Proposal for a COUNCIL DECISION ON THE PROMOTION OF SUSTAINABLE AND SAFE MOBILITY
Date: 1996-12-13
Institutions: European Commission
Subjects: common transport policy, geographical mobility, sustainable development, transport network, transport safety

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels,  13.12.1996 
COM(96) 654 final 

96/0306 (SYN) 

Proposal  for a 

COUNCIL DECISION 

ON THE PROMOTION OF 
SUSTAINABLE AND SAFE MOBILITY 

(presented  by the Commission) 

1. 

2. 

3. 

4. 

EXPLANATORY  MEMORANDUM 

In  its  Communication  on  legal  bases  and  maximum  amounts  which  it  forwarded 
to the Council and to Parliament on 6 July  1994 (SEC(94)  1106), the  Commission 
proposed  the creation of a legal basis for  budget  item  B2-704  (Establishment  and 
development  of  a  common  sustainable  transport  policy)  the  appropriations  for 
which have  regularly  been  exceeding  the threshold  of  ECU  5 million  since  1993. 
It would  also appear  advisable  to consider  budget  item B2-702  (Transport  safety), 
taking  into  account  the  similarities  in  the  intervention  procedures  compared  with 
item  B2-704.  and  the  continuous  increases  in  appropriations  prompted  by  the 
European  Parliament. 

The bulk of the expenditure  effected  from  the appropriations  provided  under  these 
two headings  applies  to  specific  measures  implemented  as  a preliminary  step  to a 
statutory  Commission  initiative  or  necessitated  by  the  Commission's  obligation  to 
exercise  its  role  as guardian  of  the Treaty,  e.g.,  in the application  of  Community 
legislation  in  the  field  of  transport,  where  the  Commission  is  frequently  called 
upon  to  exercise  a  special  supervisory  role  in  a  particular  area.  These  specific 
and  autonomous  measures  cannot  be  regarded  as  significant  actions  requiring  a 
specific  legal  basis,  and  the  same  is  true  of  pilot  projects.  The  ongoing 
development  of  the common  transport  policy,  coupled  with  increasingly  stringent 
safety  requirements,  will  not  in  itself  involve  any  change  in  the  type  of  actions 
conducted  over the coming  five  years, as is borne out by the programme  for  1995 
to  2000  which  the  Commission  has  adopted  and  is  currently  in  the  process  of 
implementing  (COM(95) 302 of  12 July  1995). 

Consequently, 
the  proposal  for  a  Council  Decision  applies  only  to  those 
significant  actions  which  the  Commission  might  undertake  with  a  view  to 
establishing  and developing  the common transport policy  and  promoting  transport 
It  therefore  concerns  only  a  part  of  the  appropriations  entered  by  the 
safety. 
budgetary  authority  under  these  headings. 
It  should  also  be  pointed  out  that 
specific  legal  bases  are  required  in the  case  of  the  most  significant  actions  in  the 
field  of  transport  such  as  the  financing  of  projects  of  common  interest 
involving 
the  trans-European  transport  network,  transport  research,  structural  improvement 
in  inland  waterway  transport  and  the  programme  of  intermodal  transport  pilot 
schemes for  the European  Union. 

Given this  situation,  certain  significant  actions can be financed  from  items B2-702 
In  the  main,  these  involve  clearly  identifiable  but  highly  diverse 
and  B2-704. 
operations  conducted  by  third  parties,  more  often  than  not  public  or  private 
international  organizations  engaged  in  publicizing  the  objectives  pursued  by  the 
Community  in  the  transport  sector.  The  financing  of  these  operations  normally 
takes  the  form  of  subsidies  not  exceeding  50%  of  the  total  cost  of  the  project, 
save  in  exceptional  circumstances,  although  other  actions  may  be  conducted 
directly  and exclusively  by the  Commission. 

Z 

5. 

6. 

7. 

These  financial  contributions  provide  an  effective  vehicle  for  developing  the 
common  transport  policy  and  promoting  safety,  in  so  far  as  they  offer  access  to 
recognized  expertise  and  competent  disseminators.  This  practice  is based  on  the 
principle  of  subsidiarity  and  the  familiar  process  of  cooperation  between  the 
bodies  involved  in  the  promotion  of  transport  and  transport  safety,  on  the  one 
hand,  and  the  Commission  in  its  role  as  the  organ  responsible  for  implementing 
Community  policy,  on the other. 

the 

in  1985  and 

internal  market 

It should  also be pointed  out that the common  transport  policy,  while  constituting 
a  complete  and  separate  title  within  the  Treaty,  had  nevertheless  remained 
embryonic  over  a long  period.  It was only  with the  launching  of  the  programme 
implementing 
the  subsequent  gradual 
establishment  of  that  market  in  the  transport  sector  that  Community  actions  have 
taken on a more clearly  defined  and stable character.  At the budgetary  level,  this 
constantly  changing  state  of  affairs  has  resulted  in  the  appropriations  available 
being  used  for  the purpose  of  preparing  legislative  initiatives  and  detailed  studies 
of  the  economic,  legal  and  technical  situation  prevailing  in  the  transport  sector. 
At the same time the Commission,  in a bid  to encourage efficiency,  has drawn  on 
the  support  of  existing  organizations  operating  in  the  transport  sector  in  order  to 
gain  a  better  insight  into  this  area  and  to join  with  them  in  seeking  out  the  best 
ways  of  ensuring  that  their  own  actions  take  account  of  the  Community 
dimension. 

