play  a 
useful  role, 
In  conformity  with  the  subsidiarity  principle,  In 
providing  In-put  and  support  for  education,  Including  road  safety 
training  of  professionals  and  publ le 
education 
the 
are 
awareness 
respons I b 111 ty  of  others,  but  Commun I ty  support,  part I cu I ar I y 
through  the  compiling  and  presentation  of  relevant 
information 
based  on  experiences  gained  throughout  the  Community,  would  add 
than  uncoordinated 
considerable  value  to  them  at  a 
research  and 
individual  efforts  could  achieve. 
telematics  are 
development 
demonstrating 
tutoring  and 
assistance. 

the  application  of 
these 

in 
the  potential  of 

In  addition, 

activities 

lower  cost 

tools  for 

primarily 

actions 

196.  The  objective  of  promoting  so-called  "calm  driving" 

is  a  general 
target  which  can  be  reached  In  part  by  such  measures  and  also  by 
combining 
and 
Infrastructure. 

them  with  measures 

concerning 

vehicles 

Vehtcles 

197.  There  are  some  50  basic  directives  harmonising  requirements  for 
vehicle  characteristics,  most  of  which  cover  Issues  relating  to 
vehicle  safety.  The  Community  has  now  realised  the  definition 
of  a  European  Whole  Vehicle  type  approval  standard  for  passenger 
the 
cars  ensuring  that 
Community  are  the  same  In  all  Member  States.  Once  achieved,  the 
next 
is  to  harmonise  standards  for  other  road  veh i c I es, 
notably  lorries,  buses  and  trailers. 

legislative  standards  for  cars 

task 

the 

In 

198.  Adoption  of  Community  directives  has  made  a  major  contribution  to 
the  Improvement  of  the  safety  and  env i ronmenta I  performance  of 
In 
vehicles. 
technical 
light  of  continuing  research  and 
the  ex I st Ing  d I rect Ives  w I I I  need  to  be  adapted  and 
progress, 
complemented.  Emphasis 
vehicle 
be 
crashworthlness 
lightweight 
in  association  with 
structures.  Safety  should  not  be  prejudiced  by  the  move  towards 
smaller,  I ighter,  more  fuel  efficient  cars. 

placed 
the  use  of 

should 

the 

on 

199. 

200. 

201. 

- 68  -

standards.  DI rect Ives 

Roadworthiness  testing  will  ensure  that  the  vehicle  is  as  safe  as 
cost-effective  technology  will  allow.  Periodic  Inspection  will 
guarantee  that  vehicles  are  adequately  maintained  to  comply  with 
for 
force 
safety 
commercial  vehicles  and  most  Member  States  have  schemes 
for 
testing  for  passenger  cars 
passenger  cars.  However,  period I c 
will  not  commence  for  certain  Member  States  until  1998. 
It  will 
be  necessary  to  def lne  the  performance  of  vehicles  In  service. 
Test Ing  standards  are  a I ready  on 
the  tab I e  of  the  Counc I I  for 
brakes  and  emission  testing.  These  Directives  should  be  adapted 
and  complemented  over  time  to  take  account  of  new  technology. 

current I y 

are 

In 

Is 

is 

the 

the 

research 

telematlcs 

current  DRIVE 

A  particularly  Interesting  Issue  with  regard  to  new  technologies 
and 
programme 
concentrating  on  vehicle  and  traffic  management.  The  objective  of 
the  progranvne 
transport 
Improvement  of 
efficiency  and  environmental  quality.  Future  results  of  on-going 
DRIVE  projects 
the 
Community's  Integrated  programme  on  road  safety.  The  results  of 
this  and  other  research  projects  can  then  be  used  as  the  basis 
for  appropriate  new  Initiatives  both  on  construction  standards 
and  on 
the  development  of  a  safer  road  network,  as  discussed 
further  below. 

II)  will  equally  contribute 

road  safety, 

(Phase 

to 

standards 

Technical 
roadworth I ness  of 
lmpl  icat ions 
for 
particularly  suited 
constitute  one  of  Its  core  functions. 

veh I c I es, 
free 
the 

applying 

the 
to 
hav Ing 
as 
circulation 

to  action  at  Community 

construction 
they 
do 
of  vehicles, 
level  and 

and 
important 
are 
Indeed 

Infrastructure 

202.  Road  networks  play  an  Important  role  In  road  safety,  as  part  of 
improving  the  Quality  and  capacity  of 
the  total  traffic  system; 
long 
road  networks  const I tutes  one  of  the  most  effect I ve  and 
Improvement.  The  development  of 
last Ing  exercises 
the 
road  network  provides 
trans-European 
guidelines 
context 
envisaged 
complementary  measures 
concerning  the  planning,  design,  construction  and  maintenance  of 
roads  constituting  the  network  and  their  associated  facilities. 
Techn i ea I  standards  on  road  signs  and  s i gna Is  shou Id  form  an 
Important  part  of  this  activity. 

for 
In  which 

In  safety 

can  be 

the 

203. 

In  parallel,  a  coordination  role  could  be  played  by  the  Community 
on  a  non-leglslat lve  basis  by  means  of  an  exchange  of  know-how 
and  experience  or  by  means  of 
(technical 
"reference  documents"). 

recommendations 

204.  To 

that 

the  extent 

the  Community, 

the 
development  of  trans-European  networks,  supports  the  development 
and  modern I sat Ion  of  the  road  system,  It  Is  who 11 y  appropr I ate 
that  It  gives  full  attention  to  the  measures  needed  to  reduce  the 
the  network  wh I eh  at  present  constitute  such  a 
ace I dents  on 
terrible  toll  In  both  human  and  economic  terms. 

the  context  of 

in 

- 69  -

IV.2.e.3  MARITIME  SAFETY:  THE  CURRENT  SITUATION 

205.  Most  of 

the  Community  are 
the  goods 
the  f I ags  both  of  Member 
transported  by  sea 
States  and  third  countries.  Transport  by  sea  is  indeed  a  global 
business  and  maritime  safety  accordingly  raises  Issues  having 
worldwide  Implications. 

transported  to  and 
in  ships  f I y Ing 

from 

206.  Every  year  sh I ps  cont I nue  to  be  I nvo I ved 

tons,  have  been 
loss  of  more 

their  dramatic  nature,  has  contributed 

lost  every  year, 
thousand 
than  a 
involve  general  cargo 

In  ace I dents,  many  of 
them  serious.  Since  1986,  on  average,  230  ships,  or  1.1  mill Ion 
Involving  an  annual 
gross 
lives.  The  highest 
average 
percentage  of  accidents 
fishing 
vessels  (26%),  bulk  carriers  (6%)  and  tankers  (5%).  A  limited 
number  of  accidents  to  passenger  ships  In  recent  years,  because 
to  growing  public 
of 
there  are  Indications  that 
concern  about  the  Issue.  Moreover, 
the 
future. 
deteriorate 
Approximately  35%  of  all  bulk  carriers  sunk  In  the  last  15  years 
were  lost  In  the  last  two  years,  74%  of  all  tonnage  lost  In  1991 
was  more  than  15  years  old,  while  the  world  fleet  as  a  whole  Is 
ageing  and  many 
records, 
including  several  Community  flags,  are 
losing  vessels  to  other 
registers  with  poorer  records. 

flags  with  relatively  good  safety 

situation 

could 

(46%), 

near 

the 

In 

207.  Directly  related  to  ships'  safety  is  the 

issue  of  pollution  of 
through  operational  or  accidental  pollution  or 
the  sea  whether 
deliberate  violation  of 
the  total 
international 
amount  of  oil  entering  the  marine  environment  has  been  decreasing 
over 
Is  st i I I  cons I der at)-1 e  and  much 
higher  in  the  Mediterranean  than  In  other  Community  waters. 

r'lles.  While 

two  decades, 

the  I ast 

It 

208. 

Indeed  It  Is  striking  that  despite  the  existence  of  International 
conventions  designed  to  establish  a  universal  safety  regime  for 
the  world's  fleets,  wide  variations  exist 
in  the  safety  levels 
loss  ratio  of  the  fleet  with  the  worst 
actually  achieved.  The 
the 
is  114 
record 
worst 
level  Is  50  times  the  best.  Statistics  derived  from  port 
State  controls  show  a  ratio  of  deficiencies  over  Inspections  of 
almost  79%  for  the  worst  flag  compared  with  12%  for 
the  best. 
Community  Member  States  have  ratios  ranging  from  52%  to  12%. 

the  best.  Even  with In 

the  Community 

t Imes 

- 70  -

209.  Most  of 

trading 

is  of  fundamental 

in  Community  waters 

the  ru I es  and  requ I rements  for  sea-go Ing  vesse Is  are 
negotiated 
in  the  International  Maritime  Organisation  CIMO),  a 
spec I a I I sed  agency  of  the  United  Nat ions,  of  wh i eh  a 11  Member 
States  are  members.  The  international  framework  developed  by  the 
IMO 
importance  to  maritime  safety  and,  given 
the  global  character  of  the  shipping  industry,  must  remain  so. 
At  the  same  time,  it  is  clear  that  the  Community  has  an  important 
role  to  play  both  within  and  in  support  of  the  IMO  to  ensure  that 
ships 
standards 
providing  the  effective  guarantees  of  safe  operation  required  by 
its  geographical  condition  and  the  demands  of  Its  citizens.  Such 
Community  action  is  fully  Justified  since  It  Is  clear,  as  shown 
in  Its  absence,  adequate 
by 
common  standards  are  not  being  observed 
in  practice.  Also  the 
I MO  requirements  do  not  app I y  to  passenger  vesse Is  on  na t Iona I 
voyages.  The 
domest le 
thus  emphas I ses  the 
trades  to  sh I ps  from  other  Member  States, 
need 
initiatives  which  must  of  course  also 
respect  the  roles  of  other  authorities,  International,  national 
and  loca I. 

the  data  referred  to  above, 

I iberal isat ion  of 

for  appropriate 

cabotage, 

opening 

respect 

common 

that 

The  Community's  programme 

general  principles 

210. 

to  ensure 

In  order 
maritime  safety 
approach  Is  being  developed  based  on  three  basic  principles. 

the  field  of 
form  a  coherent  and  effective  ensemble,  an 

that  Community  actions 

in 

211.  FI rst,  requ I rements  shou Id 

In 

to 

to  play 

their  application.  The 
it  pre-eminent  role 

the  maximum  extent  poss I b I e  be 
therefore 
worldwide 
continue 
the  development  and 
adaptation  to  technical  progress  of  International  agreements  that 
will  provide 
In  exceptional  cases, 
higher  standards  for  particular  regions  may  be  Justified  but  the 
general  objective  should  be 
International  standards  guaranteeing 
high  levels  of  safety  throughout  the  world  and  at  the  same  time 
avoiding  distortions  of  the  conditions  for  competition  between 
shipping  companies. 

the  necessary  guarantees. 

should 

IMO 

In 

212.  Second,  for  the  most  part,  the  existing  international  agreements 
constitute  a  satisfactory  framework, 
the  main  problem  being  the 
Inadequate  and  uneven  application  and  enforcement  by  States  of 
the  rules  that  have  been  agreed.  Such  divergences  not  only  have 
Internal 
an  adverse  effect  on  safety, 
market 
the 
Community  can  make  an  important  contribution  by  developing  common 
approaches  to  the  implementation  of  IMO  rules  and  to  their  proper 
enforcement  in  relation  to  all  ships  In  Community  waters. 

the 
Accordingly, 

the  maritime  supply 

they  can  fragment 

Industry. 

for 

213.  Third, 

a  proper  balance 

is  needed  between 

roles  and 
responsibilities  of  flag  and  coastal  states.  While 
the  flag 
State  has  the  primary  responsibility  for  ensuring  that  its  ships 
comply  with  International  standards,  both  port  and  coastal  States 
must  accept  their  responsibility  for  ensuring  that  respect  for 
the  absence  of 
those  standards  Is  effectively  control led. 
effective  port  State  controls,  given  the  global  nature  of  the 
to  be 
industry, 
seas. 
better 

international  standards  wl  I I 

inevitably 
on 

tend 
high 

respected 

paper 

than 

the 

the 

on 

In 

- 71  -

214.  The  application  of 

leads 

these  principles 

to  a  Community 
programme  consisting  of  four  main  types  of  Initiative  :  action  to 
ensure  convergent  Implementation  of  IMO  standards;  reinforcement 
the  modern 
of  port  State  control 
Infrastructure  necessary  to  ensure  that  maritime  safety  enters 
the  electronic  age;  and  standard  setting,  primarily  In  the  IMO. 
The  work  of  the  Maritime  Industries  Forum  has  confirmed 
in  its 
final  report  the  deslrabi I ity  of  action  of  this  kind. 

the  development  of 

; 

Convergent  implementation  of  international  standards 

215.  Action  by 

by 

taken 

conventions, 

the  Community  to  ensure  convergent 

implementation  of 
in  a  number  of 
IMO  standards  by  Member  States  can  be 
ways,  for  example,  by  ensuring  that  all  Member  States  adhere  to 
IMO 
to 
that  are  not  mandatory  or  by  Community 
International 
that  are 
directives  adopting  common 
framed  as  general  principles.  Where  necessary, 
these  could 
provide  for 
technical 
techniques  should  permit  present 
standards.  These  and  other 
reduced  within  acceptable 
divergences 
I imi ts. 

the  development  of  additional  European 

Interpretations  of  rules 

levels  to  be 

In  safety 

binding 

legally 

giving 

effect 

rules 

216. 

required, 

In  addition,  the  International  standards  could  also  be  extended, 
the 
fal I Ing  outside 
to  vessels 
as 
International  conventions, 
for  example,  passenger  vessels  on 
national  voyages  or  cargo  vessels  below  the  IMO  thresholds.  This 
would  ensure 
requirements  will  apply 
throughout  the  Internal  market. 

the  same  safety 

the  scope  of 

that 

Port  State  Control 

217.  The  reinforcement  of  port  State  controls,  for  example, 

through 
the  establ lshment  of  harmonised  criteria  for  priority  Inspections 
and  detention, 
to  be 
eliminated  from  Community  waters.  Action  within  the  framework  of 
the  Memorandum  of  Understanding  on  Port  State  Control  to  which  a 
number  of  European  third  countries  are  parties,  Including  within 
Its  Committee,  could  permit  such  measures  to  be  given  broader 
European  appl lcation. 

if  sub-standard  ships  are 

is  essential 

Infrastructure 

218.  Finally,  Community  action  to  develop  Vessel  Traffic  Management 
(VTM)  using  advanced  technologies  on  shore  and  on  ship  as  part  of 
the  Community's 
trans-European  networks  wl  I I  enable  maritime 
safety  In  Europe  to  take  full  advantage  of  the  posslbllltles  of 
the  electronic  age  and  thereby  achieve  Improvements  which  would 
be  hard  to  real lze  In  any  other  way. 

219.  The  act Ion  programme 

Includes  measures 

these  main 
In  Chapter  V.  A  more  deta I I ed 
areas  of  act Iv I ty  as  exp I a I ned 
presentat Ion 
under 
and 
consideration  wi  11  be  contained  In  a  specific  communication  on 
Maritime  Safety  and  Pollution  Prevention  to  be  presented  In  the 
near  future. 

exp I anat ion  of 

the  measures 

In  each  of 

a 11 

- 72  -

Standard  setting 

220.  Given  that 

It 

IM0 

that 

level, 

fol lows 

international 

the  adopt Ion  of  necessary  new  rules  and 

is  the  body  responsible  for  setting  standards  on 
the 
maritime  safety  at 
Community  needs  to  ensure  that  the  IM0's  work  develops  in  a  way 
which  will  produce  adequate  solutions  for  ships  sailing  In  Its 
that  coordinated  positions  can  be 
waters.  Action  is  needed  so 
taken  favour Ing 
the 
modification  of  old  ones.  Procedures  will  have  to  be  developed 
which  wl  11  al low 
to  act  effectively  to  this  end 
while  respecting  the  IM0's  methods  of  working  and  the  technical 
character  of  much  of  its  activity,  as  wel  I  as  minimising  possible 
negative  reactions  to  the  development  of  a  regional  voice  within 
the  organisation.  In  this  context,  one  of  the  areas  on  which  the 
Community  should  concentrate  Its  efforts  Is  measures  to  reduce 
the  risk  of  human  error  since  this  element  has  been  recognized  as 
the  major  cause  of  maritime  accidents. 

the  Community 

221.  Standard  setting  by 

the  Community 

to 
exceptional  cases  where  efforts  within  the 
IM0  have  failed  to 
produce  a  solution  meeting  the  Community's  particular  needs  and 
where  act Ion 
I eve I  of 
safety  In  European  waters. 

imperative  to  guarantee  an  adequate 

itself  wi  11  be 

I lmlted 

is 

IV.2.e.4  CIVIL  AVIATION:  SAFE  BUT  PERFECTIBLE 

the  general  safety 

222.  Clvi I  aviation  Is  recognised  as  a  very  safe  mode  of  transport. 
Although  there  Is  no  entirely  satisfactory  index  to  measure  the 
absolute  safety  of  aircraft  operations, 
the  number  of  fatal 
accidents  and  the  number  of  fatalities  give  a  useful  Indication 
of 
is  a  very 
limited  number  of  accidents  in  the  commercial  operation  of  clvl I 
air  transport  aircraft  and  therefore,  Individual  annual  figures 
are  to  a  cert a In  extent  mean Ing I ess  because  one  major  ace I dent 
would  seriously  Influence  the  yearly  result.  For  this  reason,  It 
is  better  to  consider  the  yearly  average  in  the  last  decade  which 
is  37  accidents  account Ing  for  1022  fatal It les  wor ldwlde(40). 
This  figure  has 
than  1  billion 
to  be  compared  with 
passengers  a  year  carried  by  the  airlines  of  the  world. 

level.  Fortunately, 

the  more 

there 

223. 

the  wor Id. 

In  addition,  the  level  of  safety  varies  considerably  In  different 
Europe  has  a  very  good  record 
parts  of 
this 
field,  being 
in  only  about  10%  of  fatal  accidents 
although  It  accounts  for  approximately  34%  of  world  air  traffic. 
In  the  Community  alone,  there  were  22  civil  air  transport  fatal 
accidents  between  1980  and  1990,  an  average  of  2  accidents  a  year 
compared  with  the  world  average  of  37. 

Involved 

In 

{40) 

Source,  World  Al rl lne  Accident  Sunnary  publ lahed  annually  by  the  Uiited  Klngdan  Civi I  Aviation 
Authority. 

· 

- 73  -

224.  However,  the  Industry  has  expressed  concern  that  safety  levels  in 
commercial 
aviation,  which  unti I  now  have  been  constantly 
Improving,  are  beginning  to  plateau.  This  could  mean  that  the 
number  of  accidents  could  start  to  increase  proportionally  to  the 
It  wl  II  therefore  be  necessary  to  explore 
Increase  of  traffic. 
new  avenues  perm It t Ing 
the  ach I evement  of  substant I a I  progress 
increasing  burdens  on  operators,  human  factors 
without  unduly 
In  about  80%  of  air 
being 
accidents. 
In  addition,  Increased  congestion  on  the  ground  and 
In  the  air  means  that  the  space  to  spare  over  the  safety  margins 
built  Into  the  system  Is  reducing  and  could  disappear.  Safety 
will  of  course  remain  the  first  priority  of  the  ATM/ATC  system 
but,  If  nothing  Is  done,  this  will  be  ensured  at  the  expense  of 
the  smoothness  and  efficiency  of  operations. 

in  one  way  or  another 

imp I icated 

225.  Civi I  aviat Ion  also  Includes  general  aviat Ion  and  aerial  work 
which  comprises  such  activities  as  training,  pleasure  flying, 
business  aircraft  operations,  aerial  photography,  crop  spraying, 
medical  evacuation  and  so  on.  However,  these  activities  are  far 
less  developed  In  Europe  than  in  some  other  regions  of  the  world. 
For  this  reason  and  due  to  their  diversity,  it  Is  very  difficult 
to  obtain  reliable  statistics  and  therefore  to  obtain  a  correct 
picture  of  the  safety  level  of  such  aviation  activity  In  Europe. 
As  such  activity  increases,  which  it  probably  wi  11,  It  wl  11  be 
necessary  to  ensure  that  its  imp I ications  for  aviation  safety  are 
properly  evaluated  and,  if  necessary,  anticipated. 

