Proposal for a Council Decision establishing a scheme to monitor the average specific emissions of carbon dioxide from new passenger cars
Date: 1998-06-12
Institutions: European Commission
Subjects: environmental monitoring, environmental protection, greenhouse gas, motor car, pollution control measures

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I  COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 12.06.1998 
COM(1998) 348  final 

98/0202 (SYN) 

Proposal for a 
COUNCIL DECISION 

establishing a scheme to monitor the average specific emissions 
of carbon dioxide from new passenger cars 

(presented by the Commission) 

EXPLANATORY  MEMORANDUM 

1.  BACKGROUND 

1.1.  CO2 emissions and road transport 

In the context of world-wide efforts  to combat global climate change and as a 
party  to  the  United  Nations  Framework  Convention  on  Climate  Change  the 
Community  has  committed  itself  to  stabilizing  carbon  dioxide  (CO2) 
emissions at  1990 levels by the year 2000. Moreover,  it is recognized  by the 
Community  that  in  order  to  reduce  the  risk  of  a  dangerous,  anthropogenic 
interference  with  the climate  system, reductions  of greenhouse  gas emissions 
will  be required  in industrialized  countries in the medium term. Indeed, at the 
Conference  of the Parties to the  UNFCCC  held  in  Kyoto  in  December  1997, 
the  Community  accepted  a  target  contained  in  the  Protocol  to  reduce  its 
emissions  of a basket  of greenhouse  gases, including  CO2, by  8% relative to 
the levels in 1990 by 2008-2012. 

With  regard  to  the  above,  the  trends  in  CO2 emissions  from  transport  are  a 
special  cause  for  concern.  In particular,  CO2 emissions  from  passenger  cars 
account  for  about  half  of  all  CO2  emissions  from  the  transport  sector  and 
approximately  12% of CO2 emissions from all  sources  in the  EU. Passenger 
car CO2 emissions are expected to grow significantly  in the future  which may 
undermine the Community's commitments on climate change. 

1.2.  The Community's CÛ2/cars strategy 

While  there  was  a  clear  trend  of  fuel  efficiency  improvement  for  passenger 
cars  until  the  mid  1980s,  average  fuel  consumption  per  kilometre  has 
remained roughly the same since then. The average specific  emissions of CO2 
from  the current passenger car fleet is estimated at approximately  17jDg/km as 
measured by the "euromix" test cycle1. 

The  Community's  strategy  to  reduce  the  CO2 emissions  from  passenger  cars 
through  improved  fuel  economy,  as  proposed  by  the  Commission2  and 
endorsed  by  the  Council3,  includes  an  objective  for  new  passenger  cars  to 
attain an average specific  emission of CO2 of  120 g/km by 2005 (2010 at the 
three  pillars,  namely,  an 
latest).  The  C02/cars  strategy  consists  of 
environmental  agreement  with  the  manufacturers,  a  framework  for  fiscal 
incentives and a fuel economy labelling scheme to influence consumer choice. 

In its conclusions of 25 June 1996, the Council stated that the implementation 
of  a  CO2  monitoring  scheme  for  new  passenger  cars  was  of  "crucial" 
importance  in  order  to  assess  the  effectiveness  of  the  C02/cars  strategy.  In 

1  Defined  in  Directive  80/1268/HliC (OJ  L 375, 31.12.1980,  p. 36)  relating  to  the  fuel  consumption  of 

motor  vehicles. 

2  Communication  on  a Community  strategy  to  reduce  C02  emissions  from  passenger  cars  and  improve 

fuel  economy,  COM(95) 689  final. 
3  Council Conclusions  of 25 June  1996. 

2 

addition, the Council asked the Commission to report regularly on the impact 
of  the  C02/cars  strategy  on  the  new  car  market.  Furthermore,  the  Council 
considered  that  measures  to  reduce  CO2 emissions  should  be  coherent  with 
other  environmental  objectives,  in  particular  air  quality  objectives  including 
tropospheric  ozone  and  acidification,  and  should  not  compromise 
traffic  safety. 