Against  the  same  background  of  change,  the  Commission  has  developed  close 
links  with  all  the  public  international  organizations  actively  involved  in  the 
the  International  Maritime 
transport  sector,  particularly  at  world 
Organization  (IMO),  the  International  Civil  Aviation  Organization  (ICAO),  the 
OECD,  the  UN/EC  in  Geneva  and  -  at  the  European  level  -  the  European 
Conference  of  Ministers  of  Transport  (ECMT),  Eurocontrol,  the  European  Civil 
Aviation Conference  (ECAC) and the JAA  (Joint Aviation Authorities). 

level: 

in  helping 

The Commission has also forged  relations  with representative  organizations  in the 
the 
sector  whose  experience  and  knowhow  may  prove  useful 
Commission  to define  its policy  with full  knowledge  of the facts.  Accordingly,  it 
has  fostered  relations  with  the  Community  of  European  Railways,  the  European 
Road  Safety  Federation,  the  European  Transport  Safety  Council,  ERTICO,  the 
IUPT,  the  Trade  Union  Committee  for  Transport  and  many  other  organizations 
which  might  be  able  to  help  on  the basis  of  the experience  of  their  members  and 
which  might  have  some  thoughts  to  offer  on  the  type  of  developments  that  are 
desirable  with  a  view  to  achieving  the  internal  transport  market  and  the  trans-
European  transport  network  and  putting  into  effect  the  accompanying  safety 
requirements. 

8. 

Among  the various  significant  actions conducted  by such organizations,  which  the 
Commission  has  been  supporting  over  the  last  few  years,  mention  may  be  made 
of the  following: 

support  given  to  Eurocontrol  to  develop  its  EATCHIP  programme  on  ways  of 
improving  air  traffic  control  and  its APATSI  programme  on  the  improvement  of 
services  between  airports  and  the  introduction  of  the  new  European 
traffic 
management  system; 

support  given  to  the  European  Civil  Aviation  Conference 
Directorates-General  for  Civil  Aviation  in  the  Member  States  with  a  view  to 
exploring 
traffic 
management  system; 

institutional  mechanisms  of  the  future  European  air 

and  to  the 

the 

assistance  given to the International  Maritime  Organization  to provide  training  for 
the  maritime  occupational  sector  in  developing  countries  in  the  application  of 
advanced  safety  regulations; 

support  for  projects  developed  mainly  by  the  European  Road  Safety  Federation 
and  the  European  Transport  Safety  Council  with  a  view  to  exchanging  Member 
State  experiences  of  the  most  positive  kind  in matters  relating  to  the  reduction  of 
road  traffic  accidents  and  the  promotion  of  information  campaigns  targeted 
directly  at road users; 

aid  to  the  Community  of  European  Railways  to  pursue  its  deliberations  on  ways 
of developing  the high-speed  rail network  in the Community; 

constitution  and  organization,  within  a  European  economic  interest  grouping,  of 
joint  working  parties  representing  the  railway  industry  and  railway  companies 
with  a  view  to  drawing  up  technical  specifications  on  the  interoperability  of  the 
high-speed  rail network  in the context of the Council Directive  on this  subject; 

encouragement  of  original  projects  selected  by  the  competent  national  authorities 
with  a  view  to  promoting  the  safety  of  young  drivers  in  the  context  of  the 
Council-sponsored  European Year of the Young Driver  1995; 

various  forms  of  support  involving  persons  with  reduced  mobility,  in  order  to 
make public  transport  more  accessible  for  this category  of user;  mention  may  be 
made,  in  particular,  of  support  for  original  experiments  to  promote  public 
transport  based  on  a call  for  proposals  from  associations  specializing  in  this  area 
and  support  for  international  conferences  and  consumer  organizations  seeking  to 
improve  and  develop  information  on means  of  transport  for  persons  with  reduced 
mobility; 

encouragement  given  to  the  Trade  Union  Committee  for  Transport  and  to  the 
International  Road  Transport  Union  in  matters  concerning  the  organization  of 
working  and  driving  time  and  also  the  training  of  drivers  in  the  road  transport 
sector,  which  has  helped  to  strengthen  the  dialogue  between  management  and 
labour on these matters; 

Ï 

9. 

These  are just  a few  examples  of  Community  involvement  which demonstrate  the 
diversity  of possible actions.  A  feature  that  is common to them all  is the fact  that 
they  are  always  set  in  the  precise  context  of  the  development  of  the  common 
transport  and communications  policy or of Community  legislation such as: 

the definition  of Community  guidelines for  the development of the  trans-European 
transport  network; 
interoperability; 
the White Paper on air traffic  management; 
the Green Paper on the Citizens'  Network; 
the communication on road  safety; 
a programme  of action on the measures  to be taken in the Community  with regard 
to  the  accessibility  of  the  various  means  of  transport  as  far  as  persons  with 
reduced  mobility  are  concerned. 

To this  end,  the  various  actions  supported  play  a direct  role  in the  formulation  of 
the  common  transport  policy  or  the  dissemination  of  information  on  national 
experiments  of  particular  interest  to  the  other  Member  States.  Frequently  they 
fall  within  the  context  of  discussions  held  by  Commission  or  Council  working 
parties  in  the  wake  of  mandates  given  by  the  Council  to  the  Commission  (e.g., 
high-level  working  party  on  high-speed  trains,  high-level  working  party  on  road 
safety,  high-level  working  party  on  road  traffic 
telematics,  Christophersen 
working  party  on  priority  projects  for  the  trans-European  transport  network, 
working party  on public-private  partnerships). 

As  a  result  of  these  actions,  the  Member  States  and  the  circles  concerned  will  be 
in  a  better  position  to  conduct  a  dialogue  and  to  search  for  solutions,  based  on 
mutual  assent,  to the often  very complex problems facing  the  Community. 

10. 

In  the  case  of  specific  actions  the  effects  of  which  may  extend  over  a  period 
(although  such  actions  are  generally  of  limited  duration),  it  is  not  always  easy  to 
assess  their  full  impact.  Usually  these actions  provide  the Commission  with  very 
precise  information,  thus  enabling  it  to  grasp  all  sides  of  the  argument  -  an 
essential  requirement  for  the  implementation  of  Community  policy  in  the  areas 
concerned.  Furthermore,  the  organizations  in question,  by  virtue  of  the  support 
provided  by  the  Commission  in  furtherance  of  their  deliberations  and  activities, 
find  it  easier  to  incorporate  the  Community  dimension  and  are  in  a  position  to 
conduct  a  more 
the  Community 
informed  and  productive  dialogue  with 
authorities. 