The  Community's  contribution  to  air  safety 

in 

recognition 

transmitted 

lnvestlgation< 41 >,  mutual 

technical  harmonlsationC43).  There 

226.  At  the  Community  level,  a  number  of  measures  In  the  field  of  air 
the  f I e Ids  of 
safety  have  a I ready  been  adopted.  They  are 
of 
crew 
accident 
licences< 42>,  and 
is  also  a 
in  the  field  of  ATM(44)  which  has 
proposal  from  the  Commission 
the  Counci  I  and  a  number  of  measures 
been 
to 
incidents  reporting  have 
concerning  accident  Investigations  and 
the 
announced 
been 
already 
Cornmission< 45>. 
In  addition  to  those  specific  safety  measures, 
other  Community  legislation  wil I  also  indirectly  have  beneficial 
effects  on  safety,  for  ex amp I e,  the  I i cens Ing  of  air  carriers, 
is 
as  provided  for 
dependent  upon  the  possession  of  an  Air  Operator  Certificate  the 
criteria  for  which  ensure 
that  operators  meet  certain  safety 
standards. 

in  the  third  package  of  llberalisationC46), 

Communication 

from 

in 

a 

227.  Advances  In  technology  will 

lead  to  the  integration  of  airborne 
traffic  control 
into  a  single 
pi lot  systems  and  ground  air 
system  structure.  This  wi  II 
progressively  utl Ilse  advanced 
sate 111 te  dependent  commun I cat Ion,  nav I gat Ion  and  surve 111 ance 
capabilities.  The 
this  approach  on  a  global 
scale  sponsored  by  the  International  Civi I  Aviation  Organisation 

introduction  of 

41 
42 
43 
(44) 

(45) 

(46) 

Counc  I  Directive  80/1266/EEC  of  16.12.80 - OJ  L 375,  31.12.80,  p.32. 
Council  Directive  91/670/EEC  of  16.12.91  - OJ  L  373,  31.12.91,  p.21. 
Council  Regulation  (EEC)  N•3922/91  of  16.12.91,  OJ  N•L  373,  31.12.91,  P.4. 
Proposal  for  a  Council  Directive  on  the  definition  md  use  of  CCJ'l1)atible  technical  md  operating 
specif I cations  for  the  procurement  of  al r  traffic  management  md  systems  - <XM(92)342  final. 
22.12.92. 
Cannisslon  Cannunicatlon 
incidents  and  accidents  - SEC(91)1419  final,  4.9.91. 
Council  Regulation  (EEC)  N•2407/92  of  23.7.92 - OJ  L  240,  24.8.92,  p.1. 

initiatives  concerning  air  transport 

the  Council  on  Cannunity 

to 

- 74  -

to  affect  Community  air 

traffic  management  and 
will  begin 
industrial  strategies  in  the 
immediate  future.  The  operational 
changes  could  begin  to  be  effective  during  the  second  half  of 
this  decade.  A  Community  response  to  this  challenge  has  yet  to 
be  determined.  Changes  are  necessary 
that  safety 
levels  do  not  deteriorate  as  the  number  of  flights  increase.  The 
need  for  more  aval lable  capacity  wl  11  only  be  met  by  higher 
precision  semi-automated  air  traffic  control  methods  In  areas  of 
high  traffic  movements  together  with  a  re-organisation  of  the  air 
space  routing  systems. 

to  ensure 

the  political  and 

228.  Future  Community  action  In  the  field  of  air  safety  will  be  based 
on  the  work  already  achieved  and  on  the  perceived  needs  created 
by 
technical  evolution  of  this  sector.  The 
Convnunlty  should  accordingly  act  to  real lze  its  safety  objectives 
International  context  of  clvll  aviation  and 
within  the  general 
the  work  of  the  relevant  International  organisations  such  as  the 
lnternat ional  Clvl I  Aviation  Organisation  ( ICAO), 
the  European 
the  Joint  Aviation  Authorities 
Civil  Aviation  Conference  (ECAC), 
the  basic  pr lnclples 
(JAA)  and  Eurocontrol. 
establ lshed  by 
the 
application 
standards 
reflecting  the  Community's 
level  of  technological  progress.  It 
will  be  focused  on  measures  which  add  value  to  actions  at  both 
the  fields  of 
national  and 
personnel 
traffic 
incidents, 
management  and  control,  reporting  on  accidents  and 
research  and  development  as  well  as  analysis  of  the 
long  term 
challenges  to  air  safety. 

ICAO,  Community  action  should  permit 
the 

in 
harmonisation, 

throughout  Europe 

level  primarily 

International 

I lcensing, 

strictest 

technical 

I ight  of 

air 

the 

the 

of 

In 

Licences 

requirements, 

229.  The  Directive  of  December  1991  on  mutual  recognition  applied  only 
to  cockpit  personnel.  However,  given  Important  differences  In 
national 
ICAO 
reconvnendations,  there  is  a  need  to  arrive  as  soon  as  possible  at 
the  gr ant Ing  of  cockp It  crew  11 cences. 
common  requirements  for 
Only  these  can  provide  the  guarantee  that  the  qualifications  of 
the  personne I  w 11  I  cont I nue 
In 
addition,  attention  should  be  given 
the  posslbll itles  to 
extend  the  system  to  other  categories  of  personnel,  for  example, 
ground  engineers  and  air  traffic  controllers. 

to  meet  acceptab I e  standards. 

of  which 

not  meet 

some 

to 

do 

230.  The  efficient  management  of  common 

the  setting  up  of  a  support 

licensing  requirements  would 
infrastructure 
be  facilitated  by 
Including  Community  central  data  bases  containing  a  wide  choice 
of  examination  questions  submitted  by  Member  States,  medical 
lnformat Ion  on 
I lcensed 
Individuals  such  as  type  of  I icence,  ratings,  val ldlty,  and  so 
on.  Conslderat Ion  wl  11  be  given 
the  development  of  such 
systems. 

I lcence  holders  and  pert lnent  data  for 

to 

- 75  -

Technical  harmonisation 

231.  The  work  already  begun  by  the  Counci  I  Regulation  of  December  1991 
will  have  to  be  pursued.  Further  regulations  to  to  take  account 
as  appropriate  of  new  requirements  developed  by  the  JAA  will  be 
submitted  to  the  Council  for  adoption. 

Air  traffic  control 

232.  As  explained  further  in  Chapter  V  the  objective  of  the  Commission 
is  to  contribute  to  the  development  of  a  single  unified  system 
in  association  with 
for  air 
Eurocontrol,  ECAC  and  national  authorities.  Such  a  system  will 
form  a  fundamental  part  of  the  Community's  approach  to  aviation 
safety. 

traffic  management 

In  Europe 

Accidents  and  incidents 

233. 

trends  concerning 

to 
Its  opinion 

the  Counci  I  of  September  1991, 

the 
In 
its  Communication 
that  a  sensible  air  safety 
Commission  expressed 
the  early  detect ion  of  weaknesses, 
policy  should  be  based  on 
needs  and 
I imlted 
amount  of  data  (accidents  and  incidents)  aval lable  In  each  Member 
State  do  not  al low  such  an  early  detection  while  large  worldwide 
data  bases  pose  problems  of  management  and  correct  interpretation 
of  data, 
to  give  adequate 
in  particular, 
Information  about  regional  situations. 

the  aviation  system.  The 

tend  not 

they 

234.  For  this  reason,  Community 

initiatives  In  this  field  could  be 
the  Communication 
particularly  beneficial  and  efficient  and 
contains  a  work  programme  addressing 
items:  mandatory 
incident  report i ng  systems,  conf i dent i a I  report i ng  systems  and 
accident  investigations. 

three 

the 

from 

knowledge 

235.  The  aim  of  the  first  item  is  to  improve  air  safety  by  bringing 
together 
collection  of 
derived 
incompatible  occurrence  reporting  systems  existing  In  a  number  of 
Member  States  by 
the  setting  up  of  a  centra I  data  base.  The 
specification  developed  for  this  data  base  could  also  be  used  to 
set  up  harmonised  national  reporting  systems  in  the  Member  States 
system.  Each  Member  State  would 
having  presently  no 
therefore  have  access  to  a  large  source  of  valuable  safety  data. 
Connon  analysis  would  permit  deeper  study  of  incident  causes.  The 
Joint  Research  Centre  of  the  Community  has  started  to  work  on  a 
pi lot  project  which  should  be  finished  In  1994. 

such 

the 

236.  The  setting  up  of  a  confidential  reporting  system  is  considered 
important  steps  to 
by  many  safety  experts  as  one  of  the  most 
in  aviation.  As  most  of 
Improve  the  knowledge  of  human  factors 
the  accidents  are  human 
is 
potentially  very  promising.  The  real isatlon  of  a  prototype  system 
launched  In  September  1992  should  last  between  24  and  30  months 
before  final  evaluation. 

Initiative 

related, 

factor 

this 

- 76  -

237.  With  regard  to  accident  Investigations,  It  will  be  necessary  to 
the  avallabll lty  of 
to  guarantee 
take  a  series  of  measures 
investigation  organisations  In  each  Member  State  and 
adequate 
In  this  way,  without 
ensure  that  they  work  effectively  together. 
excessive  centralisation,  machinery  can  be  developed  which  Is  at 
once  of  high  qual lty  and  more  cost  effective 
than  national 
authorities  could  achieve  on  their  own.  The  objectives  would  be 
to  adapt  the  existing  national  regulations  taking  Into  account 
the  Chicago 
the  proposed  modifications 
ace I dent 
Convent Ion; 
the 
Investigation  structure 
the 
national  Investigation  bodies,  establ lsh  closer  contacts  between 
members  of  these  bodies;  provide  the  framework  to  allow  Improved 
cooperation,  promote  Joint  training  of  investigators;  study  the 
possible  creation  of  an  air  disaster 
the 
dissemination  of  Information. 

ICAO  Annex  13 
a 

In  each  Member  State; 

ava I I ab 111 ty  of 

to 
bas I c 

fund;  and 

reinforce 

Improve 

ensure 

to 

238.  Consultations  with  national  experts  have  already  started  on  a 
draft  directive  setting  up  the  fundamental  principles  governing 
aircraft  accident 
five  basic  principles 
Investigation  of 
contained 
aircraft  accidents  and  serious  Incidents;  status  of  the  technical 
Invest lgat Ion  sufficient 
its  unhampered  real I sat Ion; 
permanent  and 
investigation  body;  publication  of  a 
report  conta In Ing  recommendat Ions  for  correct I ve  measures;  and 
follow-up  of  the  Implementation  of  those  recommendations. 

Investigations.  The 
this  project  are:  mandatory 

independent 

to  al low 

In 

Research 

239.  Research  Is  also  an 

Important  aspect  of  an  air  safety  pol Icy. 
Current  activities  Include  the  EURET,  ATLAS,  FANSTIC  and  GAAS 
projects  In  the  field  of  ATC.  There  may  also  be  a  need  from  time 
In  other  areas,  one  of  those 
to  t lme  for  add It Iona I  research 
being  human  factors  where  significant  safety  benefits  could  be 
obtained.  The  correct  interpretation  and  analysis  of  safety  data 
would  also  require  to  study  the  development  of  indices  for  safety 
the  statistical 
risk  evaluation.  Similarly, 
· measurement  and 
categorisation  of  aircraft  operations  and  good  data  gathering 
would  also  be  useful  to  help  improve  research  material. 

Preparing  the  longer  term  future 

240.  The  rapid  political  and 

technical  evolution  of  civil  aviation 
obl lges  us  to  look  ahead  to  f Ind  out  what  would  be  the  future 
challenges  for  air  safety.  A  number  of  questions  already  appear 
which  should  be  addressed  without  delay.  The  fol lowing  I ist  Is 
not  at  a 11  exhaust I ve  but  cou Id  constitute  a  good  start  for  a 
Community  think  tank  on  civil  aviation  safety.  What  will  be  the 
consequences  of  the  evolution  of  c Iv i I  av I at ion  wor _I  dwl de  to  a 
multilateral  system  for 
the  aviation 
authorities?  How  do  we 
responslbl I I ties  when  an 
accident  happens  to  a  leased  aircraft  If  the  States  of  registry, 
Influence 
of  the  owner  and  of  the  operator  are  different?  What 

the  responsibi I I ties  of 
share 

the 

- 77  -

cope  with  measures 

will  the  seventh  freedom  have  on  operational  control?  ~ow  shall 
we 
(reduction  of 
horizontal  or  vertical  spacing,  use  of  parallel  or  convergent 
Increasing  automation  have  on 
runways)  ?  What 
human  behaviour? 

reduce  congestion 

influence  will 

to 

IV.2.e.5  TRANSPORT  OF  DANGEROUS  GOODS  BY  ALL  MODES 

241.  Recent  years  have  seen  a  significant  Increase  In  the  volume  and 
range  of  dangerous  goods  transported  by  a 11  modes.  At  a  time 
when  public  opinion 
Impact  of 
accidents  caused  by  the  transport  of  dangerous  goods  on  both  man 
and  the  env I ronment,  great  efforts  need  to  be  made, 
to  dev I se 
measures  to  avoid  accidents  or  at  least  contain  their  Impact. 

increasingly  aware  of 

the 

Is 

Safety  standards 

242.  At 

the 

level, 

International 

transport  of  dangerous  goods 

Is 
regulated  by  International  conventions  and  agreements  developed 
under  the  auspices  of  international  organisations  which  draw  on 
sources  of  considerable  experience  and  expertise  in  this  field. 
These  have  been  successful 
to  many 
problems, 
the  added  merit  of  broad 
International  acceptanceC47). 

In  providing  solutions 

solutions  which  have 

243.  However, 

to 

r I sks 

in  recent  years,  public  concern  over  the  safe  transport 
of  dangerous  goods  has  led  to  the  conception  of  various  Convnunlty 
measures  to  reduce 
in  this  type  of  transport, 
inherent 
Irrespective  of  modal  choice.  The  overall  aim  Is  the  transport  of 
the  safest  possible  condlt Ions.  Without 
dangerous  goods  under 
prejudice 
International  organisations 
the 
responsible  for  the  agreements,  the  Commission  began  initiating 
the  existing 
Convnunlty 
international 
time  avoiding 
dupl lcatlon  of  work.  These  efforts,  were  aimed  at  deal Ing  with 
lack  of  transparency, 
the 
to  d I verg Ing  nat Iona I 
Convnun I ty  context  and  frequent  recourse 
safety  standards. 

support 
legislation,  whl  1st  at 

Inadequacy  of  certain  provisions  In 

supplement 
the  same 

role  of 

action 

and 

the 

to 

244.  Community  action  has  been  based  on  four  essential  principles: 

the  adoption  at  the  Community  level  of  measures  aimed  at  plugging 
the  gaps  in  existing  international  regulations; 

legal 

the 
national  level  to  achieve  genuinely  harmonised  standards; 

enforcement  of 

International 

the 

regulations  at 

(47) 

l.NITED  M\TIOO,  New  York,  USA  :  l.N  'Uilted  Nations  Recarmendatlona  on  the  Trantport  of  Dangerous 
Goods"  1957  (aa  anended): 

l.NITED  N\TICHS  Econanlc  Cannlaalon  for  Europe,  Geneva,  S'wl tzerlmd 
concerning  the  International  Transport  of  Dangerous  Good•  by  Road"  1959  (aa  anended): 
Central  Off Ice  for  International  Ral I  Tranaport  (cx:TI),  Berne,  SIi tzerla,d  :  RID  Annex  1  to  Appendix 
8  of  CX>TIF,  Annex  1  of  CIM  "Regulation•  concerning  the  International  Carriage  of  Dangerous  Good•  by 
Ra 11 "  ( aa  anended) : 
International  Clvl I  Aviation  Organisation,  Montreal,  Canada  : 
the  Safe  Transport  of  Dangerous  Gooda  by  Air"  (aa  anended): 
International  Maritime  Organisation,  London,  Engla,d  :  IM>S  "International  Maritime  Dangerous  Good• 
Code"  (aa  anended); 
International  Atanlc  Energy  Agency,  Vienna,  Austria  :  ~ "Regulations  for  the  Safe  Tranaport  of 
Radioactive  Material,  Safety  Serl ea  611  1985  Edl tlon  (aa  anended): 
Central  Rhine  Cannlaalon,  Strasbourg,  France  ·:.  AOt-R  "Eurq,ean  Agreement  concerning  the  International 
Tranaport  of  Dangerous  Gooda  on  the  Rhine  Inland Waterway"  (aa  anended). 

IC.AO  TI••  "Technical  Instruction•  for 

:  ACR  "Eurq,ean  Agreement 

- 78  -

avoiding  barriers 
technical  standards; 

to 

trade  created  by  divergent  national 

ensuring  leglslatlon  coherent  with  other  Community  pollcles,  for 
example,  environment  protection,  such  as  the  safe  containment  of 
genetically  modified  organisms. 

On  this  basis,  measures  have  been  adopted  or  proposed  on  topics 
as  varied  as  training  of  personnel,  technical  standards  and  the 
monitoring  and  supervision  of  movements  of  dangerous  goods. 

Future  action 

245. 

the  future, 

In 
the  Community  shou Id  contr I bute  to  the  work  of 
responsible  international  organisations  in  the  field  and,  at  the 
their  efforts 
same 
through  the  adoption  of  measures  addressing  Its  particular  needs 
and  circumstances. 

to  support  and  supplement 

time,  continue 

Harmonisation 

246.  At  present,  desp I te  the  measures  adopted  at 

international 

the  cabotage 

transport  operations.  Whl  le 

I nterna t Iona I  and 
Community  levels,  rules  covering  the  transport  of  dangerous  goods 
lnternat ional  rules  are  applicable 
are  far  from  being  uniform. 
some  cases 
to 
in  others  they  do  not. 
States  apply  them  to  domestic  movements, 
Under 
the  1992 
transport  of  dangerous  goods  undertaken  by  non 
programme, 
to  provisions  governing 
resident  operators  will  be  subject 
In 
dangerous  goods 
In  some 
to  domestic 
the  provisions  applicable  both 
respects 
operations 
under 
the 
International  rules.  Accordingly  It  would  appear  desirable  to 
ensure  that  In  future  rules  for  domestic  operations  are  aligned 
with  those  applicable  to  international  ones. 

the  host  State.  These  may  d I ffer 

freedoms  being 

realised  under 

to  operations 

home  State 

from 
In 

and 

In 

247.  Action  is  also  necessary  to  harmonize  certain  requirements  which 
the  mode  of  transport  being  used  without 
differ  depending  on 
there  being 
the  d I fferences. 
for 
Just if i cat Ion 
Harmonisation  of  rules  applying  to  the  classlflcatlon,  label I Ing 
and  packaging  of  dangerous  substances  across  the  transport  modes 
will  not  only  simplify  the  life  of  those  concerned  but  make  a 
significant 
intermodal 
transport. 

the  efficiency  of 

contribution 

rea I 

any 

to 

248.  Additional  harmonisation  measures  will  also  be  needed 
environment  protection  and 

In 
the 
fields  of 
common 
specifications  of  the  technical  systems  needed  for  the  location 
and  fol  low-up  of  dangerous  loads. 

training  and 

- 79  -

Llablllty 

In 

the 

from 

required 

249.  The  transport  of  dangerous  goods  Is  a  high  risk  activity,  which 
those 
insurance  premiums 
Is  reflected 
Involved  In  the  transport  chain  In  order  to  cover  llablllty  In 
the  event  of  an  accident.  Each  Member  State  has  Its  own 
legal 
practice,  which  It  applies  to  national  transport  covering  civil 
llablllty  for  damage  caused  by  the  transport  of  dangerous  goods. 
There  Is,  as  yet,  no  harmonised  European-wide 
legislation  In 
p I ace  to  cover  c Iv I I  I I ab I I I ty  for  damage  caused  by  dangerous 
goods  In  national  or  International  transport.However,  the  Inland 
Transport  Committee  of  the  United  Nations  Economic  Commission  for 
Europe  has  recently  (1989)  concluded  a  "Convent Ion  on  clvl I 
liability  for  damage  caused  during  carriage  of  dangerous  goods  by 
road, 
vessels'"CCRTD).  This 
Convention  Is  based  on  strict  liability  with  very  high  Insurance 
premiums, 
the 
carrier 
transport.  The 
Convention  has  not  yet  been  signed  by  a  sufficient  number  of  ECE 
states  to  al low  It  to  enter  Into  force,  thus  leaving  the  European 
scene  dotted  with 
Careful 
consideration  should 
to  whether  a 
Community 
to  bring  about  a  more  uniform 
approach,  bearing  In  mind  also  the  Community  interest  In  seeing 
operators  from  third  countries,  In  particular  from  the  European 
Economic  Area  and  from  Eastern  and  Central  Europe,  subject  to 
similar  obligations  as  Its  own. 

differing 
therefore  now  be  given 

llablllty 
In  national  or 

from 
International 

Initiative  Is  needed 

the  consignor 

and  shifts 

navigation 

llablllty 

regimes. 