The motivation to establish a scheme to monitor the average CO2 emissions of 
new  passenger  cars  was  an  integral  part  in  the  development  of  the 
Community's C02/cars strategy. As such, one of its functions  will be to  verify 
the correct  functioning  of any agreement that  is reached  with the  automobile 
manufacturers to reduce the fuel consumption of their vehicles. 

If agreement can not be reached and legislation is instead put into place, then a 
monitoring  system  will  still  be  required.  This  arises  from  the  fact  that  the 
attainment  of the  120 g C02/km target will depend  not only on technological 
improvements  in vehicles (achieved  by limit values for  example)  but also on 
the future development of the new car market. Developments in the market, as 
brought  about  by  fuel  economy  labels  and  fiscal  measures,  need  to  be 
monitored  as  do  negative  developments.  For  example,  if  there  is  a  general 
shift  by  consumers  to  "upsize"  their  vehicles  then  the  benefits  arising from 
reduced emissions from  individual cars may be negated by the overall shift  to 
less fuel efficient  models. 

For these reasons, a monitoring system will be necessary whatever the precise 
mix of policies comprising the Community's C02/cars strategy. 

1.3.  Current situation 

No  Community-wide  scheme  to  monitor  the  CO2  emissions  from  new 
passenger  cars  currently  exists  nor has any  Member  State  put  into  operation 
such  a  scheme  at  a  national  level.  The  difficulty  in  implementing  such  a 
monitoring  scheme  lies  in  linking  sales  and  or  registration  information  with 
official  fuel consumption data in a transparent way. 

Several  private  organizations  have  published  sales-weighted  estimates  of 
the average  fuel  consumption  of  passenger  cars,  for  example,  the  VDA 
(Verband  Deutscher  Automobilindustrie)  has  compiled  figures  for  the 
domestic German car fleet since 1978. 

The  most  comprehensive  scheme  to  monitor  the  CO2  emissions  from  new 
passenger  cars has been developed  by the European  Conference  of Ministers 
of  Transport  (ECMT)4  using  the  BDSA  (Base  de  Données  Statistiques 
Automobiles)  database covering  15 countries. The BDSA  is compiled  by the 
CCFA  (Comité  des  Constructeurs  Français  d'Automobiles)  from  many 
different  sources  and  inevitably  contains  some  inaccuracies.  Furthermore,  it 
does not cover all newly registered passenger cars (approximately 87% of new 
cars in ECMT countries). 

"Report on the monitoring of fuel  consumption and C02 emissions of new cars", European  Conference 
of Ministers of Transport, CEMT/CM(97)  17. 

3 

1.4.  Consultation with interested parties 

The  process  of  developing  the  current  proposal  has  involved  three  meetings 
with experts from the Member  States, ECMT, industry and NGOs. There has 
been  extensive  bilateral  discussion  with  several  Member  States  and  the 
European Automobile Manufacturers  Association(ACEA) and there is general 
support from both for the proposed C02/cars monitoring scheme. 

2. 

THE PROPOSED DECISION 

2.1.  Objectives 

The Community has adopted an objective of  120 g/km for the average specific 
emissions of CO2 to be attained by 2005 by the fleet  of new passenger cars in 
the  EU. There  is  currently  no  mechanism  to  monitor  accurately  the  average 
specific  emissions  of  CO2  from  new  passenger  cars  at  the  EU  level.  The 
objectives of the proposed Council Decision are, therefore: 

• 

• 

to assess the effectiveness  of the Community's C02/cars strategy; 

to  provide  information  on the  changes  in the  passenger  car  fleet,  due to 
the  implementation  of  the  strategy,  which  may  affect  other  Community 
policy  objectives  such  as  air  quality,  ground  level  ozone,  regional 
acidification  and road safety; 

• 

to assess the impact of the C02/cars strategy on the new car market. 