While  these  actions  are  certainly  of  limited  duration  and  while  they  may  be 
difficult 
the 
in  quantitative 
Commission's  point of view,  may be regarded  as positive. 

impact,  from 

their  overall 

to  assess 

terms, 

11. 

The gradual  implementation  of the common transport  policy  and  the establishment 
of  an  increasingly  clear  framework  will  be  instrumental  in  transforming  the 

s 

actions  undertaken  hitherto  into  actions  of  a  more  institutionalized  nature  or  into 
more elaborate programmes of action. 

Coverage  on  a  single  general  legal  basis  could  prove  inadequate  and  might 
provide  grounds  for  a  more  detailed  decision  at  a  later  date,  should  a  full  and 
cohesive  programme,  e.g.,  in  the  field  of  safety,  be  deemed  useful  for  the 
Community. 

Over  and  above  actions  that  are already  proceeding  apace  and  are  the  subject  of 
a  suitably  adapted  legal  basis  (financing  of  projects  of  common 
interest 
involving  the  trans-European  transport  network,  specific  research  programme) 
or  actions  that  are  in  the  process  of  being  adopted  (structural  improvements  to 
waterways,  PACT),  the  Commission  feels  at this  stage that  the present  proposal 
will  adequately  cover  all  the  significant,  specific  or  more  extended  actions 
currently  envisaged  under  its programme  of action  for  the period  1995-2000. 

12. 

The  broad  description  of  the  actions  envisaged  will  make  it  possible,  over  the 
medium  term,  to  cope  with  the  various  situations  that  might  arise.  Certain 
situations  are  already  familiar,  such  as  air  and  sea  transport  statistics  in  the 
context  of  the  Directives  relating  thereto.  Others  are  currently  evolving,  such 
as  possible  participation  by  the  Community  in  Eurocontrol  and  in  the  future 
European  Air  Safety  Organization  (Joint  Aviation  Authorities  -  JAA),  which 
will  no  doubt  involve  the  payment  of  a  substantial  annual  subscription  fee. 
Road  and  maritime  safety  will  always  be  rather  sensitive  areas,  in  which 
specific  or  more  extended  actions  may  be justified  in  the  light  of  future  events 
and  priorities. 

13". 

The  common  transport  policy  will  involve  the  creation  of  conditions  for 
sustainable  mobility  requiring  the  highest  possible  levels  of  safety.  These 
conditions  are  not  carved  in  stone  but  will  be  dictated  by  the  economic, 
financial  and  environmental  realities  and  by  the  people's  (and  hence  the 
politicians')  perception  of  mobility. 

These  conditions  must  be  such  as  to  enable  the  Community  to  take  action 
wherever  it  is  in a position  to contribute  added  value  and  where  the  Community 
dimension  of  the problems  so  warrants  it.  This  is what  it  has  been  doing  so  far 
with  the  support  of  the  Member  States  and  of  the  principal  public  and  private 
players  in the transport  and  associated  sectors. 

14. 

The  proposal  for  a Council  Decision  is entirely  consistent  with  the  ongoing  and 
rapid  developments  taking  place  on  the  European  mobility  scene.  Its  aim  is  to 
provide  the  Community  with  a  flexible,  but  at  the  same  time  modest,  tool  -
subservient  to  the  annual  decisions  of  the  budgetary  authority  -  with  a  view  to 
coping  adequately  with  these  developments  by  grasping  them  in  good  time  and 
by  proposing  the  measures  most  appropriate  to  the  attainment  of  this  objective. 
This completes  the commentary  on the text of the proposal. 

4 

PROPOSAL FOR A COUNCIL DECISION ON THE PROMOTION OF 
SUSTAINABLE AND SAFE MOBILITY 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard  to the Treaty establishing the European Community,  and  in particular 
Articles 75, 84 and 129d(3) thereof, 

Having regard to the proposal from the Commission, 

Having regard to the opinion of the Economic and Social Committee, 

Having regard to the opinion of the Committee of the Regions, 

Acting in accordance with the procedure provided for in Article 189c of the Treaty, 

Whereas  the  Commission  has  explained  in  its  Communication  on  the  future 
development  of  the  common  transport  policy"  how  it  will  establish  a  framework  to 
guarantee sustainable mobility for people and goods within the single market; 

Whereas  the  European  Parliament2,  the  Economic  and  Social  Committee3  and  the 
Council4  have  expressed  favourable  opinions  on  the  main  features  of  the  approach 
proposed by the Commission; 

Whereas  the  Commission  has  tabled  a  Communication  on  the  programme  of  action 
(1995-2000) for the development of the common transport policy5; 

Whereas this programme envisages measures aimed at: 

-  developing  integrated  transport  systems  on  the  basis  of  advanced  technologies 

contributing to environmental, social, energy and safety objectives; 

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

COM(92)494 final, EC Bull. Suppl.  3/93 

EP Resolution on the future  development  of the common transport policy, OJ C 44,  14.02.1994,  p. 53 

OJC352,  30.12.1993, p.  11 

Conclusions of the Council  adopted on 7/8 June  1993 

COM(95) 302  final,  12.07.1995 

=\ 

-  developing  the  external  dimension  where  necessary  for  improving  the  quality  of 
transportation  links  between  the  European  Union  and  third  countries,  for 
guaranteeing  access  of  Community  enterprises  to  transport  markets  in  other  parts 
of the world and for  ensuring the proper functioning  of the single market; 

Whereas  the  implementation  of  these  objectives  requires  a wide  range  of  policies  and 
actions  such as: 

-  promotion of  intermodality; 

- 

establishment  of  a  trans-European  combined  transport  network,  accompanied  by 
organizational  measures  involving  research  and  development  work  to  develop  the 
best technologies and their applications  to the transport systems; 

-  progressive  integration  of  the  trans-European  transport  network  through  the 
coordination  of  investments,  financial  incentives,  promotion  of  public-private 
partnerships  and technical  convergence; 