Involved 

Inland 

rail 

and 

to 

- 80  -

IV.2.f  SOCIAL  POLICY  AND  TRANSPORT 

IV.2.f.1  COMMUNITY  SOCIAL  POLICY  AND  THE  SOCIAL  DIMENSION  OF  THE  CTP 

COMPLEMENTARY  INSTRUMENTS 

250.  From 

I Iv Ing 

through  application  of 

for  workers.  This  objective  was 

improved  working  cond it ions  and  an 

the  outset,  the  European  Community  has  had  as  one  of  Its 
genera I  ob J ect i ves 
improved 
to  be 
standard  of 
the  Treaty's  provisions  and 
realised 
the 
the  functioning  of 
procedures  such  as 
the  part I cu I ar 
convnon  market  and 
included 
provisions  of 
provision  for  close  cooperation  between  Member  States 
the 
social  field,  equal  pay,  and  employment,  promotion  and  training 
through  a  Social  Fund. 

the  social  policy  title.  The 

the  CTP,  as  we 11  as 

those  relating 

through 

latter 

to 

in 

251.  The  European  Single  Act  deepened  this  approach  by  prescribing  the 
harmonisation  of  health  and  safety  conditions  at  work  on 
the 
basis  of  minimum  requirements  (Article  118  a)  and  creating  an 
exp 11 c it  basis  for  a  dialogue  at  European  I eve I  between  soc i a I 
the  possibi I lty  for  collective  bargaining 
partners, 
(Article  118  b). 
the 
In 
Fundamental  Social  Rights  of  Workers  was  adopted,  suscrlbed  by 
together  with  an 
al I  Member  States  except 
action  programme  Including  initiatives  In  the  social  field. 

the  community  Charter  of 

the  United  Kingdom, 

including 

1989, 

252.  On  this  basis,  progress  has  been  made 

role 

a  major 

in  two  complementary  ways. 
On  the  one  hand,  social  policy  initiatives  have  been  taken  which 
in  other 
have  had  application  In  the  transport  field  as  they  do 
sectors.  The  Social  Fund  has 
in  promoting 
employment  and  retraining  workers;  equal lty  between  sexes;  strict 
rules  on  child  work  have  been  adopted;  and  standards  on  working 
and  health  conditions  have  been  created(48).  Social  partners 
through  Joint 
have  been  associated  with  Community  decisions 
Committees  and  the  Economic  and  Social  Committee.  On 
the  other 
hand,  In  the  context  of  the  CTP,  measures  are  on  the  way  to  be 
taken  concerning  the  living  and  working  conditions  of  transport 
in 
workers  as  part  of  the  realisation  of 
internal  market 
transport  services.  The  opening  up  of  national  markets 
to 
compet it Ion  from  other  States  has  necessitated  the  adopt ion  of 
certain  common  standards  in  the  social  field  both  to  ensure  that 
the  essent i a I 
the  new 
I lberal lsed  environment  and  to  eliminate  certain  distort ions  of 
the  conditions  of  competition  between  transport  enterprises  which 
could  arise  in  the  absence  of  standards  fixed  for  the  Community 
as  a  whole. 

interests  of  workers  are  protected 

the 

in 

253.  When  signing  the  Union  Treaty 

in  February  1992,  eleven  of  the 
twelve  Member  States,  al I  except  the  United  Kingdom,  concluded  an 
is  to  be 
agreement  on  social  policy  by  way  of  a  protocol  which 

(48) 

Counci I  Directive  89/391/EEC  of  12  June  1989  on 
lnprovemenh  In 
Individual  Dfrectlves  within  the  meaning  of  Article  16(1)  of  Directive  89/391~C. 

the  Introduction  of  measures  to  encourage 
the  sofety  a,d  health  of  worker(cid:127)  at  work  (OJ  L  183  of  29.6.1989,  p.  1),  a,d 

- 81  -

to 

recourse 

the 
the  Treaty.  Among 

institutions,  procedures  and 
implemented  by 
mechan Isms  of 
the  main  prov is Ions  of  this 
agreement  are  the  consolidation  of  the  Charter  of  the  Fundamental 
Social  Rights  of  Workers;  the  role  of  primary  importance  given  to 
social  partners  in  the  consultation  process  leading  to  the  option 
of  legislation  with  social 
implications;  development  of  measures 
for  disabled  persons;  increased  and  improved  vocational  training, 
labour  market; 
including 
primacy  of  collective  bargaining  over  legislation  in  some  areas; 
and  respect  for  the  principle  of  subsidiarity.  The  protocol  and 
the  social  policy  agreement  are  without  prejudice 
the 
provisions  of  the  Union  Treaty  or  a  fortiori  to  existing  Treaty 
provisions  relating  to  social  policy  or  the  CTP. 

Integration  of  people 

from 

the 

the 

to 

254. 

in 

in  some  cases, 

transport  field. 
internal  market 

Initiatives  wlll  be  developed  on  the  basis  of  the  social  policy 
provisions  of  the  Union  Treaty  and, 
the  social 
po Ii cy  protoco I  and  agreement.  These  initiatives  may  we II  have 
the  proper 
the 
application 
In  addition, 
functioning  of  the 
transport  services  wt  11 
almost  certainly  call  for  further  action  affecting  the  I tving  and 
working  conditions  of 
some  of  which  are 
considered  further  below.  At  this  point,  it  suffices  to  note  that 
in  responding  to  social  pressures,  some  of  them  flowing  directly 
from 
the  completion  and 
the 
functioning  of 
transport  market,  authorities  at 
nat Iona I  or  reg Iona I  I eve I  w 11  I  find  it  di ff I cu It  to  act  a lone 
initiatives  could  prejudice 
the  price 
where 
competitiveness  or  operational  flexibi I ity  of 
transport 
their 
enterprises  relative  to  those  from  other  Member  States. 

liberalisation  associated  with 

transport  workers, 

their  uni lateral 

Internal 

the 

in 

255.  The 

is 

two 

social  measures 

sources  of  Community 

concerning 
transport,  and  the  new  dimension  added  by  the  Maastricht  protocol 
and  social  pol Icy  agreement,  wt  I I  reQulre  particular  attention  to 
be  paid  to  the  type  and  content  of  initiatives  to  be  proposed. 
First,  it 
the  basis  of 
important  that  measures  proposed  on 
general  social  policy  provisions  take  properly  Into  account  the 
specific  character  of  transport  activities  such  as  the  varying 
operat Iona I  cond it Ions  and  reQu I rements  of  d I fferent 
types  of 
transport  system  and  their  inherently  mobile  character.  Second, 
on 
the 
the  other  hand,  measures 
In  transport  services  should 
functioning  of  the  internal  market 
reflect  and  be  fully  compatible  with  the  Community's  generally 
appl lcable  social  policies.  Third,  when  social  measures  wi  11 
affect  the  functioning  of  the  transport  market,  particularly  the 
competitive  conditions  of  transport  enterprises,  they  should  be 
adopted  whenever  possible  by  the  Community  as  a  whole. 

the  context  of 

taken 

in 

- 82  -

IV.2.f.2  PRINCIPAL  AREAS  OF  ACTIVITY 

256.  Cormlunlty  action 

to  protect  and  promote 

Interests  of 
four 
transport  workers  can  be  conveniently  considered  under 
headings  :  the  establishment  of  a  social  dialogue  and  collective 
bargaining;  measures 
the  different 
professions  and  training;  actions  related  to  living  and  working 
conditions;  and  measures  that  protect  and  promote  employment. 

concerning 

access 

the 

to 

Social  dialogue  and  collectlve  bargaining 

257. 

258. 

In 

the 

(ral I, 

(ports).  The 

transport  sector 

Joint  Cormllttees  attached  to  the  Commission,  most  of  which  are 
recently  created,  have  already  proved  to  be  a  valuable  complement 
to  the  Economic  and  Social  Committee.  Five  of  the  nine  existing 
Inland 
committees  are 
road, 
In 
Is 
waterways,  mar It lme  and  c Iv 11  av I at Ion)  and  a  new  one 
course  of  being  established 
Joint 
transport 
Committees  provide  a  forum  in  which  representatives  of  employees 
and  employers  can  deliberate  with  each  other  and  with 
the 
Commission  on  the  formulation  of  policies  concerning  their  sector 
implementation.  The  contribution 
and  Issues  arising  from  their 
to 
that 
matters  d I rect I y  re I ated  to  soc I a I  Issues  such  as  access  to  the 
and 
profession, 
the 
and  protect ion. 
employment 
ach I evement  of  broad  consensus  on  how  to  approach  a  part I cu I ar 
problem  could  make  a  vital  contribution  to  the  rapid  adoption  of 
Community 
to 
achieve. 

legislation  which  otherwise  would  be  difficult 

conditions 
areas, 

Is  part lcular ly 

they  can  make 

and  working 

In  relat Ion 

promotion 

training, 

Important 

I lving 

such 

In 

It  des I rab le. 

such  solutions  constitute  an  alternative 

Indeed  dialogue  between  the  social  partners  can,  If  both  partners 
cons lder 
lead  to  solut Ions  based  on  collect lve 
agreement  alone  (Article  118  band  Article  4  of  the  Agreement  on 
Social  Polley). 
to 
current 
legislative  procedure  and  are  an  example  of  decisions 
being  taken  closer  to  the  citizen.  This  Is  why  the  Commission  Is 
reflecting  on  arrangements  which  would  enable  the  Implementation 
of  consultation,  dialogue  and  possibly  negotiation  procedures 
foreseen  by 
the 
European  Trade  Un Ion  Confederat Ion 
the  Un Ion  of 
Industrial  and  Employers·  Confederations  of  Europe  (UNICE)  and 
the  European  Centre  of  Public  Enterprises  (CEEP),  and  by 
the 
Protocol  on  Social  Polley  annexed  to  the  Union  Treaty. 

the  agreement  concluded  on  31.10.91  between 

(ETUC), 

259.  Accordingly, 

In 

If 

that, 

Intends 

to  ensure 

the  Commission 

It  should  appear 

Initiatives  having  social 

the 
involved  In  the 
transport  f leld,  the  social  partners  are  fully 
preparation  of 
lmpllcatlons.  Where 
Joint  Committees  exist,  they  wi  11  be  consulted  with  a  view  to 
developing  solutions  supported  by  as  broad  a  social  consensus  as 
that  arrangements  by  way  of 
possible. 
to  give 
col lectlve  agreement 
preference 
Is 
necessary  In  order  to  ensure  that  relevant  national  regulations 
are  amended, 
it  will  nevertheless  seek  to  base  the  substance  of 
Its  proposals  on  any  relevant  agreement  of  the  social  partners. 
This  approach 
In 
relation  to  the  Question  of  fl lght  time  I Imitation  in  the  clvl I 
aviation  sector,  a  matter  considered  further  below. 

it  wi  11 
to  such  solutions.  Where  Community 

seek 
legislation 

Is  currently  being 

for  example, 

feasible, 

fol lowed, 

are 

- 83  -

Access  to  the  professions  and  training 

260. 

in 
the  Treaty 
a I ready 

to  allow  workers 
liberty  under 
have 

In  order  to  facilitate  competition  between  transport  operators 
the  transport  sector  to  benefit  from 
and 
In  other  Member 
their 
States ,measures 
that 
ensure 
to 
qualifications  are  mutually  recognized  by  the  authorities  of  the 
In  many 
Member  States. 
transport  activities,  minimum  standards  have  been  established  to 
ensure  that 
transport  serv Ices  are 
those  engaged 
sufficiently  qualified  for  their  tasks. 

In  addition,  given 

the  risks  Inherent 

to  work 
taken 

In  prov id Ing 

been 

261.  A  beginning  was  made  with  the  adoption  of  measures  for  the  road 
haulage  and  passenger 
followed  by 
measures  applying  to  Inland  navlgatlonC50);  and  to  cockpit  crew 
Initiatives  are 
In 
already  under  consideration  In  this  field,  notably  In  relation  to 
flight  crew,  and  also  as  regards  qualifications  of  seafarers  In 
the  maritime  sector. 

the  field  of  civi I  aviatlonC51).  Further 

lndustrles< 49>.  This  was 

This 

dlplornasC52). 

262.  Parallel  to  these  measures  In  the  transport  field,  the  Community 
has  been  developing  Its  general  system  for  the  mutual  recognition 
of 
regulated 
professions  In  the  absence  of  specific  Community  measures  such  as 
those  on  cockp It  crew.  The  genera I  system  shou Id  permit  many 
prob I ems,  notab I y 
those  of  mutua I  recogn It Ion,  to  be  addressed 
without  the  need  for  further  legislative  provision  at  Community 
level.  However,  for  a  number  of  reasons,  the  general  system  will 
not  provide  a  complete  answer  to  all  the  problems  arising  In  the 
transport  sector. 

appl les 

system 

the 

to 

263. 

the 

Inherent 

In  particular,  as  explained  above, 
In 
risks 
to  pose  part lcular  problems  for 
transport  act lvlt les  cont lnue 
transport  authorities.  The  human  factor  Is  stl I I  Identified  as  a 
in  transport  accidents,  although 
significant  contributing  factor 
In  significantly  different  proportions  from  mode 
to  mode.  The 
improved  safety, 
Issue  of  raising  standards  In  the  Interests  of 
particularly  the  weaker  ones,  cannot  be  avoided  and  It  clearly 
makes  sense  for  any  such  activity  to  be  undertaken  at  Community 
level  so  that  new  standards  are  applied  In  a  coherent  manner  In 
all  Member  States,  necessary  allowance  being  made  for  the  time 
needed  to  implement  them. 

264. 

Indeed  h I gher  standards  are  not  on I y  needed  for  safety  reasons 
but  also  because  of  profound  adaptations  of  the  transport  sector 
associated  with  the  Important  changes  already  discussed  Including 
the  realisation  and  development  of  the  Internal  transport  market 
and  the  Integration  of  transport  systems  and  services.  To  meet 
the  challenge  of  sustainable  mobility  In  a  liberalised  Community 
wide  market,  transport  enterprises  will  have  to  adapt  themselves 
In  a  variety  of  ways,  for  example,  to  provide  efficient,  flexible 

(49) 

Reapectlvely.  Cowicll  Directive  74/561/EEC  of  12.11.74  (OJ  L  308  19.11.74.  p.  18)  aa  modified. 
a,d Couic II  DI rectl ve  74/562/FE.C  of  12. 11. 74  (OJ  L  308  19. 11. 74.  p.  23)  aa  mod If I ed. 
Couicll  Directive  87/540/f.EC  of  9.11.87  (OJ  L  322  12.11.87,  p.  20). 
Councll  Directive  91/fuO/f.EC  of  16.12.91  (OJ  L  373  31.12.91,  p.  12). 
Cowlcl I  DI rectlve 89/48/f.EC  of  21. 12.89  (OJ  L 19  24. 1 .89,  p.  16)  CCJ11> leted  by  Di rectlve 92/51/EEC  of 
18.8.92  (OJ  L  209  24. 7.92)/on  the  aecond  veneral  ayatem,  caning  Into  force  on  18.6.94.  In  the 
meantime,  Member  State• n,st  In  a,y  event  recognize  quol If lcatlona  on  the  basla  of  the  case  law  of 
the  Europea,  Court  of  Juatice. 

- 84  -

to  make 

It  more  difficult 

service  In  the  context  of  Increasingly  Integrated  systems  using 
advanced  technologies.  To  facllltate  this  process  of  adaptation, 
transport  author It ies  wl  11  need  to  address  the  quest Ion  of  the 
qualifications  and  training  needed  to  respond  to  this  challenge, 
not  least  In  the  case  of  smaller  transport  enterprises  which  will 
find 
In 
addition,  actions  should  be  taken  to  facilitate  the  retraining  of 
workers  affected  by  the  disappearance  of  certain  activities  and 
their  adaptation  to  new  technologies.  Many  of  the  actions  needed 
in  this  context  are  undoubtedly  best  taken  at  levels  other  than 
that  of  the  Community.  But  given  that  the  problem  is  shared  by 
all  Member  States,  if  In  different  degrees,  and  the  risks  that 
entirely  uncoordinated  actions  entail  for  the  proper  functioning 
of  the 
trans-European  networks, 
the  continued  development  of  a  Convnunity  framework  and  possibly 
accompanying  measures  are  clearly  Justified. 

I nterna I  transport  market  and 

the  necessary  changes. 

265.  As 

to  pr lor It I es, 

Industry 
suggests  that  action  Is  most  urgent  In  that  context,  as  confirmed 
by  recent  events  In  several  Member  States  Indicating  that  the 
current  situation  Is  giving  rise  to  unacceptable  stresses. 

the  structure  of  the  road  hau I age 

Living  and  working  conditions 

Working,  operating  and  other  times 

General 

In 

to 

raise 

they  work; 

times 
field  due 

issues  of  varying  complexity 

level  of  alertness  and  concentration  needed 

266.·  Rules  and  practices  concerning  working,  operating,  duty,  waiting 
the 
and 
rest 
the  particular  characteristics  of 
transport 
different  transport  activities.  The  mobility  of  many  transport 
workers  which  may  take  them  far  both  from  home  and  the  transport 
establ lshment  for  which 
length  of 
some  voyages; 
the  Irregular  nature  of  others;  the  particularly 
to  perform 
high 
certain  key  functions  are  some  of  the  Important  factors  which 
need  to  be 
time,  a  number  of 
pressing  considerations  have  led  policy  makers  to  regulate  these 
the 
matters.  Safety 
workers  themselves  has  been  a  prime  motivation.  The  elimination 
of  distortions  of  competitive  conditions  as  between  operators  has 
been  another,  while  those  countries  which  limit  working  time  as  a 
matter  of  principle  for  reasons  of  general  social  and  employment 
pot Icy  seek  to  apply  the  same  approach  to  the  transport  sector  In 
so  far  as  they  can. 

the  Interests  of  both  the  pub I le  and 

taken  Into  account.  At 

the  considerable 

the  same 

In 

267.  At 

In 

level, 

the  road 

the  Community 

transport  sector,  convnon 
ru I es  on  dr Iv Ing  hours  and  rest  per I ods  have  ex I sted  for  more 
than  20  years.  At  present,  Council  Regulations  (EEC)3820/85  on 
the  harmonisation  of  certain  social  legislation  relating  to  road 
road 
transportC53) 
transport<54)  contain 
this 
area. 

recording  equipment 
the  main  Convnunlty  provisions 

and  3821/85  on 

In 
In 

OJ  L 370,  31.12.85,  p.  1. 
OJ  L  370,  31.12.85,  p.  8. 

- 85  -

1988, 

88/599/EEC 

introduced 
some 
In 
Counci  I  Directive 
implemeniation  of 
standardisation  of  control  procedures  for  the 
there  is  evidence  that  observance 
these  two  measures.  However, 
in  those  States  where 
of  these  rules  is  far  from  adequate  even 
controls  are  relatively  strict,  while  the  frequency  and  intensity 
of  the  controls  vary  greatly  between  Member  States  as  does  the 
level  of  sanctions  imposed  on  offenders. 

268. 

In  other  sectors  the  Community  has  not  so  far  acted  legislation. 

269.  As 

railways,  working  conditions  are  defined  at 

the 
regards 
In  many  cases  the  national  railway  companies  are 
national  level. 
the 
authorized  to  define  such  rules  and  often  railwaymen  have 
status  of  civl I  servants,  pub I ic  employees.  Given 
the 
that 
and  also 
function  as  highly  structured  networks, 
railways 
normally  as  monopolies,  the  issue  of  working  and  other  times  has 
not  attracted  the  same  attention  as  it  has  in  the  road  sector  and 
a  need  for  any  specific  Community 
intervention  has  not  yet  been 
fe It. 

Inland  waterways 

270.  Under 

the  auspices  of  the  Central  Commission  for  Navigation  on 
the  Rhine,  rules  have  come 
into  force  on  maximum  working  hours 
for  crews.  For  Community  waterways  other  than  the  Rhine,  no  such 
rules  exist.  Operators  have  recently  expressed  interest  in  seeing 
uniform  rules  adopted  rather  than  a  patchwork  of  national  ones. 

C I v i I  a v i at ion 

271.  Work  and  rest  time  are  currently  governed  by  national  legislation 
on  collective  agreements.  The  provisions  vary  considerably 
between  Member  States  and  there  ex lsts  to  date  no  satisfactory 
international  arrangement.  The  Chicago  Convention  only  requires 
time  and  flight 
States  to  formulate  rules 
duty  periods  of  flight  crew  members  but  does  not  seek  to  set  any 
In  recent  years  this  Issue  has  emerged  as  a  matter  of 
standards. 
concern,  a  concern  no  doubt  stimulated  by 
the  new  competitive 
the  Ii bera I i sat ion  of  the  sector. 
pressures  being  generated  by 
This  has 
led  to  discussions  of  possible  initiatives  both  within 
the  Joint  Aviation  Authorities  and  the  Joint  Aviation  Committee. 

limiting  the  flight 

Maritime 

272. 

In 
the  maritime  sector,  specific  prob I ems  arise  because  of  the 
nature  of  the  activity,  particularly  the  length  of  many  voyages. 
legislation, 
The  matter  has  been  dealt  with  by  national 
collective  agreements  and  individual  employment  contracts  or  some 
International  Labour  Organisation 
combination  of 
conventlonC55)  failed  to  come 
into  force  due  to  an  insufficient 
number  of  ratifications. 

these.  An 

{SS) 

Convent ion  n • 109  of  1958. 

- 86  -

The  Community's  general  regime  on  working  time 

273. 

In  1990,  as  part  of  the  realisation  of  the  Social  Charter,  the 
Commission  proposed  the  adoption  of  a  directive  on  working  time 
for  all  economic  sectors  of  activity 
transportC56). 
Given  the  specific  problems  arising  in  the  field,  the  Councl  I  has 
Indicated  that  road,  air,  sea,  ral I  and  Inland  waterways  wl  II  be 
the 
excluded.  The  Commission  has 
the 
poss i b I I i ty 
different 
their 
particularities. 

it  reserves 
indicated 
to  present  proposa Is  as  soon  as  poss I b I e  for 
transport 

including 

sectors 

account 

taking 

that 

of 

Future  Community  initiatives 

274.  The 

issues  raised  by 

requirements  on  working  and  other 

times 
accordingly  need  to  be  examined  for  each  transport  sector.  Three 
main  aspects  must  be  taken  into  account:  the  specificity  of  each 
of  the  sectors,  the  Importance  of  safety  and  the  maintenance  of  a 
high  level  of  social  protection. 

275.  As  regards  the  road  sector,  both  the  structure  of  the  industry 
ineffectiveness  of  the  present  regime  on  driving  time 
and 
suggest  that  a  new  Community  approach  is  needed  as  a  matter  of 
urgency. 

the 

276.  The  industry  is  characterised  by 

low  barriers  to  entry  leading  to 
a  relatively  large  number  of  smal  I  operators  trading  alongside  a 
smaller  number  of  larger  ones.  The  I iberal isation  of  the  market 
at  a  time  when  a  general  decline  In  economic  growth  is  depressing 
demand 
is  raising  the  competitive  pressures  on  a I I  operators, 
particularly  the  smaller  ones,  whether  they  are  working  directly 
for 
their  own  clients  or  sub-contracting.  The  pressures  on 
operators  and  drivers  not  to  respect  driving  and  rest  times  has 
become  much  greater. 

277.  At 

the  same  time,  a  number  of  factors  can  be  Identified  wh I eh 
inadequacy  of  the  present  reglmeC57).  These  affect 

explain  the 
in  particular,  enforcement  of  the  rules. 

278.  First, 

In  order 

themselves. 

too  complex 

the  rules  are 
technology,  whether  by  control  authorities  or 

for  easy  appl  icatlon  with 
indeed 
current 
operators  or  drivers 
to  know  whether 
someone  can  drive  lawfully  it  may  be  necessary  to  consult  records 
going  back  seven  days  or  even 
the 
tachograph  discs  needs  considerable  expertise  and  experience  and 
this  lack  of  immediate  transparency  contributes  to  temptations  to 
manipulate  the  system.  A  simplification  of  the  rules,  combined 
with 
rapidly 
unambiguous,  secure  data,  would  constitute  a  considerable  step 
forward.  Such  a  development  would  be  further  enhanced  if  the  new 
to 
techno I ogy 
operators  and  drivers  al Ike. 

the  application  of  new 

lnterpretat ion  of 

to  provide 

i nf orma t  I on 

technology 

add It i ona I 

provided 

ser v Ice 

longer. 

and 

{56) 
(57) 

OJ  C  254,  9.10.90. 
Study  "Pour  &,ie  mei  I leure  mise  en  oeuvre  des  r~glements  sociaux  dons  le  danaine  des  transports 
par  route",  European  Institute  of  Public  Adninistration,  Moastricht,  2.12.87. 

- 87  -

279.  A  second  area  of  weakness  is  the  I imited  and  uneven  efforts  made 
by  competent  authorities  to  control  operators.  This  Is  In  part 
due  no  doubt 
to  the  comp I ex I ty  and  d If f i cu I ty  of  the  task  as 
to  ressource  constraints,  a 
explained  above. 
relatively  low  priority  given  to  the  activity  by  comparison  with 
other 
to 
confront 
the  economic  and  political  consequences  of  stricter 
enforcement  and,  In  some  cases,  lack  of  technical  capacity  In  the 
responsible  administrations. 

law  enforcement,  different  degrees  of  wi  I I lngness 

is  also  due 

It 

280.  The  prime  responslbl lity  for 

in 

add it Ion 

in 
than 

should  not 

seek 
th Is  area  as 

the 
to 
the  Community 

s imp I if i cat ion 
regime, 

I le  with  authorities  at  national  and 

local 
to  become  directly 
it  w i I I  not  be  ab I e 
the  authorities  at  national  or 

improving  enforcement  must  continue 
levels.  The 
to 
involved 
In 
Community 
to  act  more 
enforcement 
level. 
local 
effectively 
techn i ea I 
However, 
modernisation  of 
to 
contribute  indirectly  to  more  uniform  and  effective  enforcement 
include  actions 
regimes 
to  contro I 
to  br Ing 
approaches 
In  add it ion  to  harmon i sat ion  measures 
procedures  and  sanct ions. 
of 
focused  on  procedures  and 
though 
sanctions,  other  initiatives  might  also  be  taken,  for  example,  to 
In  common  training 
bring  together  national  officials  concerned 
programmes  or 
exchange  mechanism 
to  organise 
development  programmes  whereby  a  smal  I  group  of  selected  national 
Inspectors 
the 
Community. 

in  the  Member  States.  Initiatives  might 

could  disseminate  best  practice 

and 
it  may  be  able 

traditional 

throughout 

nat Iona I 

together 

through 

closer 

type, 

the 

an 

drivers, 

281.  The  Introduction  of  effective  control  procedures  in  relation  to 
driving  time,  particularly  necessary  for 
long  distance  Journeys 
and,  at  the  same  time,  the  clarification  of  rules  concerning  the 
duration  of  working  time  are  priority  tasks.  Given  the  mobility 
of 
considerable 
difficulties.  The  operation  of  the  vehicle  and  the  presence  of  a 
is  being  used  can  be  control led 
particular  driver  when 
the  case  at 
technically  and  much  more  effectively 
present. 
the  context  of  a  s imp I er 
regulation  on  driving  time, 
it  will  then  be  easier  to  evaluate 
how  best  to  approach  the  additional  dimension  of  working  time. 

If  this  can  be  achieved 

control I ing  working 

poses 

than 

time 

is 

it 

in 

Ra i I ways 

the  past, 

the  moves 
the  opening  of 

282.  While  there  has  been  no  pressing  need  for  action  in  this  sector 
in  some  Member 
to  new  operators  are 
railway  workers.  This 
the  need  for  a 
close 
in 
content, 
in  order  to  ensure  a 

In 
States  and 
changing 
evolution  calls  for  a  careful  examination  of 
its  possible 
Community 
consultation  with  concerned  organisations, 
high  level  of  social  protection. 

th~  economic  environment 

the  network 
for 

towards  privatisation 

initiative 

and 

- 88  -

C i Vi  I  av I at ion 

283.  Once 

the 

current 

Joint  Aviation 
discussions  within 
Authorities  and  the  Joint  Aviation  Committee,  have  produced  some 
conclusions  on  flight  and  working  time,  the  Commission,  also  In 
close  consultation  with  all 
the  organisations  concerned,  will 
decide  on  the  Initiatives  that  it  intends  to  take. 

the 

Maritime 

284. 

In  the  maritime  field,  discussions  will  be  undertaken  to  assess 
intervention  and  Its  possible  form  and 
the  need  for  Community 
content.  The  particular  characteristics  of  the  Industry  wl  I I  have 
to  be  fully  explored,  In  particular,  its  need  for  flex lb I I ity  to 
maintain  Its  competitiveness  with  third  country  operators  and  so 
sustain  a  high  level  of  employment. 

Working  conditions  :  occupational  safety  and  health 

285. 

to 

submitted  by 

the  Commission 

the  Counci 1(58). 

lntroduct Ion  of  measures  to  encourage 

Improvement  of  the  occupational  safety  and  health  conditions  in 
the  transport  sector  is  the  subject  of  a  proposal  for  a  directive 
to  be 
It 
prescribes  minimum  safety  and  health  requirements  for  transport 
activities  and  workplaces  on  means  of  transport. 
If  adopted  by 
the  Council,  this  directive,  along  with  the  general  Directive  on 
the 
the 
(89/391/EEC)C59),  wl  I I 
safety  and  health  of  workers  at  work 
consolidate 
the 
and 
is  foreseen  that  this  directive 
transport  sector  generally. 
will  apply  from  1995  to  new  vehicles  with  a  derogation  of  3  years 
for  old  ones 
the 
to 
complexity  of  Its  rules,  proper  enforcement  wi  11  be 
the  major 
priority.  A·  new  analysis  of  occupational  safety  and  health 
conditions  in  the  transport  sector  wi  I I  then  be  made  on  the  basis 
of  the  experience  provided  by  the  application  of  the  directive. 

the  prevailing  conditions 

this  extended 

timetable  and 

improvements 

improve 

due 

to 

in 

It 

In 

IV.2.f.3  TRANSPORT  FOR  PEOPLE  WITH  REDUCED  MOBILITY 

286. 

In  addition  to  policies  to  protect  and  promote  the  interests  of 
workers,  social  policy  also  includes  measures  in  favour  of  those 
with  reduced  mobi  I ity. 

287.  On  16  December  1991,  the  Council  adopted  a  Resolution  concerning 
a  Community  action  programme  on  the  accessibility  of  transport  to 
(OJ  C  68  of  16.3.91),  requesting 
persons  with  reduced  mobility 
a  Community  action  programme 
the  Commission 
formulate 
i nc I ud i ng  proposa Is  for  concrete  measures  des I gned 
Improve 
accessibility  to  al I  modes  of  pub I ic  transport  and  to  the  access 
points 
the  principle  of 
subsidiarity. 

thereto",  while 

into  account 

taking 

"to 

to 

doc  CXM(92)  XS4/3. 
OJEC  n•  L183  of  29  Ju,e  1989.  p. 1. 

- 89  -

288. 

local 

Initiatives 

regional  or 

in  this  area  can  be  better 

taken  at 
Indeed,  most 
national, 
level.  Cooperation  at  Community 
level,  as  wel  I  as  the  adopt ion  of  certain  common  standards  or 
improve 
accessibi I ity  to  transport,  could  nevertheless  help  to 
transport  conditions  for  people  with  reduced  mobi  I ity  as  actions 
within 
research 
programmes  are  already  demonstrating.  A  threefold  approach  wi  I I 
be  used  in  order  to  attain  this  objective  :  Community  cooperation 
them, 
on 
proposals  for 
research 
programmes  which  can  make  a  contribution  to  this  area. 

legislation  on  minimum  standards;  and 

information  programmes;  where 

the  Councl  I  asks  for 

telematics  and  TIME 

framework  of 

the 

the 

IV.2.f.4  PROTECTION  AND  PROMOTION  OF  EMPLOYMENT 

289. 

In  the  context  of  the  Community  policy  to  encourage  maintain  and 
the 
increase  the  Community  fleets  under  Member  States'  flags, 
Commission  has  elaborated  a  number  of  positive  measures  aiming  at 
both  restoring  the  competitive  position  of  the  Community  shipping 
industry  and 
increasing  employment  of  EEC  nationals.  The  main 
element  of  these  measures  is  the  creation  of  a  Community  register 
shipowners 
Euros  wh i eh  wou Id 
registering  their  ships 
in  this  register.  Specific  provisions 
have  also  been  proposed  reQuiring  that  all  officers  and  at  least 
ha If  of  the  rest  of  the  crew  members 
to  be  employed  on  Euros 
Is 
registered  vessels  should  be  EC  nationals.  The  Commission 
we 11  aware  of  the  prob I em  of  the  dee Ii n i ng  number  of  Commun I ty 
in  the  Community  fleets  and  has  put  it  as  a 
seafarers  employed 
priority 
taking  al I 
reverse 
ideas  in  the  context  of  its 
possible  actions  and  develop  further 
"positive  measures"  policy. 

this  negative  situation  by 

incentives 

provide 

for 

to 

to 

290.  As  regards  the  Community  inland  waterway  fleet,  the  Commission  is 
considering  measures  to  Improve  its  competitive  position  compared 
to 
its 
competitiveness  and  so  help  maintain  employment  in  the  sector. 

transport  modes.  These 

improve 

should 

other 

- 90  -

11.3  STRENGTHENING THE EXTERNAL 

D Il\lENS I ON OF THE  CTP 

- 91  -

IV.3.a 

THE  EXTERNAL  DIMENSION:  PROGRESS  TO  DATE 

the  outset  envisaged 

291.  Given  the  international  character  of  many  transport  activities, 
the  Community  Treaty  from 
the  CTP 
should  have  an  external  dimension.  The  progressive  completion 
of  the  internal  market 
in  transport  services  has  emphasised  the 
need  for  a  Community  approach  to  transport  relations  with  third 
the  Community's 
countries,  while  the  defence  and  promotion  of 
commerc i a I 
increasing I y  ea I I ed  for  common 
action.  Progress  in  the  realisation  of  these  objectives  has  been 
mixed. 

interests  have  a I so 

that 

292.  On  the  one  hand,  considerable  progress  has  been  achieved,  though 

more  in  some  areas  than  others. 

on 

and 

action 

countries 

third  countries 

third  countries, 

( EEC  Regu I at ion  954/79).  Then, 

international  facets  of  sea  transport  are  at  the  very  heart 
293.  The 
of 
to  now.  A 
the  Community's  shipping  po I icy  as  deve I oped  up 
consultation  procedure  on  relations  between  Member  States  and 
third 
In 
shipping  matters 
in 
in  1977  (EEC  Regulation 
international  organisations  was  adopted 
implemented  through  the 
In  1979  the  UN  Liner  Code  was 
587/77). 
Brusse Is  package 
in  1986,  four 
to  provide  services 
regu I at ions  were  adopted  covering  freedom 
(EEC  Regulation 
between  Member  States  and 
4055/86);  the  application  of  the  competition  rules  of  Articles  85 
and  86  to  maritime  transport,  a  matter  of  considerable  Importance 
to  shipping  relations  with 
in 
connection  with  the  functioning  of  conferences  (EEC  Regulation 
4056/86);  unfair  pr1c1ng  by 
(EEC 
Regulation  4057/86);  and  actions  of  third  countries  restricting 
access  to  cargoes  in  ocean  trades  (EEC  Regulation  4058/86).  The 
third  and  fourth  Lome  conventions  contained  specific  articles  on 
maritime  transport, 
the  harmonious 
in  part i cu I ar,  re I at i ng 
development  of  efficient  and  reliable  shipping  services  based  on 
the  pr lnciples  of  unrestr lcted  access  to  trade  on  a  commercial 
basis  at  competitive  rates.  Indeed  most  Community  association  and 
cooperation  agreements  contain  specific 
transport  provisions 
having  appl !cation  to  the  maritime  sector.  Provisions  range  from 
reference  to  cooperation  in  transport  to  specific  commitments  on 
to  provide  services  and  access  to  trade.  Finally  the 
freedom 
the 
EUROS  proposals 
Community's 
designed 
to  address 
primarl ly 
the  Community's 
fleets 
third  country  competitors, 
relation 
particularly  flags  of  convenience. 

have 
the  competitiveness  of 

sti II  under  active  consideration  by 

third  country 

institutions, 

for  example, 

legislative 

shipowners 

its  main 

been 

to 

to 

in 

294. 

the  field  of 

In 
inland  transport,  negotiations  on  transit  for 
heavy  goods  vehicles  were  successfully  completed 
in  1991  with 
though  of 
Yugoslavia  and 
course  the  former  agreement  has  not  had  a  chance  to  realise  its 
objectives. 
there,  new 
solutions  must  now  be  found. 

in  1992  with  Austria  and  Switzerland, 

the  political  situation 

In  view  of 

- 92  -

295. 

In  civil  aviation,  a  consultation  procedure  on  relations  between 
Member  States  and  third  countries  and  on  action  in  international 
the 
organizations  was  adopted 
recent 
Community's 
agreement  with  Sweden  and  Norway  extends 
existing  internal  regime  to  those  countries. 

In  1980.  Furthermore, 

the 

296.  More  generally, 

in 

the 

the 

preparation 

into  force  of 

legislation  on 

internal  market 

the  Community's 

the  agreement  on 

the 
the  entry 
In  pr lnciple  ensure  the  application 
European  Economic  Area  wi  11 
in 
of 
in  all  countries  concerned  and  wlll  ensure 
transport  services 
their 
new  Community 
Involvement 
legislation.  The  agreements  concluded  or  being  negotiated  with 
the  countries  of  Eastern  and  Central  Europe  establish  transport 
as  one  of 
further  cooperation.  The  Pan 
European  Transport  Conference  In  Prague,  organised  Jointly  by  the 
Comm i ss I on 
1991, 
underlined  the  need  for  concerted  action  in  the  broader  Europe 
to  the  integration  of  its  transport  markets  and  the 
with  a  view 
networks. 
development 
the 
of 
Transport  has  also  emerged  as  one  of 
the 
in 
various  assistance  programmes  for  these  countries,  for  example, 
PHARE  and  TAc1s(60). 

the  European  Par I I ament 

the  main  areas 

trans-European 

corresponding 

in  October 

the  main 

themes 

and 

for 

of 

297.  Progress  has  also  been  made  in  developing  the  Community's  role  in 
international  organisations  and  the  multilateral  agreements  for 
Important  examples  are  the  European 
which  they  are  responsible. 
in  the  UN  framework, 
Conference  of  Ministers  of  Transport  and, 
the  Economic  Commission 
the  working 
arrangements  established  with  both  organizations,  the  Community 
has  carried  out  a  satisfactory  dialogue  with  third  countries. 
In 
the  GATT  context,  the  Commission  Is  negotiating  on  behalf  of  the 
Commun I ty  and  its  Member  States  the  poss i b I e 
I i bera Ii sat Ion  of 
important  aspects  of  trade  in  transport  services  In  the  context 
of  the  Uruguay  Round. 