-  development  of  high-quality  public  passenger  transport  of  all  kinds  to  establish  a 

Citizens'  Network; 

- 

- 

a  regulatory  framework  to  ensure  the  legal  protection  of  transport  users  and 
enforcement 
the 
distribution  of transport  services; 

to  prevent  anti-competitive  practices  which  could  affect 

identification  and  evaluation  of  the  environmental  impact  of  transport  and  the 
measures  to be taken to reduce  it; 

-  definition  of 

technical 

the 
interoperability  of  the  transport  system,  its  environmental  and  energy  impact  and 
its  safety; 

rules  and  standards,  particularly 

improve 

to 

- 

- 

- 

- 

improvement  of  transport  safety  through  the  appropriate  legal  and  technical 
framework; 

efficient  supervision  and  adaptation  of  the  rules  governing  the  single  market  in 
transport  services,  including their  enforcement; 

availability  of  relevant  and  timely  information  on  the  functioning  of  the  single 
market  in the transport  sector; 

further  convergence  of  the  different  charging  systems  for  infrastructure  and 
external costs; 

improvement  of the working  conditions,  standard  of  living and  training  of  workers 
in the transport  sector; 

"S 

-  promotion  of  agreements  with  third  countries  and  of  international  agreements 

dealing  with transport  issues; 

Whereas,  with  a  view  to  providing  active  and  tangible  support  for  the  promotion  of 
sustainable and  safe  mobility  as advocated by the Community,  significant  actions must 
be  initiated  involving  reliance  on,  and  close  cooperation  with,  the  principal  players, 
whether  at public or private,  national,  regional or  international  level; 

Whereas  the principle  of subsidiarity  in this sector calls for  close cooperation  with the 
players  involved,  based on the mobilization of the synergies  likely  to be most  effective 
in achieving  the common  objectives; 

the  actions  envisaged  either  precede  or  follow  on  from,  or  are 
Whereas 
in  the  framework  of  the  financial  support 
complementary  to,  actions  financed 
provided  for  projects  of  common  interest  involving  the  trans-European  transport 
network or actions  financed  under  the specific  programme on transport  research, 

HAS DECIDED  AS  FOLLOWS: 

Article  1 

This  Decision  concerns  the  definition  and  implementation  of  the  common  transport 
policy  and  the  trans-European  transport  network  with  a  view  to  ensuring  and 
encouraging  sustainable and safe  mobility. 

Article  2 

The  Commission  shall  be  responsible  for  the  implementation  of  Article  1 and,  to  this 
end,  may take such measures as it deems necessary,  namely: 

- 

- 

systematic  gathering,  processing  and  dissemination  of  information  relating  to 
transport  activities  in  the  Community  and  to  transport  activities  involving  the 
Community  and third countries; 

involvement  in the organization  of specialized  conferences  and  seminars  by  bodies 
pursuing  objectives  compatible with those of the Community; 

-  provision  of  support,  possibly  on  a  regular  basis,  for  analytical  work  carried  out 
by  national  or  international,  public  or  private  organizations,  provided  that  such 
work  contributes  effectively  and  directly  to  the  attainment  of  the  objectives 
pursued  under the common transport policy; 

- 

introduction  of 
technical 
harmonization  designed  to  ensure  the  interoperability  of  the  trans-European 
transport  network  and the optimum functioning  of the internal transport  market; 

support  measures 

incentives  and 

to  promote 

^ 

-  support  for  initiatives  seeking  to  ensure  greater  effectiveness  in  the  definition, 
development  and  promotion  of  the trans-European  transport  network  vis-à-vis  its 
technical, environmental and financial aspects and its expansion to third countries; 

-  encouragement of training operations in the transport sector with a specific view to 

promoting and improving transport safety and respect for the environment; 

- 

technical  and  financial  assessment  of  measures  taken  by  the  Commission  or  by 
third countries to promote mobility; 

-  performance  of cost-benefit analyses in respect of actions and projects. 

Article 3 

1.  With a view to implementing these measures, the Commission may: 

-  conclude  contracts  with  private  or  public  bodies,  subject  to  compliance  with  the 

procedures governing public contracts; 

-  co-finance  any  project  initiated  by  public  or  private  bodies,  whether  or  not 
international,  up  to  a maximum  of  50%  of  the total  cost  of  the  project,  with  no 
possibility  of  exceeding  this  limit  except  in  cases  where  the  exceptional 
Community scope of the action so warrant it; 

-  contribute to the operating budgets of public or private international  organizations 
of  which  it  is  a member  or  might  become  a member,  and  which  operates  in the 
transport sector; 

2.  Where  the  nature  of  the actions  and  the circumstances  so warrant  it,  appropriate 
publicity  measures  shall be taken with a view to calling for  proposals  and  setting 
out the procedures governing Community contributions to such actions. 

3.  The extent of the Community's involvement is determined mainly on the basis of: 

- 

- 

- 

- 

the usefulness  of the action as a means of achieving the objectives  of the common 
transport policy and the trans-European transport network; 

the  Community  scope  of  the  action  and  the  extent  of  the  multinational 
involvement; 

the  exemplary  or  innovative  nature  of  the  action  and  the  possibilities  for  its 
diffusion  and extension across the Community; 

the  contribution  made  by  the  action  to  the  promotion  of  cooperation  with  third 
countries. 

A  ° 

Article 4 

Each  final  payment  shall  be  preceded  by  a  detailed  check  on  the  services  provided, 
taking  into account  the contractual  obligations entered  into by the beneficiary  and  the 
principles  of  basic  economics  and  sound  financial  management.  Anti-fraud 
provisions  (monitoring  of  the  execution  of  the  contract,  periodic  reports,  financial 
control  measures,  etc.)  shall  be  inserted  into  all  contracts  concluded  between  the 
Commission  and third countries. 

Article 5 

Each year  the budgetary  authority  shall  fix  the  amount of  the  appropriations  allocated 
for  all these actions. 