Europe.  Under 

for 

IV.3.b 

CURRENT  PROBLEMS 

298.  A number  of  important  problems  remain  to  be  solved. 

299.  First, 

the  Member  States  have  over  a  period  of  many  years 
developed  a  system  of  bilateral  agreements  with  third  countries 
transport  relations.  These  agreements  deal  with  a 
regulating 
who I e 
issues  such  as  market  access , 
Including  access  of  third  country  operators  to  the  Community's 
Internal  market.  Little  progress  has  been  made  in  replacing  these 
the 
b 11 atera I  arrangements  with  appropriate  agreements  between 
Community  and  the  third  countries  concerned. 

range  of  v I ta I  econom I c 

(60) 

transport  sector.  A  large 
50  ~aJ  have  been  cannltted  by 
CCJ11)onent  of  TACIS  1991  progrcmne  la  In  the  field  of  transport  to  which  53.S  ~aJ were  ccmnitted. 

the  1992  A-WE  progrcmne 

the 

In 

- 93  -

300.  Moreover,  most  of 

the  exist Ing  b I I a ter a I  agreements  on 

Issues 
I Ike  market  access  have  been  cone I uded  by  Member  States  on  a 
basis  of  reciprocity  and  often  Include  nationality  clauses  which 
require  private  parties  to  violate  the  Community's  competition 
and  uniform 
rules  or  are  otherwise 
appllcatlon  of  Convnunlty 
to 
Convnunlty 
the  prlnclple  of  non 
law 
discrimination  on  grounds  of  natlonallty  and  llmlt  the  scope  of 
the  I nterna I  market 
transport  serv Ices.  They  are  a I so  not 
to  the  econom I c  eff I c I ency  of  transport  operat Ions. 
conduc I ve 
These 
amended  or 
It  may  well  be  the  case  that  such  action 
terminated.  However, 
wlll  have  commercial 
lmpllcatlons  and  wlll  therefore  need  to  be 
addressed  by  the  Community. 

Incompatible  with 
law.  Such  clauses  are  contrary 

therefore,  wlll 

they  violate 

agreements, 

to  be 

since 

have 

full 

In 

this  area  and  continued 

301.  Member  States  have  resisted  the  exercise  of  Community  competence 
to  negotiate  new  and  modified 
In 
agreements  In  violation  of  Community  law.  They  have  done  so  even 
In  situations  where  the  Commission  has  already  seized  the  councl I 
of  the  problem,  for  example, 
in  the  field  of  inland  navigation. 
By  continuing  to  act  separately,  they  have  not  merely  failed  to 
exploit  the  bargaining  power  of  the  Community  but  have  al lowed 
s I tuat Ions 
in  wh I eh  some  third  count r I es  have  been 
allowed  to  divide  and  rule.  This  Is  perhaps  best  exemplified  by 
the  route  maps  in  Annex  I I  Indicating  the  different  ways  In  which 
US  and  Community  air  carriers  have·  been  al lowed 
to  develop 
traffic-generating  networks  on  either  side  of  the  Atlantic. 

to  develop 

IMO  and 

that  work 

in  some 
to  develop 

International  organisations, 
the  Community's  role, 

It  has  proved 
302.  Likewise, 
difficult 
the  dlfflcultles 
varying  depending  on  the  organisational  context.  For  example,  In 
ICAO,  Member  States  have  on  occasion  resisted  the 
the 
the  Community's  current  status  as  an 
natural  development  of 
observer  to  keep  pace  with  developing  Community  competence.  This 
has  led  to  friction  and  made  It  difficult  for  the  Commission  to 
ensure 
account  of 
developments  in  the  Convnunlty.  This  Is  all  the  more  serious  In 
areas  Ii Ice  mar It lme  safety  where  a  consensus  exists  that 
the 
the  ma In, 
I nternat Iona I  Mar It lme  Organ I zat Ion  CIMO)  shou Id  be 
even  almost  exclusive 
level  of 
the 
forum 
transport  operations, 
to  cross-frontier 
regulation 
Including  those  between  the  Member  States.  Given  the  Important 
role  of  IMO  worldwide  on  maritime  safety,  arrangements  have  to  be 
found  which  permit  the  Community's  Institutions  to  participate 
the 
In  setting  standards  having  a  direct  effect  on 
fully 
functioning  of  the  Internal  market  and  the  safety  of  ships  within 
the  Community. 

for  establishing 

takes  proper 

to  apply 

those 

fora 

In 

- 94  -

Internal 

llberallsatlon.  This  applies 

303.  As  a  consequence  of  these  difficulties,  the  full  effect  of  CTP 
Instruments  Is  limited  by  the  absence  of  a  parallel  and  coherent 
development  of  the  external  dimension  of  the  Convnunlty's  policy 
transport 
of 
the  mar It lme 
sectors  but  It  has  been  part I cu I ar I y  obv lous 
sector  where 
to 
International  trades  has  yet  to  be  fully  achieved.  While  a  more 
stringent  application  of  Community  competition  rules  to  this  end 
may  be  able  to  compensate  to  some  extent,  It  needs  In  any  case  to 
be  complemented  by  complementary  action  In  the  field  of  external 
relations  If  It  Is  to  be  truly  effective  and  avoid  creating  undue 
friction  with  the  third  countries  concerned. 

the  basic  objective  of 

freedom  of  access 

to  all 
In 

304.  Finally,  the  entry  Into  force  of  the  EEA  agreement  may 

In  some 
cases  require,  If  not  the  harmonisation  of  existing  policies  of 
the  different  EEA  partners,  at  least  some  coordination  with  that 
of  the  Community.  Should  the  need  arise  In  the  transport  field, 
It  will  be  the  easier  to  meet  to  the  extent  that  the  Community 
will  have  already  prepared,  or  at 
least  begun  effectively  to 
prepare,  a  clear  policy  as  to  Its  external  regime. 

IV.3.c 

cot&fUNITY  POWERS  IN  THE  EXTERNAL  FIELD 

305.  The  Court  of  Just Ice  (Case  1/78)  has  held  that 

the  not Ion  of 
"convnerclal  policy"  referred  to  In  Article  113  of  the  Treaty  Is  a 
dynamic  one  and  follows  developments  In  International  tradeC61}. 
The  Commission  has  accordingly  concluded  that  measures  concerning 
trade  In  services  form  part  of  commercial  policy  and  therefore 
fall  under  Article  113  of  the  Treaty.  Consequently,  It  concluded 
that  the  Community  has  exclusive  competence  to  conclude  bi lateral 
or  multilateral  commercial  agreements  on  services.  and  notably  on 
Include  rules  on  market  access  and  capacity, 
transport 
that 
these 
tariffs  or  other  measures  accompanying 
traffic  rights. 
rules.  This 
recent 
advocated 
proposals  to  the  Councl  I  and 
Is  consistent  with  that  already 
taken  within  the  framework  of  the  Uruguay  Round. 

the  approach 

Indeed, 

Is 

In 

306.  Earlier 

rules 

common 

Internal 

to  exercise 

the  Community  had  begun 

Its  external 
competence  based  on  Articles  61,75  and  84  §  2  of  the  Treaty. 
In  Case  22/70  that  as  the 
The  European  Court  of  Just Ice  he Id 
It  also  acquires 
Community  develops 
authority  over  external  negotiations  which  might  affect 
these 
common  rules  (ERTA  doctrlne)C62>.  Later,  case  1/76  of  the  Court 
of  Justice  constituted  an  Important  step  In  the  definition  of  the 
external  powers  of  the  Community,  declaring  that  if  the  Community 
has  an  Internal  competence  to  achieve  a  specific  objective,  It 
lmpllcltly  disposes  of  the  exclusive  external  competence  on  that 
subject  as  far  as  such  an  externa I  exercise 
to 
leglslatlon 
achieve 
adopted 
the 
Community  an 
In  accordance  with  the 
ERTA  doctrine  for  agreements  which  are  not  related  to  trade  In 
serv Ices.  and  are  therefore  not  covered  by  Art I c I e  113  of  the 
Treaty,  and  are  not  ancl I lary  to  a  convnerclal  agreement. 

objectlveC63).  Accordingly, 
Internal 

the 
transport  market  gives 

Important  exclusive  power 

is  necessary 

to  complete 

that 

the 

on  the  International  Rubber  Agreement)  [1979)  ECR  2871. 

Cose  1 
Cannfaalon  v.  Cowecf I,  Case  ~ [1971)  ECR  263. 
Coae  1/76  (on  the  Agreement  eatabl lahfng  a  European  laylng--14)  fund  for  Inland  waterway  vesaela) 
[1976)  E~ 741. 

- 95  -

307.  However,  not  all  agreements  with  a  third  country  In  the  field  of 
transport  should  be  considered  as  fal I Ing  ent I rely  within  the 
scope  of  trade  in  transport  services  or  affecting  the  functioning 
of  the  internal  market  within  the  ERTA  doctrine.  Such  agreements 
may  still  be  concluded  by  the  Member  States. 

308.  FI na 11 y,  even  where 

the  Convnun I ty  has  an  exc I us I ve  power, 
certa In  c I rcumstances,  Member  States  can  be  author I sed  by 
Council 
number  of  Judgements  has  set  out 
procedure<64>. 

In 
the 
In  a 
the  principles  for  such  a 

to  negotiate  bilaterally.  The  Court  of  Justice 

309.  These  principles  have  not  so  far  been  recognised  by  the  Member 
States.  However,  the  adoption  of  Council  measures  completing  the 
Internal  market  In  transport  services  wlll,  It  is  hoped,  produce 
a  significant  evolution 
the 
In  any  event 
to  continue.  Transport 
present  situation  cannot  be  allowed 
relations  with  third  countries  should  be  conducted  only  within  a 
Convnunlty  framework  In  full  accordance  with  the  Treaty. 

the  debate.  But 

in 

IV.3.d 

NEW  APPROACH;  PRIORITIES 

310.  The  completion  of  the  single  market  and  the  establishment  of  the 
EEA,  continuing  growth  In  the  International  mobl  I lty  of  goods  and 
peop I e,  recent  changes 
the 
Increasing  Interdependence  In  world  trade  and  services,  call  for 
the  development  of  a  new  approach  to  the  external  dimension  of 
the  CTP. 

In  Eastern  and  Centra I  Europe  and 

311.  The  main 

In 

approach 

components 

should  be 

the 
this  new 
progressive  transformation  of  existing  bilateral  regimes  so  that 
they  fit  Into  the  new  European  order  and  the  Internal  market  by 
means  of  a  framework  of  Convnuntty  agreements  and  procedures;  the 
development  of  a  global  approach  to  the  transport  services  and 
systems  of  Europe, 
Including  those  of  the  EEA  and  Eastern  and 
Central  Europe,  so  that  they  can  develop  In  as  Integrated  a  way 
as  possible  across  the  continent;  and  the  reinforcement  of  the 
Community's  role  within  relevant  International  organisations  to 
reflect  the  full  development  of  the  CTP. 

Progressive  transformation  of  bi lateral  regimes. 

General  Principles 

312.  First,  It  Is  important  that  Member  states  inform  the  Convnlssion 
adequate I y  of  agreements 
to 
negotiate  new  agreements  or  modifications  to  existing  ones.  Such 
ef feet I ve 
for 
I nformat Ion 
machinery,  beginning  with  consultations  between 
the  Commission 
the  Member  States,  to  ensure  that  Convnun I ty  competence  Is 
and 
the 
respected  and 

the  most  appropriate  solutions 

force  and  of 

prerequ Is I te 

essent I a I 

Intent Ion 

found 

the I r 

the 

for 

Is 

In 

(64) 

Citation•  of  Donckerwolke,  Tezl,  Bulk  011 

- 96  -

types 

different 
arise.  Existing 
Instruments,  In  particular  Counci  I  Decisions  69/494,  77/587  and 
80/50  have  not  proved  adequate  in  this  regard. 
It  Is  accordingly 
Important  that  they  be  modified  as  quickly  as  possible. 

problem 

wl  I I 

that 

of 

313.  Second,  as  regards  matters  fal I Ing  within 

the  powers  of 
in 

the 
Convnunlty,  a  Member  State  will  have  to  be  authorised, 
the 
context  of  a  transltlonal  regime,  by  a  Council  decision  based  on 
a  Convnlssion  proposal,  to  negotiate  an  agreement.  A coordination 
procedure  will  be  essential 
and  conditions  might  also  be 
necessary  going  beyond  the  communication  of  the  result.  These 
might  relate  for  example  to  the  content  of  the  agreement  to  be 
negotiated, 
In  part lcular,  to  take  account  of  the  Interests  of 
other  Member  States  and  el lmlnate  existing  lncompatlbll itles  with 
Community  law  Including  discrimination  on  grounds  of  national lty. 

314.  Third, 

In  those  areas  In  which  the  Community  should  negotiate, 
pr act Ices  may  need  to  be  deve I oped  In  specific  cases  to  ensure 
the  close  Involvement  of  the  Member  States  in  the  process  and  the 
association  of  relevant  Interest  groups. 

315.  Fourth,  attention  also  needs 

to  be  given 

the  sensitive 
question  of  how  the  Convnunity  should  deal  with  the  allocation  of 
traffic  rights  to  different  operators  In  situations  where  access 
restrictions. 
to 
Mechanisms  wi  II  need 
to 
existing  rights  while  at  the  same  time  taking  Into  account  the 
proper  functioning  of  the  Internal  market. 

found  which  give  due  weight 

relevant  market  will 

subject 

to  be 

the 

to 

to 

be 

316.  These  general  principles  are  being  applied  within  the  context  of 
Initiatives  relating  to  different  priorities,  taking  Into  account 
the  complexity  and  variety  of 
technical 
characteristics  of  the  different  transport  sectors. 

the  economic  and 

Priorities 

317. 

318. 

In  addition  to  work  on  Initiatives  already  taken  In  the  field  of 
inland  navigation  and  road  transport  In  Europe,  efforts  wlll  need 
to  be  concentrated  on  key  Issues  In  the  field  of  civil  aviation 
and  shipping.  Maritime  transport  is  fundamentally  a  world  market 
and  any  ambitious  air  carrier  must  have  a  global  strategy.  The 
CTP  should  accordingly  support  Community  operators  through  the 
definition  and  Implementation  of  shipping  and  aviation  policies 
transport 
capable  of  keeping 
markets. 

the  Community  competitive 

in 

for 

reasons 

aviation, 

In 
detail 
elsewhere,C65)  attention  should  be  concentrated  on  relations 
w Ith  the  US,  Japan  and  Eastern  and  Centra I  Europe.  As  regards 
the  first  two  countries,  there  are  clear 
lack 
of  a  Community 
to  unfavourable  negotiating 
results.  Also  these  markets  are  strategic  sectors  of  the  global 

indications  that 

explained 

approach 

greater 

leads 

In 

(65) 

Camn.11 icot ion  to  the  Counei I  on  Air  Transport  re lotion•  with  third  cOW1triea. 

- 97  -

aviation  market 
in  which  it  is  essential  that  Community  carriers 
have  full  opportunity  to  compete  with  their  principal  rivals. 
Eastern  and  Central  Europe  including  the  countries  of  the  former 
Soviet  Union  and  countries  formerly  part  of  Yugoslavia  demand 
attention  for  reasons  explained  below. 

to  be  monitored  and, 

longer  term.  Developments 

319.  Other  probable  Initiatives  will  need  to  be  studied  for  possible 
in  South  East 
action  probably  In  the 
Asia  and  South  America  wll I  have 
if 
necessary,  explor·atory  discussions  might  be  begun.  Protectionist 
aviation  policies  in  the  various  African  States  have  been  applied 
not  only  to  European  countries  but  also  in  their  relations  with 
one  another.  African  countries  as  a  whole  are  still  convnltted  to 
such  policies  but  it  is  possible  that  in  some  cases  a  willingness 
the 
to  develop  closer 
further 
Community  might 
exploration.  This  applies,  for  example,  to  the  Magreb  countries 
(Morocco,  Algeria,  Tunisia) 
the  Air  Africa  member 
and 
countriesC66). 

to  opportunities 

relations  with 

trade  and 

requiring 

transport 

lead 

to 

320.  Finally  attention 

to 

should  be  given 

the  possibi I lty  of 
negotiating  a  multi lateral  air  cargo  agreement. 
In  this  sector, 
the  European  market  is  basically  open  to  third  country  operators. 
industry  as  a 
As  restr i et ions  are  not 
whole, 
for  Community  cargo 
carriers  to  other  markets  has  to  be  given  serious  consideration. 
Amongst  other  benefits,  a  multilateral  air  cargo  agreement  can 
act  as  a  catalyst  for  bringing  about  further  arrangements  of  this 
kind  in  other  areas  of  civi I  aviation. 

the  option  of  negotiating  access 

interest  of  the 

the 

in 

321. 

to  maritime 

In  shipping,  It  is  fundamental  that  the  Community  follows  up  the 
implementation  of  the  1986  package,  aiming  at  implementing  non 
protectionist  policies  in  world  shipping  and  at  extending  as  much 
as  possible 
the  application  of  market 
economy  rules. 
It  has  to  be  emphas'lzed  that  contrary  to  air 
transport,  which  Is  governed  by  a  network  of  bilateral  agreements 
Is  baslcal ly  an  open 
traffic  rights,  maritime 
on 
act Iv I ty  where  access  to  the 
Is  free  for 
everybody.  The  need 
for  bilateral  agreements  on  commercial 
matters  is  therefore  the  exception  and  not  the  rule. 

transport 
i nternat Iona I  market 

transport 

some 

322.  The  openness  of  the  maritime  transport  market  Is  however 

existing  bilateral 
cargo 

limited 
cargo-sharing 
by 
provisions;  by 
reservation  policies  of  a  number  of 
countries,  mainly  developing  countries  and  by  restrictive  or 
protectionist  policy 
related  activities  by 
shipping  and 
In 
certain  third  countries. 

agreements  with 

(66} 

Benin.  Burkina  Fosso.  CAR.  Chad.  Congo.  Ivory  Coast.  Mauritania,  Niger.  Senegal  md  Togo. 

- 98  -

323. 

third  countries 

In  order  to  resolve  these  problems,  It  wll I  be  necessary  first  to 
ensure  the  proper  implementation  of  Regulation  4055/86  on  freedom 
to  provide  maritime  transport  services  between  Member  States  and 
Member  States  and  third  countries.  Second,  It  will  be  necessary 
to  consider  how  the  Community  should  now  develop  Its  relations 
with 
the  maritime  field.  The  Commission 
Intends  to  present  a  communication  on  this  subject  In  the  near 
the  1986 
taking  account  of  exper fences  gained  under 
future, 
Regulations  and  developments  In  the  Uruguay  Round.  As  far  as  the 
developing  countries  are  concerned,  the  Community  wl  11  have  to 
continue  to  use,  on  the  one  hand,  the  Lome  Convention  provisions 
and,  on  the  other  hand,  the  cooperation  agreements  to  ensure  a 
degree  of  convergence  In  shipping  policies  and  help  them  develop 
commercially  competitive  shipping  services. 

in 

IV. 3. e 

A  GLOBAL  APPROACH  TO  THE  TRANSPORT  SERVICES  AND  SYSTEMS  OF 
EUROPE 

324.  The  Prague  Declarat Ion  adopted  by 

In  1991 

emphasized 

the  Pan  European  Transport 
the  necessity  of  developing 
Conference 
transport  networks  on  a  truly  European  scale  and  of  Integrating 
the  greater  European  transport  market.  Measures  already  taken, 
such  as 
transit  agreements  with 
Switzerland  and  Austria,  now  need  to  be  complemented  by  other 
to  the 
measures.  These  are  needed 
countries  of  Eastern  and  Central  Europe 
Including  the  CIS  and 
countries  formerly  part  of  Yugoslavia. 

the  EEA  agreement  and 

In  part lcular 

In  relat Ion 

the 

325.  Polltlcal  developments 

in  Eastern  and  Central  Europe  made 
possible  the  negotiation  of  association  agreements  with  Poland, 
Hungary  and  Czechoslovakia  thus  establishing  an  initial  framework 
for  cooperation  on  transport  Issues.  Specific  agreements  are  now 
needed  to  give  effect  to  this  objective.  These  agreements  wlll 
aim  at  finding  mutually  satisfactory  ways  to  apply  the  principle 
of  freedom 
to  provide  services  and  at  Introducing  progressive 
liberalisation  of  markets  taking  Into  account  the  progress  made 
by  these  countries  In  transport  sector  restructuring  along  market 
the 
principles.  Of 
Infrastructure  field 
the 
compat I b 111 ty,  Interconnect Ion  and  I nteroperab 11  I ty  of  European 
transport  systems  taken  as  a  whole. 

in  particular, 

cooperation 

to  promote 

Importance 

in  order, 

equal 

Is 

In 

326.  European  agreements  now  being  negotiated  with  Bulgaria  and 
Romania  will  provide  a  good 
In 
transport  matters  and  help  them  to  restructure  their  transport 
systems  along  market  economy  prlnclples.  Cooperation  will  Inter 
alla,  Include  the  development  of  alternative  transit  routes  to 
llnk  Greece  with  other  Community  countries. 

for  cooperation 

framework 

327.  Trade  and  cooperation  agreements  with 

the  Baltic  States  and 
Albania  have  been  concluded  thus  establ lshlng  a  framework  for 
transport  cooperation.  Attention  will  be  given  to  helping  them 
to  reinforce  their  transport  I Inks  with  the  Community. 

- 99  -

recognised 

countr les  contractual 
in  particular 

328.  The  break-up  of  Yugoslavia  created  the  need  to  establish  with  the 
I Inks  deal Ing  with 
newly 
transport  matters, 
to 
avoid  isolating  Member  States  or  hindering  the  development  of  a 
balanced  network  in  the  Balkan  region.  The  [Imminent]  conclusion 
by  the  Community  of  a  transit  agreement  with  Slovenia  would  be  a 
that  political 
first  step 
the  transit 
In 
evolut Ion 
arrangements 
the 
In 
agreement  signed  In  June  1991  with  Yugoslavia. 

the  region  wl  11  al low  rebul I ding  of 
that  were  negotiated  and 

that  direction  with 

inland  transit, 

incorporated 

the  hope 

in  order 

In 

329.  With  regard  to  Russia  and  other  countries  of  the  former  Soviet 
Union,  cooperation  In  the  field  of  transport  will  develop  In  the 
framework  of  the  new  agreements  which  will  be  negotiated  In  the 
near  future  by  the  Community  and  the  new  republics.  Objectives 
of  this  cooperation  will  be  to  assist  them  to  Introduce  market 
economy  structures  in  transport  operations  and  to  modernise  their 
transport  infrastructure  in  ways  which  promote  Its  compatlblllty, 
Interconnection  and  lnteroperabl I lty  with  Community  systems. 

IV.3.f 

INTERNATIONAL  ORGANISATIONS  AND  MULTILATERAL  CONVENTIONS 

330.  At  present,  the  Community  holds  only  observer  status  In  major 
International  organisations  dealing  with  transport  and  there  are 
only  a  few  multilateral  agreements  to  which  the  Community  Is  a 
party.  The  completion  of  the  Internal  market  and  the  development 
of  a  global  CTP  having  as  Its  object lve  sustainable  mob I I lty 
constitute  Important  developments  which  raise  the  question  of  the 
those  organisations  and 
Communlty•s  status 
conventions.  A 
the  different 
each 
situations  Is  required  In  order  to  evaluate  the  need  for  change 
which  In  some  cases  may  call  for  the  Community  to  seek  membership 
of  the  organisations  as  has  recently  occurred  In  other  fields, 
the  FAO.  Similar  conslderat Ions 
for  example, 
apply  to  multilateral  conventions  dealing  with  matters  falling 
within  the  scope  of  the  CTP.  The  Community  may  need  to  become  a 
full  party  to  such  arrangements  as  It  already  has  In  the  case  of 
the  ASOR  AgreementC67). 

re-examination  of 

the  case  of 

relation 

of 

to 

In 

In 

331.  The  opportunity  should  also  be 

the  broader  European 
context,  of  re-evaluating  the  respective  roles  of  the  different 
structures  dealing  with  transport  issues:  the  EEA,  the  ECMT,  the 
to 
ECE,  ECAC,  Eurocontrol  and  JAA.  The  objective  should  be 
define  the  different  roles  In  such  a  way 
that  dupl lcatlon  of 
effort  Is  avoided  and  maximum  synergy  achieved. 

taken, 

In 

(67) 

Agreement  on  the  International  carriage  of  Pasaengera  by  Road  by  means  of  occoalonol  coach  and  bus 
services. 

- 100  -

IV.  CCI.UUNITY POLICIES AND  PRIORITIES I 

- 101  -

V. 1 

THE  ACT I ON  PROGRAMME 

332. 

In  the  light  of  the  above  analysis,  an  action  programme  for  the 
further  development  of  the  CTP  should  have  five  main  components: 
the  development  and 
transport 
systems  on  the  basis  of  the  internal  market;  safety;  environment 
protection;  a  social  dimension;  and  external  relations.  The  main 
two  years  (1993-
actions  which  should  be 
1994)  are 
those 
lists  also 
measures  called  for  as  a  result  of  legislation  already  adopted. 

the  next 
Ill.  This  Annex 

the  Community's 

integration  of 

in  Annex 

launched 

listed 

in 

t i me  new 

333.  The  programme  does  not  claim  to  be  definitive.  Over  such  a  period 
of 
issues  may  emerge  and  pr i or it I es  may  change.  The 
action  programme  is  not  Intended  to  be  a  rigid  prescription  but 
to  give  concrete  expression  to  the  main  policy  I ines  that  the 
increase 
Commission  now  Intends  to  pursue.  Such  an  approach  wi  II 
the  overall  coherence  of  the  development  of 
It  will 
the  CTP. 
the  necessary  pol ltical 
thereby  assist 
the 
consensus 
the  Community's 
legislative  institutions,  not  least  as  regards  the  appl icatlon  of 
the  subsidiarity  principle  as  described 
I I I.  The 
Commission 
intends  to  update  the  action  programme  regularly  at 
the  time  when  it  adopts  its  legislative  programme  for  the  coming 
it 
year.  By  giving 
intends 
to  establish  and  maintain 
consensus  on  the  CTP's  objectives  and  priorities. 

the  act ion  programme  a  rol I ing  character, 

for  effective  decision  making  by 

formation  of 

to  reinforce 

its  capacity 

in  Chapter 

in 

too 

long  even 

334.  A detailed  Justification  of  each  of  the  individual  measures  would 
make  this  paper  far 
it  were  feas i b I e  at  the 
present  time  which  is  not  always  the  case.  For  this  reason  this 
chapter  seeks  only 
issues, 
complementing  explanations  already  given  in  other  chapters,  while 
leaving  detailed  analysis  and  explanation  to  other  communications 
some  of  wh i eh  are  a I ready  ava i I ab I e  or 
in  preparation  such  as 
those  on  road  and  maritime  safety  or  external  relations  in  civil 
aviation. 

to  deal  concisely  with 

the  key 

if 

The  development  and  Integration  of  the  eommunlty•s  transport  systems 

335.  This  component  breaks  down 

economic 
research  and  development  and  trans-European  networks. 

regulatory 

and 

into  four  main  sub-components 
framework, 

:  the 
technical  harmonisation, 

- 102  -

V.1.a 

THE  ECONOMIC  AND  REGULATORY  FRAMEWORK 

336. 

In  addition  to  future  legislative  activity  called  for  as  a  result 
of  existing  internal  market  legislation  in  the  field  of  freedom 
further  measures  of 
to  provide 
liberalisation  and  harmonisation  are  necessary 
in  relation  to  a 
number  of  activities. 

( see  eh. 

services 

IV. 1), 

337. 

In  the  road  transport  sector,  present  restrictions  on  access  to 
the  market  of  own  account  transport  services  and  on  the  rental  of 
goods  vehicles  and  buses  should  to  be  abolished. 

338.  Extending  the  definition  of  own  account  transport 

in 
Regu I at ion  881 /92  to  cover  subsidiaries  and  ho Id i ng  compan I es 
w i 11  enab I e  own  account  operators  to  organise  the I r  activities 
more  efficiently  and  reduce  empty  running. 

laid  down 

transport 

operations.  Existing 

in  practice  the  hire  of  vehicles 

339.  As  to  the  liberalisation  of  vehicle  hire,  proposals  wi  II  be  made 
the  rental  of  goods  vehicles  for 
to  Improve  the  conditions  for 
restrictions 
international 
in  other  Member 
prohibiting 
States,  such  as  provisions 
the  vehicles  hired  must  be 
that 
registered  in  compliance  with  the  law  of  the  Member  State  of  the 
to  be  done  away  with.  Similar 
hiring  companies,  wi  I I  have 
proposals  are  envisaged  for  the  hire  of  buses  and  coaches.  These 
measures  would  al low  operators  to  accommodate  the  expected  growth 
In  International  passenger  transport  services  while  permitting  a 
more  rational  use  of  factors  of  production  avoiding  unnecessary 
capital  investment. 

340.  As 

the 

regards 

I lberal isation 

taxi  services,  prior I ty  shou Id  be  given 

those 
markets  In  which  there  is  real  potential  for  economic  gains  such 
as 
services, 
particularly  in  frontier  regions.  At  present  national  and  local 
restrictions  frequently  oblige  operators  to  run  empty  when  they 
return 
could  be  providing  a  useful  service, 
Journeys. 

for  example,  on 

international 

taxi 

of 

to 

341.  However, 

to  see  how 

I iberal isat ion  measures  might  assist 

local  geography.  An 
imposed  on 

through 
the  liberalisation  of  the  trade,  for  example, 
the  general  opening  of  cabotage,  would  need  to  take  into  account 
the  requirement  for  taxi  drivers  to  be  fully  aware  of  the  detai Is 
examination  of 
of 
the  conditions  and 
taxi  services  might  nevertheless  be 
restrictions 
in  the 
useful 
development  of  a  new  type  of  service  as  an  alternative  to  the  use 
of  the  private  car  or  the  usual,  "one  client  at  a 
taxi 
telematic 
service.  Flexible  minibus 
services,  using  modern 
to  make  a  new 
technology,  might  enable 
contribution  to  urban  and  rural  transport,  including  the  service 
and  Interconnection  of  terminals  in  trans-European  networks  such 
legislative 
as  high  speed  train  stations  and  airports.  Whether 
It  is 
intervention  to  this  end  is  needed  is  at  present  unclear. 
possible  that  other  forms  of  initiative  would  be  as  effective, 
for  example,  actions 
the  research  and  development  field  or 
non-binding  policy  instruments. 

the  multicl lent 

time" 

taxi 

in 

- 103  -

342.  Finally,  problems  related  to  certain  specialised 

inter.national 
transport  operations  and  services  such  as  security  transport  and 
to  raise  transport  policy  quest ions. 
ambulances  do  not  appear 
recogn it I on  of 
They  main I y 
qualifications  not 
and 
transport, 
related 
is  also  not 
official  approval  of  equipment  much  of  which 
transport  related.  They  are 
the 
Commission  in  the  context  of  Article  59. 

concern  pub I I c  order,  mutua I 
in 

therefore  being  examined  by 

to  expertise 

343. 

indicated,  further  action 
I iberal isation  agreed 

the  rail  sector,  as  already 
to  the 

is 
In 
the 
desirable  to  give  effect 
in  particular,  the  establishment 
context  of  the  1992  programme, 
of  er i ter i a  for  access  to  and  charging  for 
infrastructure  and 
also  for  the  setting  up  of  railway  undertakings.  Without  better 
definition  of  these  criteria  at  Community  level,  there  is  a  real 
danger  that  the  I iberal isation  already  agreed  wil I  be  very  uneven 
and, 
in  some  areas,  may  give  rise  to  such  conflicts  that  it  may 
not  happen  at  al I  or  at  best  for  a  very  long  time. 

in 

344.  As 

of 

the 

regards 

adopt ion 

aviation, 

the  necessary 

the 
framework 

involve  the  provision  of  transport  services  or 

third 
civi I 
I iberalisation  package  provides 
for 
scheduled  and  unscheduled  transport  services  for  third  parties, 
including  air  taxis.  Other  aviation  activities,  some  of  which  do 
indeed  the 
not 
provision  of  any  service  to  a  third  party,  such  as  corporate  own 
account  flying,  have  not  so  far  produced  clearly  Justified  cal Is 
for  Community  Intervention.  In  any  case,  some  of  these  activities 
which  do  not 
involve  the  provision  of  a  transport  service,  like 
aerial  surveying  or  photography,  are  already  governed  by  general 
Community  rules  on  establishment  and  freedom  to  provide  services. 
For  these  reasons,  no  new  I iberal isation  initiatives  are  planned 
at  present  though  the  field  will  be  kept  under  observation.  The 
the 
Commission  will,  however,  publish 
methods  which  it  intends  to  use  to  evaluate  whether  air  fares  are 
too  high  or 
the  third 
I iberal lsation  package. 

low  when  complaints  are  made  under 

in  an  appropriate  form 

too 

345.  On 

the 

transport 

framework 

foundation  for 

the  realisation  of 

the  harmonisation  side, 

favour  disproportionately 

the  main  emphasis  wl  11  be  on 
for 

the 
development  of  a  Community 
the  charging  of 
infrastructure  and  other  costs  to  users.  Such  a  framework  is  the 
the  objective  of 
essential 
If  costs  are 
sustainable  mobility  for  the  Community  as  a  wHole. 
to  arise  as 
not  be Ing  proper I y  a I I oca ted,  stresses  are  bound 
users 
services  and 
If  costs  are  being 
systems  that  do  not  charge  their  full  cost. 
allocated  on  the  basis  of  significantly  different  principles  in 
different  States  or 
significant 
distortions  affect  competition  between  transport  operators  but  It 
transport 
will  be  very  difficult 
systems  In  a  more  Integrated  way.  Furthermore,  wide  variations 
to  develop  a 
in  cost 
coherent  approach 
in 
appropriate  cases,  of  relieving  pressure  on  systems  under  stress 
through  the  promotion  of  alternatives.  The  conditions  under  which 
aids  may  be  used  for  this  purpose  by  reducing  user  costs  should 
be  based  on  a  common  approach  to  the  charg Ing  of  costs 
in  the 
first  place. 

It  more  difficult 
to  Community  aids  pol  Icy  as  a  means, 

local itles,  not  only  will 

to  develop  Community-wide 

Imputation  will  make 

- 104  -

In 

the  short 

term,  emphasis  wi  11  be  placed  on 

346.  Given  the  complexity  of  this  problem,  it  makes  sense  to  proceed 
in  stages. 
the 
development  of  a  framework  for  the  imputation  of  infrastructure 
in  the  light  of  the 
costs.  Particular  attention  will  be  given, 
in  the  1992  programme  on  the  harmonisation 
I imited  progress  made 
of  excise  duty  on  diesel 
to 
fuel, 
possibi Ii ties  for  adopting  a  truly  territorial  system  of  taxation 
In  the  medium  term,  proposals  wl  I I  need 
of  heavy  goods  vehicles. 
to  be  made 
that 
concerning  charging 
environmental  problems  wi  I I  be  addressed  by 
fundamental 
the 
economic  mechanisms  at  work  in  the  transport  sector. 

for  externalities  so 

tol Is  and  charges 

road 

347.  Regimes  applicable  to  civi I 

rather 

seaC69) 

ra i I (70) 

divergent 

transport, 

is  subject 

I iabl I ity  and 

transport  activities 

Insurance  wi  11  also 
to  property  and  persons 
require  attention.  At  present,  damage 
caused  by 
to  a  variety  of 
national  rules  and  practices.  Some  sectors  are  not  subject  to  any 
In  others,  notab I y 
Commun I ty  or  I nternat iona I  framework  at  a I I. 
a i rC68), 
internat iona I 
and 
frameworks  do  exist  but  they  wi  I I  often  leave  considerable  scope 
for 
these 
international  arrangements  are  not  necessarily  adapted  to  current 
conditions,  for  example,  because  monetary  cei I ings  do  not  reflect 
they  were  not  designed  with  the 
current  values. 
needs  of  a  single  transport  market 
in  mind.  The  proposal  for  a 
directive  on  the  I iabl I ity  of  suppliers  of  services,  if  adopted, 
to 
would 
passengers  and  their  baggage  when 
is  not 
covered  by 
the  Member 
it  is  uncertain  whether  the  directive  will  be 
States.  However, 
adopted  in  this  form. 
In  any  case,  its  adoption  would  not  affect 
the  situation  as  regards  freight. 

the  damage  concerned 
ratified  by 

introduce  a  measure  of  harmonisation 

international  agreements 

solutions.  Moreover, 

In  any  event, 

for  damage 

national 

they  should  take  are  quest Ions  which 

348.  Whether  further  Community  initiatives  are  needed  and,  if  so,  what 
form 
Involve  a  number  of 
complex  issues.  These  need  to  be  Investigated  for  different  modes 
and  trades  as  wel  I  as  for 
intermodal  transport  as  a  whole.  The 
investigation  will  need  to  address  the  potential  contributions  of 
different 
and  execution,  national 
Conwunity,  and  international.  Preparatory  work  has  already  begun 
concerning, 
intermodal 
transport  and  dangerous  goods. 

levels  of  policy  making 

the  aviation  sector, 

In  particular, 

349. 

the  views  of 

Initiatives  will  also  be  taken  In  the  area  of  aids  policy,  after 
discussion  on  a  multilateral  basis  with  Member  States  and  taking 
its 
the 
into  account 
customers.  These  initiatives  will  seek  to  eliminate  unnecessary 
bureaucracy  while  ensuring  that 
the  distortive  effects  of  aid 
measures  will  not  compromise  the  establishment  of  a  level  playing 
is  not 
field  within  the  single  market  and  that  an  °aid  race" 
started  due 
their 
to 
national  transport  industries. 

the  wishes  of  Member  States  to  protect 

Industry  and 

transport 

Warsaw  Convention  (1929)  - The  Hague  Protocol  (1955)  - Montreal  Carrier  Agreement  (1955). 
Brussel a  Convention  (1957)  - Athena  Convention  (1974) 
CX>TIF  - CIV  "(1980) 

- 105  -

350.  On 

the  one  hand, 

it  may  be  possible 
requirements  on  notification  of  aids  by 
minimis  rule  and 
inland 
to 
obligations,  might  be  extended  to  air  and  maritime  transport. 

to  modify  Community 
the  adoption  of  a  de 
in  addition,  the  present  exemptions  applicable 
service 

regards  public 

transport, 

notably 

as 

351.  On 

the 

the 

financial 

to  be  paid 

accounts  of 

inventory  of  State  aids 

inventory  will  better  reflect 

the  other  hand,  as  already  explained, 

the  opening  up  of 
transport  markets  to  more  competition  as  a  resu It  of  the  1992 
progranvne  means 
to 
that  greater  attention  has 
subsidies  wh i eh  cou Id  unfair I y  advantage  part i cu I ar  operators. 
To  this  end,  the  Commission  intends  first  to  develop  and  maintain 
an 
in  the  different  transport  sectors. 
It  will  also  propose  measures,  where  necessary,  to  increase  the 
transparency  of 
the  entities 
infrastructure  and  services 
responsible  for  providing  transport 
so  that 
the 
the  same 
different  ways 
it  will  examine  whether  prior  notification  requirements 
reason, 
in  addition  to  interventions  which 
could  be  developed  to  cover, 
are  undoubtedly  aids,  other 
real 
in  a I I  cases. 
poss i bi  I it y  of  subvent ion  though  not  necessar I I y 
It  will  also  re-examine  its  guidelines  on  the  criteria  used  to 
evaluate  whether  State  aids  are  compatible  with  the  Treaty  with  a 
the 
them 
to  adapting 
view 
the 
sector  while  ensuring 
Convnission's 
the  main 
approach 
objectives  of  this  latter  exercise  wl  I I  be  to  indicate  as  clearly 
as  possible  to  national  and  local  authorities  the  scope  which  is 
available  for  interventions  within  the  I lmits  of  Article  92. 

the  current  characteristics  of 
remain  coherent  with 
fields.  One 

to 
that 
in  other 

they  may  be  supported.  For 

the  reality  of 

interventions 

involving  a 

in  which 

they 

of 

352.  Beyond 

the 

issue  of 

for  national  and 
local  aids  Is  the  question  of  Community 
level  actions  to  support 
the  adaptation  and  development  of  particular  transport  sectors, 
often  referred  to  as  "positive  measures". 

the  Community 

framework 

353. 

taken  as 

industries 

the  proposed  EUROS 

In  the  maritime  field,  further  action  will  be  needed  to  address 
the  continuing  problem  of  the  erosion  of  the  Community's  fleets. 
Nat Iona I 
in It I at i ves  have  so  far  not  produced  a  sat I sfactory 
solution  to  the  problem  which  poses  a  threat  to  the  vlabil lty  of 
the  Community's  maritime 
a  whole.  A 
coordinated  approach  is  called  for  Including  further  development 
of 
that 
Community  shipowners  are  not  put  at  an  unfair  disadvantage  by  the 
failure  of  the  authorities  of  States  responsible  for  flags  of 
convenience 
is 
addressed  further  In  the  section  on  safety  below.  Attention  wi  I I 
also  be  given  to  the  development  of  short-sea  shipping  In  the  new 
context  of  a  liberalised  Internal  market  and  Its  extension  to  the 
European  Economic  Area  and  beyond 
into  Eastern  and  Central 
Europe.  The  Maritime  Industries  Forum  has  Identified  this  field 
as  one  in  which  action  should  be  taken  as  a  priority  matter. 

standards.  This  matter 

register  and  measures 

to  enforce  accepted 

to  ensure 

- 106  -

354. 

inland  navigation, 

to  deal  with  over 
the  scrapping  scheme 
In 
capacity  wi  I I  be 
the  continued 
to 
re-examined  with  a  view 
modernisation  of  the  Community  fleet  and  further  measures  wll I  be 
proposed  to  assist  the  process  of  its  adaptation  to  the  needs  of 
the  Community  market  and  the  opening  of  the  canal  network  to  the 
east. 