Article  6 

Every  three years,  with effect  initially  from  2001, the Commission  shall present to the 
European  Parliament,  the  Council,  the  Economic  and  Social  Committee  and  the 
Committee  of  the  Regions  a  report  on  how  these  appropriations  have  been  used, 
together  with  an  evaluation  of  their  contribution  towards  the  achievement  of  the 
objectives  pursued  by the  Community. 

Article 7 

This Decision  shall enter  into force  on  1 January  1998. 

Done at Brussels, 

For  the Council 
The  President 

-"M 

Financial  statement 

1.  TITLE OF THE ACTION 

Measures to support and promote a policy of sustainable and safe mobility. 

2.  RELEVANT BUDGET HEADING 

B2-704 

3.  LEGAL BASIS 

Treaty  establishing  the  European  Community,  and  in particular  Articles  75,  84 and 
129 D thereof. 

4.  DESCRIPTION OF THE ACTION 

4.1 General objective of the action 

The  general  objectives  of  the  common  transport  policy  are  to  meet  the 
transportation  needs  of  citizens  and  businesses  of  the European  Union  in the 
most efficient  manner,  while at the same time contributing  to essential  social, 
environmental  and  safety  objectives.  In  particular,  reconciling  the  need  for 
mobility  with  the  imperative  of  protecting  the  environment  is  an  essential 
prerequisite for economic growth, employment and a better quality of life.  To 
this  end,  the  traditional  reliance  on  increases  in  capacity  will  have  to  be 
replaced  by  much  greater  emphasis  on  technically  advanced,  intermodal 
approaches.  The demand for mobility  should be met through a more  efficient 
use  of  scarce  resources  based  on  state-of-the-art  technologies  and  an 
appropriate regulatory  framework. 

Consequently,  the  work  programme  drawn  up  by  the  Commission  for  the 
period  1995-2000 consists of policies and actions in three fundamental  areas: 

- 

the  development  of  integrated  transport  systems  on  the  basis  of  advanced 
technologies  contributing 
to  environmental  and  safety  objectives: 
QUALITY ENHANCEMENT: 

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

-  developing  the EXTERNAL DIMENSION  where necessary  for  improving 
the  quality  of  transport  links  between  the  European  Union  and  third 
countries,  for  guaranteeing  access  of  Community  enterprises  to  transport 
markets  in other parts of the world  and for  ensuring proper  functioning  of 
the Single Market. 

^ 

As far  as safety  is concerned,  the role of the Community  has been  specifically 
recognized  by the Maastricht Treaty, which introduced  an amendment to 
Article 75  of  the  Treaty  establishing  the  European  Community  with  the 
express  purpose  of  including  transport  safety.  The  completion  of  the  internal 
market  means  that  the scale  of travel  within  the  Community  will  increase  and 
there  will  be  a  consequent  need  to  take  measures  to  promote  the  safety  of 
inland transport  (especially  by road) as well as of air and sea transport. 

The large  number  of road  accidents and the disparities between Member  States 
*  in  this  area  clearly  demonstrate  the  need  to  promote  experimentation  of  the 
highest  quality  in  the  Member  States  and  to  raise  safety  standards  to  the 
optimum  level.  The  fact  that  air  and  sea  transport  have  a  Community 
dimension  is no  longer  in doubt,  and safety  measures  must be  implemented  in 
a  coordinated  manner  and  in  collaboration  with  the  existing  specialized 
organizations. 

4.2  Period covered  by the action and procedures for its extension 

Of  unspecified  duration.  An  assessment  of  the  measures  taken  will  be  made  at  the 
end of the year 2000, and the advisability  of pursuing these actions will be discussed. 

5.  CLASSIFICATION  OF  EXPENDITURE/RECEIPTS 

5.1 Non-compulsory expenditure  (NCE) 

5.2 Differentiated appropriations (DA) 

6.  TYPE OF EXPENDITURE/RECEIPTS 

Co-financing,  normally  up to 50%, with other  sources  in the public or  private  sector, 
of actions pursuing Community  objectives  in this  field. 
Contribution  to international  organizations  in the sector. 
Contracts  concluded  with  consultants  or  undertakings  (public  or  private)  in  order  to 
acquire  the  information  and  analyses  necessary  for  the  development  of  the  common 
transport  policy  and  the  trans-European  networks  envisaged  under  the  Treaty. 
Technical  assistance  and training  schemes for  the benefit  of third countries  affected  by 
the  Community  policies.  Specific  training  and  information  measures  to  promote  the 
common  transport  policy  and  safety  measures  in  the  interests  of  the  Community. 
Drawing-up  of  Community 
at  promoting 
standards  aimed, 
interoperability  and  safety. 

in  particular, 

The  actions  also  cover  expenditure  on research,  meetings  of experts,  conferences  and 
congresses  and  information  and  publications  directly  connected  with  the  achievement 
of  the  aims  of  the  action  of  which  they  form  an  integral  part.  They  do  not  include 
expenditure  associated  with the management of these actions or  general  administration 
(see Commission communication  of 22 April  1992). 

41 

7.  FINANCIAL  IMPLICATIONS 

7.1 Method of calculating the total cost of the project 

In the main,  the actions envisaged  cover grants to public and private bodies  wishing  to 
submit  to  the  Commission  projects  falling  within  the  scope  of  the  objectives  pursued 
by  the  Community.  The  total  cost  of  these  projects  can  vary  greatly,  depending  on 
their scope, duration,  geographical  coverage, etc. 

The following  are examples  of such actions: 

- 

support  for  actions  undertaken  by  the  Community  of  European  Railways, 
representing  all  the  European  railway  companies,  with  a  view  to  defining 
characteristics  for  the  High  Speed  Train  network  at  the  level  of  infrastructures, 
interoperability  and traffic  control; 

-  grants  for  national  actions  selected  by  the  competent  national  administrations  on 
the basis  of  their  Community  appeal  and  general  application  and  in the  framework 
of the European Year of the Young Driver  1995. 