355.  As 

In 

to 

the 

industry 

adaptation 

competition 

to  road  haulage, 

If  poss I b I y  disruptive  er I ses  are 

In  some  Member  States  faces 
a 
considerable  problems  of 
Community-wide  market,  particularly  where 
large  numbers  of  very 
small  firms  have  been  able  to  survive  in  protected  national  and 
even  I oca I  markets.  The  process  of  adapt at I on  w i I I  have  to  be 
to  be  avo I ded.  To 
managed 
assist  that  process,  the  conditions  for  access  to  the  profession 
as  we 11  as  the  reg Imes  for  ensuring  comp I i ance  with  Ii cens i ng 
conditions  and  for  road  worthiness  testing  of  vehicles  will  be 
re-examined.  The  objective  will  be  to  see  whether  adaptations  to 
the  Community 
the 
necessary  re-structuring  and  modernisation  of  the  industry  and, 
at  the  same  time,  to  ensure  fair  competition  between  operators. 
international 
The 
the  basis  of 
standards 
the  subject  of  particular 
I Ike 
attention  in  this  context. 
It  may  contribute  to  a  solution  which 
is  particularly  attractive  from  the  subsidiarity  point  of  view  by 
for  both  detailed  rules  at  Community  or 
reducing 
the  need 
na t i ona I 
I eve I  and  more  burdensome  cont ro Is  on  a  case-by-case 
basis. 

role  of  Quality  assurance  on 
ISO  9000  wi  I I  be 

framework  are  needed 

to  assist 

in  order 

356. 

tax 

transport, 

treatment  for 

In  relation  to  intermodal  transport,  consideration  wi  II  be  given 
road  vehicles  respecting  high 
to  favourable 
safety  and  environment  standards  used  In 
lntermodal  operations. 
Guidelines  will  be  developed  for  aids  to  attract  operators  to 
investment. 
particularly 
lntermodal 
facilitate 
be  put 
Furthermore,  proposals  will 
to 
cooperation  between  transport  enterprises  engaged 
lntermodal 
in 
recent  developments  on 
operations  and 
the  basis  of  Directive 
cooperation 
In 
for 
I i ab I I I ty 
91 / 440/EEC.  Fina I I y, 
to  establish  what 
intermodal  operations  makes 
Initiatives  might  be  appropriate  at  Community 
taking 
level 
account  of  activities  in  relevant  international  organisations. 

to 
Into  account 
the  railways  field  on 
absence  of 

aids 
forward 

it  necessary 

common 

take 

the 

to 

Information  on 

357.  Finally,  measures  should  be  taken  to  improve  the  aval labi I ity  and 
Quality  of 
Internal 
transport  market.  The  existing  statistical  system  wl  I I  need 
strenghtenlng  and  extending  to  new  areas  for  which  so  far  no 
Community  wide  data  are  available.  The  future  of 
the  present 
•temporary"  system  for  market  observation  should  be  decided  In 
this  context. 

functioning  of 

the 

the 

V.1.b 

TECHNICAL  HARMONISATION 

358.  Technical  harmonisation  is  essential  both  to  the  elimination  of 
the 

interoperability  of 

the 

to 

competitive  distortions  and 
Community's  lntermodal  systems. 

- 107  -

359.  As 

Inland 

regards 
improvement  of 
and  standardisation  of  network 
trains. 

techn i ea I  standards  for 

transport,  priority  actions  would 

Include 
in I and  waterway  vesse Is 
interoperabi lty  for  high-speed 

360.  Technical  harmonisation  In  civil  aviation  wll I  be  pursued  through 
the  standardisation  of  ATC/ATM  equipment  and 
Include  Community 
also 
the  basis  of  new  Joint  Aviation  Requirements 

actions  would 

actions  aimed  at 
procedures.  Further 
legislation  on 
(JARS). 

361. 

In  relation  to  shipping,  the  need  for  harmonisation  of  operation 
traffic  management  systems  calls  for  and  Justifies 
of  vessel 
Community  action.  Furthermore  the  Community  should  play  a  role 
Interchange 
In  support  of  development  of  port  Electronic  Data 
(EDI) 
on 
compatible  with  Community 
notification  requirements  for  vessels  carrying  goods  to  and  from 
EC  ports. 

directives 

systems 

362.  F Ina I I y,  act ion 

in  the  f i e Id  of  combined  transport  w I I I  i nc I ude 
railway  equipment, 

loading  units, 

technical  harmonisation  of 
containers  and  terminals. 

V.1.c 

RESEARCH  AND  DEVELOPMENT 

363.  The  Commission  wil  I  propose  within  the  Fourth  Framework  Programme 
for  research  and  development  a  more  prominent  role  for  transport. 
This  will  build  upon  experience  and  progress  already  achieved  in 
previous  programmes  and  wil I  require,  as  in  the  past,  the  active 
involvement  of  private  enterprise,  the  scientific  community  and 
final  users. 

364.  Transport  R&D  efforts  will  be  directed  first  towards  supporting 
the  development  of  a  multimodal  transport  system,  focusing  on  the 
complementarity  of  the  different  transport  modes  and  developing 
scenarios  and  analyses  at  the  urban,  rural,  regional  and  trans 
level,  as  wel  I  as  the  interrelat lonshlp  between  human 
European 
be 
and 
factors 
established  for  analysing  their  compatibility  with  the  objectives 
of  Community  environment  policy.  Special  attention  wi  I I  also  be 
to  safeguard  an 
given 
including 
effective 
is  an 
telematics, 
Impact 
Improvement  of  complementarity  and  efficiency  adapted 
the 
to 
needs  of  an  integrated  transport  system. 

to  organisational  aspects 
implementation  of 
such  a  way 

standard  methodology  wl  I I 

technical 
that 

technology.  A 

innovations, 

the  overal 

In  order 

in 

365.  Th Is 

deve I opment 
technologies  for  Integrated  and  optimised  transport  systems. 

approach  w I I I 

supported 

the 

by 

be 

of 

- 108  -

system, 

transport 

multimodal 

366.  Telematics  technologies  should  ensure  the  improved  functioning  of 
the 
and 
i nteroperab i I i ty  across  the  different  modes.  At  the  moda I  I eve I, 
telemat ics  R&D  wi  11  be  pursued  further 
in  order  to  demonstrate 
the  performance  of  solutions  based  on  integrated  systems  and  to 
solve  a  number  of  specific  problems  I ike  air  traffic  management. 
in  this  field,  currently  being  developed 
Advanced 
wl thin  the  Commun I ty  and 
i nternat Iona I  organ I sat Ions, 
taken  further  with  the  aim  of  establ ishlng  a  single 
should  be 
unified  system. 

interconnection 

technologies 

in  other 

367.  Research  on 

industrial 

technologies  other 

than  telematics  will 
the  realisation  of  the 
important  factor  for 
continue  to  be  an 
different  components  of  the  susta i nab I e  mob i Ii ty  principle. 
It 
wi  I I  Include  vehicles  including  their  engines,  materials,  design; 
Infrastructure;  systems,  urban,  rural  and  trans-European  as  wel  I 
as  the  economic  and  ergonomic  aspects  of  these  components. 

V.1.d 

TRANS-EUROPEAN  NETWORKS 

368.  Community  action 

in 

is 

this  field 

the  strategic 
definition  of  the  network  concept  for  each  mode.  This  wlll  be 
done  by  adopting  a  new  framework  regulation  fixing  objectives, 
the  necessary 
priorities  and  methods 
Incorporating 
term  development 
guidelines 
reQuirements  for  pan-European  systems  covering  the  countries  of 
Central  and  Eastern  Europe  and  the  EEA. 

by  establishing 

focused  on 

and  by 

long 

and 

for 

the  need  for 

369.  The  existing  networks  guidelines  will  be  further  developed  and 
complemented .. The  environmental  aspects  of  the  road  network  wi  II 
be  given  particular  attention  as  will 
improved 
mobility  to  benefit  the  Community's  peripheral  and  more  isolated 
regions.  The  road  network  guide I ines  wi  11  also  be  extended  to 
cover  as  quickly  as  possible 
telematlc 
technologies  for 
improving  the  management  of  the  network.  Work 
on  the 
inland  waterways  network  wi  11  concentrate  on  evaluat Ing 
the  market  potent i a I  of  different  corridors  and  on  feas i b I I I ty 
studies  for  priority  projects.  The  development  of  the  high  speed 
train  networks  key 
in 
particular, 
interoperabl I lty 
both  within  the  high  speed  system  and  in  relation  to  conventional 
launched  to  realise 
rail  and  other  modes.  Pilot  projects  wil I  be 
key 
Including  Its 
the 
links  of 
maritime  dimension. 

continue  with  a  view, 

interconnection  and 

the  deployment  of 

transport  network, 

I inks  wi  11 

intermodal 

improving 

to 

for  other  modes  or  sectors.  Conventional 

370.  The  system  wi  11  be  completed  with  the  development  of  networks 
guidelines 
rail 
guldel Ines  wi  11  be  put  forward  to  Including  I Inks  to  the  high 
speed  train  and  combined  transport  networks,  so  as  to  form  an 
integrated  basic  ral I  system.  The  maritime  sector  cal Is  for 
action  on  two  fronts.  First,  the  role  of  ports  as  nodes  of  the 
network  has  to  be  defined.  Second,  sea  corridors  as  alternative 
to  land  ones,  and  their  interconnection  with  the  continental  axes 
will  be  Identified  to  enhance  the  efficiency  of  the  system  as  a 
whole.  Both 
in  a  proposal  for 
guide I Ines  for  ports. 

lines  of  action  will  be 

included 

- 109  -

In  parallel  with  work  on 
technical  harmonisation,  Community 
guidelines  will  be  proposed  for  a  V.T.S.  network  for  ·maritime 
transport  that  incorporates  safety  and  environmental  objectives. 
Priority  w 111  be  given  to  the  development  of  the  Mediterranean 
Sea  network.  Airports  also  play  a  fundamental  role  as  nodes  of 
the  Community 
land 
modes, 
Interfaces  w Ith  urban  systems  and  potent I a I  capac I ty  to 
meet  the  probable  growth  In  transport  demand  wll I  be  Incorporated 
Into  guldel Ines  defining  the  airports  network. 
In  addition,  the 
Community,  working  within  the  appropriate  framework  and  In  close 
international  organisations  and  national 
cooperation  with 
the 
wl  I I 
authorities 
development  of  a  single  unified  ATM/ATC  system  for  Europe. 

transport  system.  Their 

Interconnection  to 

guldel Ines 

concerned, 

present 

the 

for 

371.  The  need  to  Introduce 

In  addition  to 

lntermodal  alternatives  In 

transport  currently  marked  by 
transport  provides 

the  field  of 
the  predominance  of 
passenger 
the  basis  for  a  new 
private  car  and  air 
Initiative. 
the  existing  and  future  Community 
networks,  there  is  scope  for  a  "Citizen's  Network"  for  collective 
transport  composed  of 
inter connected  air ,  bus  and  r a i I  systems 
and  services  offered  by  public  or  private  operators.  User 
friendly 
such  as 
systems  and  other 
flexible  taxi  services  and  quality  standards  would  provide  added 
value  to  such  a  scheme  designed  to  give  a  Community  dimension  to 
high  qua I ity  public  service  transport. 

information 

facilities 

372.  Finally,  guidelines  will 

be  prepared 

the  Community's 
intermodal  system  taken  as  a  whole, 
the  guide I Ines 
for  the  different  mode·s  and  sectors.  The  objective  will  be  to 
optimise  the  contribution  that  each  can  make,  In  combination  with 
the  others,  to  an  efficient,  safe  transport  system  which  meets 
the  Community's  environmental  objectives. 

integrat Ing 

for 

- 110  -

V.2. 

SAFETY  FOR  THE  PROTECTION  OF  THE  USER  AND  NON-USER  ALIKE 

373. 

374. 

aspects  of 

In  the  field  of  road  safety,  the  Commission  envisage  the  adoption 
of  a  programme  based  on  priority  action  In  the  fields  of  driver 
technical  standards  for  vehicles  and 
education  and  behaviour, 
the 
Infrastructure 
considerable  difference  of  the  levels  of  road  safety  between  the 
Member  States,  a  f I rst  priority  w I 11  be  to  promote  exchange  of 
Information  and  experience  and  set  up  a  Community  data  bank.  The 
Community's  approach  wlll  not  always  rely  on  legislation;  other 
non-binding 
the  safety 
objective. 

Instruments  can  contribute 

safety.  Bearing 

to  achieve 

in  mind 

on 

local 

gained 

experiences 

In  the  context  of  action  related  to  drivers'  behaviour,  priority 
wlll  be  given  to  measures  designed  to  provide  support  for  driver 
education  and  awareness  programmes  at  national  and 
level. 
The  basic  objective  wl  I I  be  to  promote  less  aggressive  driving  by 
drawing 
the  Community. 
Legislative  measures  will  concentrate  on  basic  rules  of  the  road 
In  relation  to  vehicle  safety,  measures  will  be 
and  road  signs. 
through  R&D, 
adopted 
to 
construct ion 
to 
the 
infrastructure, 
development  of  standards  and  the  generalisation  of  best  practice 
In  the  context  of  the  trans-European  road  network  as  wel  I  as  more 
generally  appl lcable  recommendations  on  road  design,  construction 
and  maintenance. 

improve  passive  and  active  safety 

the  Community  should  play  a  role 

test i ng.  As 
through 

roadwor t hi ness 

throughout 

standards 

and 

375.  Community  act Ion  In  the  f leld  of  air  safety  wl  11  have  to  take 
into  account  the  work  of  the  relevant  international  organisations 
such  as  the  ICAO,  ECAC,  JAA  and  Eurocontrol.  This  WI  II  enable  the 
Community  to  pursue  technical  harmonisation  on  the  basis  of  new 
Joint  Aviation  Requirements  established  by  the  JAA  and  to  develop 
a  single  unified  ATM  system  for  Europe  In  close  cooperation  with 
In  ATM  currently  undertaken 
Eurocontrol  and  ECAC.  Research 
through 
the  EURET,  ATLAS,  FANSTIC  and  GAAS  projects  WIii  also 
contribute  to  this  goal. 

376.  Priority  actions  wlll  also  cover  common 
for  cockpit  crews  and  eventually 
personnel,  such  as  ground  engineers  and  air  traffic  controllers. 

llcencing  requirements 
for  other  categories  of 

377.  FI na 11 y, 

the  Comm I ss Ion  w I 11  seek  to  Improve  data  qua 11 ty  and 
collection  methods  through  Community  action  on  mandatory  Incident 
report Ing  systems,  confident i a I  report i ng  systems  and  ace i dent 
Investigations. 

378.  Community  action 

in  the  field  of  maritime  safety  will 

Include 
strengthening  the  work  and  rules  of  the 
important 
existing  IMO  Resolutions  mandatory  and  by  setting  up  a  framework 
for  a  more  systemat le 
IMO 
important 
is  necessary, 
resolutions 
accompanying  directives  or  standards  will  be  developed  to  avoid 
different 
the  Community.  Commission 
proposals  for  an  Improved  and  more  effective  coordination  of  the 
action  of  Member  States  within  the  IMO  are  also  foreseen. 

implementat Ion  of  future 
far  as 

the  Community. 

levels  within 

IMO  by  making 

safety 

so 

in 

In 

- 111  -

The  effectiveness  of  the  existing  Memorandum  of  Underst~ndlng  on 
Port  State  Control  will  be  enhanced  through  mandatory  rules  for 
inspections  of  ships  presenting  an 
recognised 
safety  or  environmental  risk  and  harmonised  detention  criteria. 
Proposals  will  be  made  for  providing  a  uniform  legal  basis  for 
internationally  agreed  rules,  appl I cable  to 
the  enforcement  of 
al I  ships  plying 
from  European  ports,  should  such  a 
to  and 
framework  not  exist  at  international  level. 

international 

379.  Framework  directives  fixing  essential  safety  reQuirements  and 
putting  forward  guidelines  for  their  non-divergent  Implementation 
within  the  Community  wl  11  be  proposed  to  cover  non-convent Ion 
ships  such  as  passenger  vessels  in  national  trade,  cargo  vessels 
of  lower  tonnage,  smaller  fishing  vessels  and  recreational  craft. 
Internationally  agreed  safety  principles  and  national  safety 
rules,  when  and  where  they  exist  will  be  taken  Into  account  as 
much  as  possible  In  the  Commission  proposals. 

380. 

In  relation  to  the  transport  of  dangerous  goods,  attention  will 
be  given  to  the  need  for  more  convergent  I I ab 11  I ty  reg Imes 
In 
case  of  accident.  Harmonisation  measures  will  be  put  forward  on 
classification,  label I ing  and  packaging  of  dangerous  goods  across 
modes. 

V.3. 

ENVIROtf.fENT 

381.  Beyond  measures 

in 

I, 
I I  above,  environment  protection  wl  II 
reQuire  stringent  standards  at  Convnunlty 
for  gaseous 
the 
emissions,  energy  consumption  and  noise  emissions 
for 
different  transport  means.  Legislation  and  strict  application  of 
technical  directives  on  Inspection  and  maintenance  of  vehicles  In 
the  field  of  environmental  performance  wl  I I  be  essential 
to 
achieving  the  reductions  in  emissions  that  current  technology  can 
bring  about.  Existing  Community 
legislation  in  this  field  will 
reQulre  updating  and  strengthening. 

level 

382. 

In  relation  to  noise  disturbance  affecting  the  population  living 
In  and  around  airports  It  will  be  necessary  to  ensure  that  the 
areas  surround Ing  the  a I rports  are  adeQuate I y  protected  aga Inst 
an  Increase  In  noise  volume,  due  to  the  growth  in  air  transport, 
that  no  new  noise-sensitive  activities  are  allowed  near 
and 
airports.  Convnunlty  action 
the 
establishment  of  a  standard  method  of  calculation  of  noise 
exposure 
the 
Introduction  of  noise  monitoring,  land-use  rules  and  noise  zoning 
around  airports.  These  measures  will  need  to  take  account  of  the 
characteristics  of  Individual  airports.  Convnunlty  action  related 
to  environmental  performance  of  Individual  aircraft  will  Include 
non-addition  rules  for  the  noisiest  aircraft  and  similarly  will 
establish  stricter  standards  for  NOx  emissions ..  Community  action 
will  have 
relevant 
the  work  of 
take  account  of 
International  organisations  such  as  ICAO  and  ECAC. 

standard  noise  exposure 

this  field  wi  I I 

focus  on 

Indices, 

levels 

the 

and 

to 

in 

383.  Strategic  environmental 

integral 
part  of  the  decision  making  process  for  transport  infrastructure 
Individual 
policies,  programmes  and 

impact  assessment  wi  11  be  an 

in.vestment  decisions  on 

- 112  -

projects. 
In  order 
investment  decisions 
should  recommend  a  standard  methodology  for 
analysis, 
question  does  not  form  part  of  a  Trans-European  network. 

to  provide  a 
for 
in  transport  Infrastructure,  the  Community 
their  cost-benefit 
including  externalities,  even  if  the  infrastructure  in 

level  playing 

field 

V.4. 

SOCIAL  PROTECTION 

384.  Social  measures  in  transport  pol Icy  should  establish  criteria  for 
access  to  the  profession  and  training,  seek  to  Improve  living  and 
working  conditions,  protect  and  promote  employment  of  transport 
workers  and  encourage  social  dialogue  and  col lectlve  bargaining. 

385.  The  Commission 
in 

intends  to  ensure  that  social  partners  are  fully 
associated 
the  making  of  policy  measures  having  social 
to 
impl  !cations.  Where  dialogue  between 
solutions  based  on  collective  agreements,  Community  intervention 
wl  I I  either  be  redundant,  or,  if  need  be,  defined  along  the  same 
I Ines. 

the  partners 

leads 

improvements 

to  the  professions  and 

386.  Further  Community  action  will  be  designed  to  strengthen  criteria 
training  on 
and  conditions  for  access 
grounds  both  of 
the  necessary 
adaptation  of  the  sectors  to  the  single  market.  The  structure  of 
road  haulage  requires  further  strengthening  of  existing  rules  on 
training  specifications  will  be  put  forward  for 
access.  Common 
certain  professions  In  civil  aviation  (as  above 
in  V.11).  The 
for  uniform  criteria  for 
Commission  wi  I I  present  a  proposal 
inland  waterways  and  wi  11 
issuing  boat  master  certificates 
in 
examine  whether 
level  of 
education  and  training  of  maritime  officers  and  captains. 

legislation  on  minimum 

in  safety  and 

to  propose 

In 

the 

road 

situations  across  modes. 

relevant  measures  however,  must  be  adapted 

387.  Social  considerations,  safety  and  the  elimination  of  competitive 
distortions  constitute  the  reasons  Justifying  future  Community 
Initiatives  In  the  field  of  working,  operating  and  other  times. 
to  varying 
Any 
regulatory 
sector, 
modification  of  Community  rules  on  driving  hours  and  rest  periods 
Is  required  as  a  matter  of  urgency.  To 
improve  weak  enforcement 
methods  in  this  area,  the  Community  wi  II  seek  simplification  and 
technical  modernisation  of 
the 
development  of 
recording  equipment  as  an 
tachograph,  as  wel  I  as  non-legislative 
alternative 
then 
techniques  to  generalise  best  practice.  The  Community  will 
examine  how  to  proceed  in  the  area  of  working  time.  In  the  field 
rules  on  manning  and  working  hours  are 
of 
already 
the  Rhine.  The  Commission 
intends  to  propose  similar  rules  for  the  rest  of  the  Community 
waterways  network.  The  Commission  wil I  evaluate  whether,  and,  If 
so,  what  provisions  are  called  for  in  the  railways,  shipping  and 
civil  aviation  sectors 
the 
organisations  concerned,  to  accompany  market  pol  Icy  developments 
in  these  sectors. 

in  close  consultation  with  al I 

in  force  for  navigation 

the  modern  digital 

inland  waterways, 

the  current 

through 

system 

the 

for 

In 

- 113  -

388.  Protection  and  promotion  of  employment  of  transport  workers  will 
continue  to  be  the  objective  pursued  by  Community  proposals  on 
"positive  measures"  for  certain  sensitive  transport 
industries. 
Further  development  of  the  proposed  EUROS  register  and  positive 
measures 
to  develop Ing 
inland  navigation  wi  I I  contribute 
employment  in  these  areas. 

for 

389. 

the  social  dimension  of 

In  addition  to  policies  to  protect  and  promote  the  interests  of 
workers, 
include 
measures  in  favour  of  users  with  reduced  mobility.  The  Community 
will  contribute  cooperation  on  information  programmes  and,  where 
improved 
minimum 
needed, 
accessibi I ity. 

the  CTP  wi  I I  also 

standards 

proposals 

for 

on 

V.5. 

EXTERNAL  RELATIONS 

390.  The  completion  of  the  single  market  and  the  establishment  of  the 
international  mobility  of  goods  and 
EEA,  continuing  growth 
in  Central  and  Eastern 
people  and 
Europe  cal I  for  the  strengthening  of  the  external  dimension  of 
the  CTP. 

in 
the  democratisation  process 

391.  A 

fold  strategy 

is  now  proposed  consisting  of 

the 
three 
progressive 
transformation  over  a  given  period  of  existing 
bi lateral  arrangements  so  that  they  will  flt  within  a  framework 
of  Community  agreement  and  procedures; 
the  development  of  a 
global  approach  to  the  provision  and  functioning  of  transport 
those  of  the  EEA  and  Eastern  and 
systems 
Central  Europe;  and  the  reinforcement  of  the  Community's  role  in 
relevant  international  organisations. 

in  Europe, 

i nc I ud i ng 

392.  As 

the 

regards 

transformation  of  existing  bi laterals  between 
Member  States  and  third  countries,  the  Commission  wi  I I  present  to 
the  Council  proposals  concerning  shipping  and 
inland  transport. 
In  some  cases  It  may  be  necessary  for  the  Community  to  go  beyond 
the  framework  of  Convnun I ty  b I I atera I  arrangements  and  cons I der 
the  development  of  a  system  of  multilateral  negotiations  with 
groups  of  countries. 

393.  The  necessity 

to  develop  Europe  wide 

transport  networks  and 
Integrate  the  broader  European  transport  market  must  be  pursued 
further  as  stressed  in  the  Prague  Declaration  adopted  by  the  Pan 
European  Transport  Conference 
in  1991.  Steps  already  undertaken 
In  this  direction  now  need  to  be  complemented  by  other  measures 
to  cover,  in  particular,  the  CIS  and  the  newly  independent  Balkan 
States. 

394.  The  Community's  participation 

in 

re-examined  with  a  view 

international  organisations 
should  be 
it  can 
participate  as  effectively  as  possible  in  work  on  matters  fall Ing 
w Ith In 
to 
should  be 
become 
explored.  At 
taken  to 
re-evaluate  the  roles  of  the  different  organisations  dealing  with 
transport 
to 
achieving  the  most  effective  division  of  responsibi I ities. 

Its  competence.  The  poss I b 11  it I es  for 
a  member  of 

the  same  time,  the  opportunity  should  be 

international  organisations 

In  Europe,  with  a  view 

Issues,  particularly 

the  Community 

to  ensuring 

that 

LIST  OF  ANNEXES 

Annex 

Tab I es  I  and  I I 

Annex  11 

Maps 

Annex  111 

Main  new  pol Icy  initiatives  for  the  Common  Transport 
Pol  icy  (1993-1994) 

ANNEX  I 

TABLE  I 

EC-Freight  Transport 
Thousand  Million  tonne-kilometres(l) 

Rai  I 

Road 

lnl .Water-

P ipel Ines 

Total 

ways 

377(2) 

101 

459(2) 

581(3) 

634(4) 

784(4) 

797(5) 

95 

104 

95 

104 

105 

60 

69 

80 

61 

62 

63 

745 

800 

959 

971 

1131 

1141 

1970 

1975 

1980 

1985 

1989 

1990 

207 

177 

194 

181 

181 

176 

(1)  EUR-12 
Source 
(2)  WI  thout 
(3)  WI thout 
(4)  WI thout 
(5)  WI thout 

:  ECMT 
P,  IRL 
GR 
p 
P,  GR, 

IRL 

Average  Annual  Growth  Rates 

Rai  I 

Road 

lnl .Watet- Pipe I Ines 

Total 

ways 

1970-1975 

-3. lX 

+4.0X 

-1.2% 

+1.0% 

+1.3% 

1975-1980 

+1.8% 

+4.8% 

+1.8% 

+1.0% 

+3.7% 

1980-1985 

-1.2% 

+1  .1% 

-1.3% 

-5.3% 

+0.2% 

1985-1989 

-0.1% 

+6.7% 

+1.7% 

+0.4% 

+3.9% 

1989-1990 

-2.7% 

+1.7% 

+1.0% 

+1.6% 

+0.9% 

Modal  Shares 

Rai  I 

Road 

lnl .Water-

P ipel Ines 

Total 

ways 

1970 

1975 

1980 

1985 

1989 

1990 

27.8% 

50.6% 

13.6% 

22.1% 

57.4% 

11.9% 

20.2% 

60.6% 

10.8% 

18.6% 

65.3% 

16.0X 

69.3% 

15.4% 

69.9% 

9.8% 

9.2% 

9.2% 

8.0% 

8.6% 

8.4% 

6.3% 

5.5% 

5.5% 

100% 

100% 

100% 

100% 

100% 

100% 

ANNEX  I 

TABLE  11 

EC-Passenger  Transport 
Thousand  Million  Passenger-kllometres(1) 

Ral  I 

Buses  and 
Coaches 

Private 
Cars 

Alr(2) 

Total 

1970 

1975 

1980 

1985 

1989 

1990 

182 

200 

209 

218 

231 

231 

(1)  EUR-12 

Source  :  ECMT 

214(3) 

1390(3) 

249(3) 

1701(3) 

278(3) 

2033(3) 

284(3) 

2200(3) 

302(4) 

2685(4) 

313(5) 

2776(4) 

41 

66 

92 

138 

180 

196 

1827 

2216 

2612 

2840 

3398 

3516 

(2)  estimates;  traffic  departing  and  landing  Inside  EC  only 
(3)  WI  thout  L,  IRL 
(4)  WI thout  L,  IRL,  GR 
(5)  WI thout  8,  GR, 

IRL,  L 

Average  Annual  Growth  Rates 

Ral  I 

Buses  and 
Coaches 

Private 
Cars 

Air 

Total 

1970-1975 

+1.9% 

+3.1% 

+4.1% 

+10.0% 

+3.9% 

1975-1980 

+0.8% 

+2.2% 

+3.6% 

+6.9% 

+3.3% 

1980-1985 

+0.8% 

+0.4% 

+1.6% 

+8.4% 

+1.7% 

1985-1989 

+1.4X 

+1.6% 

+5.1% 

+6.9% 

+4.6X 

1989-1990 

+0.5% 

+3.7% 

+3.4% 

+8.9% 

+3.4% 

Modal  Shares 

Buses  and 
Coaches 

Private 
Cars 

11.7% 

11.2% 

10.6% 

10.0% 

8.9% 

8.9% 

76.1% 

76.8% 

77.8% 

77.5% 

79.0% 

79.0% 

Rai  I 

10.0% 

9.0% 

8.0% 

7.7% 

6.8% 

6.6% 

Air 

2.2% 

3.0% 

3.5% 

4.9% 

5.3% 

5.6% 

1970 

1975 

1980 

1985 

1989 

1990 

Anchorage 

(cid:127) 

~ Tokyo 

~ Osaka 

Vancouver 

-~ 

~ 

~ 

European  Communit}' 
Airlines 
5th  freedom  operations 
beyond  USA (zero US 
Cabotage) 
(Summer 1991) 

Tampa  Orlando 

"(J 

San Juan  · 

St. Maarten  1 )> 
?. z 
m 
.. x 

..... 
..... 

Mexico 

San Jose 

US airlines 
5th  Freedom operations 
within  and  beyond the 
European  Community 
(Summer 1991) 

~ 
b 

[;J 

.  () 
0 

Nairobi 

\ 
~ 
~ 
~ 

J:> 
z 
z 
m 
X 

H 
H 

-

1  -

ANNEX  111 

PRIORITIES FOR THE CCN\EN 
TRANSPORT POL ICY 

ME.S.,: 

1)  DEVELOPMENT  AND  INTEGRATION  OF  COMMUNITY  TRANSPORT  SYSTEMS 

1.a) 

Economic  and  regulatory  framework 

1.b) 

Technical  harmonisation 

1.c) 

Network  development 

1.d) 

Research  and  development 

2·)  SAFETY  IN  TRANSPORT 

3)  ENVIROtMENT  PROTECTION 

4)  SOCIAL  PROTECTION 

5)  EXTERNAL  RELATIONS 

1. 

DEVELOPMENT  AND  INTEGRATION  OF  COMMUNITY  TRANSPORT  SYSTEM 

1.a.  Economic  and  Regulatory  Framework 

Charging  of  Infrastructure  costs  and  external I ties,  including  the 
use  of  fiscal  Incentives,  and  a  territorial  Community  heavy  goods 
vehicles  tax  system 

Abol  It Ion  of  restrictions  on  rental  of  goods  vehicles  and  buses 
In  other  Member  States  and  own  account  transport  services 
(follow-up  to  regulation  881/92) 

Positive  measures  for  the  development  of  inland  waterways. 

Strengthening  of  EUROS  proposals,  positive  measures  and 
promotion  of  short  sea  shipping 

Inventory  of  State  Aids,  criteria  for  State  Aids  evaluation, 
notification  requirements  for  State  Aids 

Setting  up  statistical  systems  on  transport  of  goods  by  sea  and 
road  accidents 

Freedom  to  provide  international  services  in  the  taxi  sector 

1.b.  Technical  Har110nlsatlon 

Technical  harmonisation  for  Inland  waterway  vessels;  road 
vehicles;  combined  transport  and  ral lways, 
Interoperability  for  high  speed  trains 

in  particular,  network 

Evaluation  of  Increasing  dimensions  of  containers  on  economy, 
Infrastructures  and  safety;  harmonisation  of  loading  units  (swap 
bodies  and  containers) 

Standardisation  of  Air  Traffic  Control  (ATC)  equipment, 
development  of  Vessel  Traffic  Systems  (VTS)  and  ports  Electronic 
Data  Interchange  (EDI)  systems 

1.c.  Research  and  development 

Establishment  of  a  coherent  transport  related  R&D  approach  in  the 
fourth  framework  programme 

Continuation  of  actions  concerning  traffic  management,  logistics 
and  demand  for  al I  mod~s  of  transport,  transport  related  to 
environment  Issues 

Establ lshment  of  practical  cooperation  with  other  European  R&D 
organisations  In  the  field  of  transport,  notably  EUREKA, 
EUROCONTROL,  COST,  OECD 

1.d.  Network  development 

Framework  regulation;  guidel Ines  for  conventional  railways,  ports 
and  airports,  Air  Traffic  Management  (ATM)  and  Vessel  Traffic 
Management  (VTM); 
mu I t i moda I i t y 

actions  to  ensure  system  integration  and 

Deployment  of  telematics  within  guidel Ines  already  proposed, 
notably  road 

Guldel Ines  for  a  "Citizens'  Network"  of  intermodal  passenger 
services 

Framework  for  contributing  to  transport  network  Infrastructure  In 
third  countries  (notably  Eastern  and  Central  Europe) 

2.  SAFETY  IN  TRANSPORT 

Implementation  of  a  road  safety  programme  Including  priority 
actions  In  the  field  of  driver  education  and  behaviour,  vehicle 
safety  and  Infrastructure 

Strengthening  of  Community  legislation  on  the  carriage  of 
dangerous  goods  for  national  and  International  transport 
operations 

Community  specifications  and  operational  procedures  based  on 
Eurocontrol  standards,  mandatory  Incident  reporting  (MIR) 
systems  and  aircraft  accident  investigations 

Convergent  application  In  the  Community  of  International  rules  on 
safety  and  pol lutlon  prevention  at  sea;  strengthening  and 
effective  application  of  Port  State  Control 

3. 

ENVIROtMENT  PROTECTION 

Revision  and  strengthening  of  technical  directives  on 
roadworthlness  of  vehicles  in  the  field  of  environmental 
performance  (emissions,  noise) 

Encouragement  and  promotion  of  safe  publ le  transport  and  support 
for  local  Initiatives  in  favour  of  cyclists  and  pedestrians  to 
make  a  contribution  to  the  quality  of  urban  environment 

Standard  noise  exposure  method  of  calculation  and  Indices,  non 
addition  rules  for  noisiest  Chapter  II  I  aircraft  and  NOx 
emissions 

Development  of  systems  to  manage  waste  streams  and  pollution 
prevention  from  ships 

4. 

SOCIAL  PROTECTION 

Modified  rules  on  access  to  the  profession, 
hours  and  rest  periods  In  road  haulage 

training,  driving 

Manning  and  working  conditions  In  inland  waterways 

Improved  transport  for  people  with  reduced  mobility; 
accessibility  requirements 

Convnunlty  flight  time  limitations  schemes  and  minimum  training 
requirements  for  certain  professions  in  clvl I  aviation 

Minimum  level  of  education  and  training  of  officers  on  ships 

Working  time  in  different  transport  sectors 

5. 

EXTERNAL  RELATIONS 

Proposals  for  and  execution  of  mandates  for  negotiation  of 
agreements  with  third  countries 

External  relations  In  maritime  transport,  Including  actions  to 
remove  restrictions  on  the  market  and  to  address  shipping 
relations  with  third  countries 

Technical  assistance  to  CECE  and  countries  of  the  former  Soviet 
Union  including  cooperation  In  ATM/ATC 

Strengthening  EC  participation  and  status  In  international 
organisations  deal Ing  with  transport 

Follow-up  of  the  conclusions  of  the  First  Pan  European  Conference 
held  In  Prague  (Oct  1991)  and  the  Baltic  Conference  held  in 
Szeczsin  (March  1992). 

Measures  called  for  by  existing  legislation 

A number  of  legislative  measures  are  also  called  for  by  existing 
legislation:  Improvements  In  the  avallabl I lty  and  quality  of 
Information  on  the  functioning  of  the  Internal  transport  market; 
criteria  relating  to  the  further  I lberal lsatlon  of  ral lways;  the  next 
phase  In  the  scrapping  programme  to  deal  with  overcapacity  In  Inland 
waterways;  criteria  and  methods  to  evaluate  excessively  high/low  air 
fares;  further  I iberal isation  of  national  regular  road  passenger 
services  by  bus  and  coach;  summer  time  arrangements. 

ISSN 0254-1475 

.., 

COM(92) 494 final 

·DOCUMENTS 

EN 

07 

Catalogue number : CB-CO-92-570-EN-C 

ISBN 92-77-50663-6 

Office for Official Publications of the European Communities 
L-2985 Luxembourg