The  cost  of  these  actions  is  determined  by  the  authors  of  the  projects  but,  under  the 
Commission's  contractual  requirements,  checks  may  be  carried  out  to  establish  how 
these costs have  been calculated  and  to assess their  acceptability  in relation  to the cost 
of equivalent  services obtained  on a competitive basis. 

In the case of  research  and  the provision  of  services,  costs  are  determined  in the  light 
of  the  costs  proposed  by  the  specialized  transport  service  providers  on  an  open 
competitive basis. 

7.2  Itemized  breakdown 

This communication does not have any additional  implications  for  the budget  over  and 
above  the  appropriations  available  for  the  1996  financial  year  and  those  requested 
under the budgetary  procedure for  1997. 

7.2.1  Relevant  budget  heading 

BUDGET  1995 
(CA) 

Budget  1996 
(CA) 

Draft  budget  1997 
(CA) 

B2-704 

ECU  5.7  million 

ECU  8.5  million 

ECU  7.520  million 

A  statistical  comparison  of  the  currently  known  appropriations  for  this  heading 
with the future  Article B2-704 referred  to  in this Decision  is not permitted,  given 
that  the  latter  also  covers  actions  currently  financed  from  appropriations  under 
heading B2-702,  which currently  stand  at: 

A\J[ 

B2-702 

ECU  7.2  million 

ECU  8 million 

ECU 8.075 million 

7.2.2  Itemized  breakdown 

Breakdown 

Budget 95 

Budget 96 

PDB97 

CA millions ecus 

I.  Analyses  and  assessments  of  the 
trans-European  transport  network 

0.6 

II.  Interoperability  and  technical 
harmonization 

0.3 

III.  Market 
information  gathering 

observation 

and 

0.3 

IV.  Safety  measures 

- inland  transport 
- maritime  safety 
- air  safety 

TOTAL 

3.5 
0.5 
0.5 

5.7 

2.2 

0.6 

0.3 

4.0 
0.7 
0.7 

8.5 

2.0 

0.6 

0.5 

3.5 
0.7 
0.7 

8.0 

These  figures  are  based  on  the  actual  use,  during  the  years  in  question,  of  a  part  of 
the  appropriations  under  the  existing  headings  B2-702  (Specific  measures,  in 
particular  in  transport  safety)  and  B2-704  (Establishment  and  development  of  a 
common sustainable transport policy).  The other part of the appropriations  is deemed 
to  involve  preparatory  measures  or  autonomous  Commission  measures  and  therefore 
cannot be covered  by the legal basis proposed  here. 

7.3  Operating  expenditure  for  research,  meetings  of  experts,  etc.,  included  in 
Part B 

CA millions ecus 

Breakdown 

-  Research 

- 

Information  and  publications 

TOTAL 

Budget 95 

Budget 96 

PDB97 

0.5 

0.3 

0.8 

0.5 

0.3 

0.8 

0.5 

0.3 

0.8 

1J 

7.4 Multiannual operations schedule 

Not  applicable,  given  that  the  level  of  appropriations  will  be  determined  annually 
under the budgetary procedure. 

8.  ANTI-FRAUD  MEASURES  ENVISAGED  (AND  RESULTS  OF  THEIR 

IMPLEMENTATION) 

The allocation of grants,  provision of  services and commissioning  of preparatory 
studies  (feasibility  or  assessment)  are  verified  by  the  competent  Commission 
departments  prior  to  payment,  taking  account  of  contractual  obligations  and  the 
principles  of  sound  financial  management.  Anti-fraud  measures  (inspections, 
submission of reports, etc.) are included in all agreements and contracts concluded 
between  the  Commission  and  the  recipients  of  payments.  These  measures  are 
supplemented by on-the-spot inspections and external audits. 

9. COST-EFFECTIVENESS ANALYSIS 

9.1 Specific  quantifiable  objectives, target groups 

9.1.1  Specific objectives of the proposed action 

1) The  actual  implementation  of  the common  transport  policy  and  the trans-
European  networks  involves  the  execution  of  actions  the  objectives  of 
which are not always easily quantifiable. 

a)  Observation  of  the  transport  market  is  an  essential  prerequisite  for 
determining  changes  in the characteristics  of traffic  and the impact on 
the  transport  system  as  a  whole:  overcapacity  in  certain  sectors, 
foreseeable  congestion  of  infrastructures,  threats  to  safety,  conditions 
of  competition  and  analyses  of  the  impact  of  transport  and  increased 
traffic  flows on the environment. 

b)  Before  the  concept  of  the  trans-European  transport  network  can  be 
its  socio-economic  and 
defined,  a  number  of  analyses  on 
environmental  impact need to be carried  out  .  Similarly,  in order  to 
identify  and  promote  projects  of  common  interest  belonging  to  this 
network,  the  necessary  information  and  project  players  will  need  to 
be  brought  together.  These  tasks  lie  well  upstream of  the  actual 
financing  of  the  establishment  of  the  trans-European  networks  (B5-
700).  Steps must be taken to ensure the promotion and acceptance-of 
this new policy  introduced under the Maastricht Treaty. 

c)  The  integration  of  the transport  system will  involve  much  work  of a 
interoperability  and 

technical  nature 

to  ensure 

in  order 

the 

1€ 

development  of  common  rules  and  standards.  Steps  will  therefore 
need to be taken to prepare the technical regulations and their content 
and  to  arrange  for  the  competent  bodies  to  draw  up  technical 
standards. 

d)  The  common  transport  policy  is  assuming  an  increasingly  high 
profile  in the  Community  and  needs  to be explained  to  the  broadest 
possible  public,  ranging  from  the  professionals  to  the  users  of  the 
transport  system. 
In  addition,  numerous  information  and  public 
awareness  campaigns  will  be  necessary  in  response  to  the  growing 
demand  for  explanations  and  information  regarding  the  role  of  the 
Community. 

2)  The  completion  of  the  internal  transport  market  has  had  the  effect  of 
multiplying  travel  patterns  in  the  Community,  whether  for  business  or 
pleasure.  Consequently,  the  safety  of  road,  air  and  sea  transport  has 
become  one  of  the  Community's  foremost  policy  objectives,  recognized 
under the Maastricht Treaty and taking the form of various actions whose 
importance for the Community has been clearly demonstrated: 

technical harmonization of road transport and road traffic  rules; 

approximation  of 
laws,  technical  standards  and  administrative 
inspection  procedures  designed  to  ensure  the  safety  of  inland  and 
maritime transport; 

improvement  of  air  transport  safety  and  reduction  of  air  traffic 
congestion; 

promotion  of  maritime 
improved crew training and traffic  control measures; 

transport  safety,  particularly 

through 

reduction  of  the  risks  associated  with  the  transport  of  dangerous 
goods. 

3)  The  external  dimension  implies  actions  to  promote  the  transport  policy 
beyond  the  Community,  particularly  in  Central  and  Eastern  Europe  and 
in  the  Mediterranean  Basin,  in  order  to  ensure  the  coherence  of  the 
transeuropean  network  and  to  negotiate  market  access  conditions  in  line 
with the principles of the development of a sustainable and safe mobility. 

9.1.2  The target groups  include all professionals  and transport users as well as the 
national  and  international  administrations  involved  in  these  sectors,  with 
special  emphasis  being placed  on organizations  that are representative  at the 
European level. 

n 

9.2Grounds  for the action 

The  Treaty  accords  high  priority  to  the  common  transport  policy  and  to 
the  development  of  the trans-European  networks.  It also  recognizes  the 
role  which  the  Commission  is  called  upon  to  exercise  in  a  manner 
commensurate  with  its acknowledged  responsibilities  in the  various  areas of 
action. 

First and foremost,  the Commission is under an obligation to ensure that the 
Treaty  is  applied  dynamically  and  in  a  manner  commensurate  with  the 
economic realities of the rules of the Treaty  in the field  of transport.  To this 
end,  it  needs  to  have  at  its  disposal  the  necessary  tools  to  analyse  the 
operation of the market and to take action,  as and where necessary.  This is 
its primary  responsibility. 

In  other  areas,  such  as  networks,  the  Commission's  essential  role  is  to 
coordinate  the  policies  of  the  Member  States  and  ensure  the  cohesion  and 
interoperability  of  the  network.  It must therefore  draw  very  largely  on the 
contributions  of  the  regional  and  national  players  concerned,  in  order  to 
produce  any  real  added  value. 
to.  permit 
consultations  with  the  circles  concerned  have been set up to ensure  that the 
actions undertaken are such as to reflect  clearly identified  needs at all levels. 

Permanent  mechanisms 

in 

financed 

The  actions 
this  connection  are  always  based  on 
recommendations  drawn  up  by  the  administrations  through  the  various 
committees  (e.g., 
infrastructures)  or  by  groups  which  the 
Commission  convenes  at  regular  intervals  (e.g.,  high-level  groups  on  road 
safety,  GNSS, road traffic  telematic systems, etc.). 

transport 

As regards  inland transport safety.  Community  action in the area  of driver 
behaviour  must  seek  to  promote  synergy  among  national  measures  and 
strengthen  their  effects,  while  at  the  same  time  allowing  for  economies  of 
scale.  The  participation  of  the  Commission  will  serve  as  a  catalyst  for  the 
national  initiatives  and  for  the  financial  support  measures,  both  public 
(national and local) and private. 

As  well  as  ensuring  that  States  benefit  from  the  experience  acquired  by 
others,  the  provision  and  exchange  of  information  will  also  result  in  a 
levelling-up of safety  levels in Europe (road safety  levels four  times lower in 
Portugal  than in the United Kingdom,  for  instance).  The  introduction  of the 
CARE  base  should  help  in identifying  and  quantifying  road  safety  problems 
and also in measuring the efficiency  of the measures taken (Council  Decision 
93/704/EEC of 30 November  1993). 

Improvement  of  the  passive/active  safety  of  road  vehicles  is  an  area  where 
the  Community  has a clearly  defined  role  with clearly  defined  powers based 
on technical  harmonization  in the context of  the single market  (vehicle type-
approval).  Consequently,  in-depth  studies  will  need to be carried  out  on all 

49 

the technical  aspects likely to contribute to improving Community  legislation 
in the field  of active and passive motor vehicle safety. 

Given the increase in transfrontier  Community traffic,  steps must be taken to 
improve the free  flow  of traffic  and the levels of safety  by ensuring  that the 
environment  (signs,  traffic  rules,  etc.)  encountered  by  road  users  on  the 
move is as familiar  as possible. 

The transfrontier  carriage of dangerous goods by inland transport  is an area 
which  requires  increased  attention  on  the  part  of  the  Commission,  with  a 
view to preparing the necessary preventive measures. 

As  regards  maritime  safety,  the  continuation  of  the  action  programme 
launched  by  the  Commission  pursuant  to  its  communication  on  a  common 
policy  in  the  field  of  maritime  safety  has  resulted  in  the  adoption  of  a 
number  of  Community  acts  on  the  control  of  vessels  by  the  Port  State. 
Training measures are particularly necessary in this area. 

In  addition,  the  inclusion  of  the  management  and  information  systems 
relating  to  maritime  traffic  in  the  trans-European  transport  network  will 
require  studies and pilot-projects  to be carried  out,  especially  with regard to 
measures  designed  to  ensure  interoperability  and  interconnection  within  the 
network (with special reference to standardization). 

In  the  air  safety  sector  an  initial  set  of  actions  seeks  to  create  a  coherent 
regulatory  framework  and effective  mechanisms  for  following  up the  action 
taken  by  national  administrations.  To  this  end,  the  Commission  will  be 
proposing  the  creation  of  an  international  organization  which  would  be 
responsible  for  the  safety  of  civil  aviation  and  of  which  the  Community 
should  become  a  member.  Within  this  framework  it  will  be  required  to 
discharge  its financial  obligations.  At the same time, and in order to be able 
to set out the Community position within this organization's  decision-making 
bodies,  the  Commission  will  need  to  have  at  its  disposal  a  number  of 
analysis and assessment tools.  Accordingly,  it intends to set up a system for 
logging  and  processing  air  incidents  and  will  also  examine  the  question  of 
human  factors,  with  a  view  to  drawing  up  priorities  and  modalities 
governing the regulatory  activities of this organization. 

The  second  significant  set  of  actions  to  be  undertaken  concerns  the 
harmonization  and  integration  of  air  traffic  control  systems  in  Europe. 
Essentially,  this  involves  carrying  out  studies  on  the  most  appropriate 
institutional framework  and supporting essential standardization activities. 

In its White Paper on air traffic  management,  the Commission expresses the 
view  that  steps  should  be taken to  set up  an authority  to  be  responsible  for 
the  efficient  use  of  European  air  space  and  for  adopting  and  enforcing  the 
rules,  standards  and  procedures  necessary  to  that  end.  As  in  the  previous 
instance,  the  Commission  should  be  a member  of  that  organization,  within 

A 9 

which  it  will  have  the  task  of  promoting  its  interests.  Accordingly,  the 
Commission  should  have  at  its  disposal  the  necessary  analysis  and 
assessment resources to enable it to prepare the requisite common positions. 

9.3Monitoring and assessment of the action 

The  Commission  reports  regularly  to  the  Council  and  Parliament  on  the 
development of the common transport policy which is the subject  of a policy 
debate  seeking  to  define  the  necessary  guidelines.  The  White  Paper  of 
December  1992  constitutes  the  reference  tool  for  assessing  the  measures 
taken on the basis of the Community objectives designated therein. 

The Commission has clearly  set out the broad lines of the common transport 
policy  and  the  means  of  achieving  it.  In  the  light  of  comments  received 
from  interested  parties  and the Community  institutions,  the Commission has 
drawn up a programme of work covering the period  1995-2000. 

An assessment of the results obtained under this programme will be made in 
the  year  2000  and  should  provide  the  basis  for  defining  the  new  direction 
which  the  Community  should  take  thereafter.  This  assessment  will  also 
include an appraisal of the results in the light of the objectives  pursued. 

For  the purposes  of this  assessment,  a series  of  indicators  can be used  such 
as changes in traffic  distribution patterns with reference to the various modes 
of transport,  the impact of the transport sector on pollutant emissions and the 
extent  to  which  the  regions  have  access  to  the  trans-European  network 
(based on time and distance criteria).  The establishment of such indicators is 
currently  in progress. 

In  the  area  of  transport  networks,  the  actions  financed  under  this  heading 
have  made  it  possible  to  arrive  at  a  better  assessment  of  Community 
financial  contributions  in the field  of transport infrastructures  and to evolve a 
strategy  for  the  development  of  the trans-European  transport  network  along 
the  lines  set  out  in  the  Community  guidelines  adopted  by  the  Council  and 
Parliament  in July  1996. 

In  the  field  of  safety,  numerous  reports,  mainly  to  the  Council  and  the 
European  Parliament,  are  being  drawn  up  on  the  implementation  of  the 
various  actions,  accompanied  by  external  audits  to  verify  the  ultimate 
destination  of  funds  in  cases  where  grants  are  involved.  As  regards  road 
safety,  the  programme  of  actions  is  being  drawn  up  in  close  collaboration 
with  the  High-Level  Working  Party  of  Member  State  representatives,  and 
grants  are  allocated  in  line  with  this  programme  of  actions.  Indicators  are 
also currently being compiled. 

Zo 

10. 

ADMINISTRATIVE  EXPENDITURE 

This section  must be  transmitted simultaneously to  DG X/X and  DG DC;  the 
latter will  then return it,  together with an opinion, to DG XDC. 

The  effective  mobilization  of  the  necessary  administrative  resources  will  be 
determined  on  the  basis  of  the  Commission's  annual  decision  on  the 
allocation  of  resources,  taking  account,  in  particular,  of  the  additional  staff 
and  amounts that will have been authorized  by  the budgetary  authority. 

10.1  Staffing  implications 

The actions envisaged  fall  within the overall  ambit  of the various  departments 
making  up  the  Directorate-General  for  Transport  and  do  not  involve  the 
recruitment of additional  staff. 

to  be  assigned 

Staff 
management  of the action 

to 

the 

Duration 

Permanent  posts  Temporary 

posts 

Use 
of 
resources  within 
DG 
or 
concerned 

existing 
the 
service 

Recourse  to 
additional 
resources 

Type of post 

Officials 
or 
temporary  staff 

A 
B 
C 

Other  resources 
Total 
Where  additional  resources  are involved, please  indicate the rate at which they  would 
need to be made available. 

10.2  Overall  financial  implications  of additional  human  resources 

Not applicable. 

Officials 
Temporary  staff 
Other  resources  (indicate  budget 
heading) 

Amounts 

Method  of calculation 

(ecus) 

Total 
These  amounts  represent  the  total  cost  of the  additional posts for  the  entire period  covered  by  the  action  if  the 
latter  is affixed  duration  and for  12 months  if it is of unspecified  duration. 

1 

| 

2^ 

10.3 

Increases in other operating expenditure as a result of the action 

The impact is negligible and can be regarded as having been absorbed  by the 
DCs current operating expenditure. 

Budget heading 
(No and title) 

Amounts 

• 

Method of calculation 

(ecus) 

Total 
These  amounts  cover  the  total  expenditure for  the  action  if  the  latter  is  of fixed  duration  or  the  expenditure 
incurred over a  12-month period  if it is of unspecified duration. 

I 

ze. 

ISSN 0254-1475 

COM(96) 654 final 

DOCUMENTS 

EN 

07  15  01 

Catalogue number  :  CB-CO-96-667-EN-C 

ISBN  92-78-13265-9 

Office  for  Official  Publications of the European  Communities 

L-2985  Luxembourg 

^3