2.2.  Type of information collected 

The proposed  Decision  provides  for  a monitoring  scheme  which  will  collect 
information  relating to the specific  emissions of CO2, manufacturer,  fuel type, 
mass,  engine  power  and  engine  capacity  of  each  newly  registered  passenger 
car.  The  Council, 
the  wish  that  any 
its  conclusions,  expressed 
monitoring scheme be based on official  data from  the competent authorities in 
the Member  States. The range of the data to be collected  and reported  arises 
from  the  objectives  that  a  monitoring  scheme  must  address  in  addition  to 
its ability  to  monitor  progress  towards  the  Community's  specific  CO2 
emissions objective. 

in 

The first is to provide data to allow an assessment  of the changes in the new 
car  fleet  which  could  impact  on  other  Community  environmental  objectives 
such  as  air  quality,  acidification  and  ground  level  ozone.  For  example,  the 
emissions  from  petrol  and  diesel  vehicles  contribute  differently  to  these 
environmental  effects  and thus an increased  market  share of one or other  fuel 
types may have implications for the attainment of these Community  objectives 
in the future. 

Secondly,  the  Council  in  its  conclusions  of  25  June  1996  specifically 
requested  that  the  Commission  take  into  account  "the  importance  of 
contributions from  each car manufacturer  in reducing fuel  consumption". It is, 
therefore,  important  from  both the Community's  and the manufacturers'  point 

of  view  that  the  monitoring  scheme  be  able  to  demonstrate  that  each  of  the 
manufacturers  is contributing to the success of any environmental  agreement. 

Thirdly, the collection  of data regarding the distribution  of CO?, mass, power 
and  engine  capacity  will  allow  the  influence  of  the  C02/cars  strategy  on  the 
characteristics  of  the  new  car  market  to  be  assessed  as  requested  by  the 
Council (for example, to identify  trends such as a downsizing of the car fleet). 
Such  information  might  also  be  useful  in  assessing  the  potential  impact  on 
road  safety,  the  future  demand  for  motor  fuels,  competitiveness  of  the 
automobile industry, etc. 

The  proposed  monitoring  scheme  will  allow  a  more  precise  understanding 
of the  emissions  characteristics  of  the  whole  passenger  car  fleet.  This  will 
aid Member  States  in  estimating  such  emissions  within  the  framework  of 
Council  Decision  93/389/EC relating to a Community  mechanism  to monitor 
anthropogenic CO2 and other greenhouse gas emissions5. 

2.3.  Description of the proposed monitoring scheme 

The  operation  of  the  proposed  scheme  depends  upon  the  collection  of  the 
appropriate  data by the competent  authorities  in the  Member  States. Vehicle 
specific  data, including the specific  emissions of CO2, for  cars registered  in a 
given  calendar  year  are  to  be  collected  and  some  simple  manipulation 
performed  (e.g. calculation  of average specific  emissions  for  different  groups 
of  vehicles).  This  aggregated  data  is  then  to  be  communicated  to  the 
Commission  who  will  aggregate  the  data  further  on  an  EU  scale  before 
publishing  an  annual  report.  This  monitoring  information  will,  of  course, be 
available to both consumers and organizations representing their interests. 

All  of  the  data  to  be  included  in  the  proposed  monitoring  scheme  will  be 
available  by  the  proposed  implementation  date  as  a  result  of  existing  or 
planned  Community  legislation  covering the type-approval  of motor  vehicles 
and their trailers6. This data  should  be consistent  between  Member  States  as 
all national type-approval authorities must satisfy  the requirements of existing 
Community legislation in this area. 

From  the  responses  that  the  Commission  has  received  from  its  requests  for 
information  it  is  apparent  that  most,  if  not  all,  Member  States  operate 
centralized  and  computerized  vehicle  registration  databases  containing  much 
of  the  information  required  by  the  proposed  monitoring  scheme.  The 
information  in  the  registration  files  comes  from  either  the  Certificate  of 
Conformity  (CoC) or the type-approval documentation (see below). 

The information  required to underpin the proposed monitoring scheme is to be 
collected  by  the  competent  authorities  in  the  Member  States.  In  many 
instances  this  will  be  those  official  bodies  responsible  for  the  collection  of 
vehicle-registration  data.  The  various  vehicle  registration  schemes  in  the 

5  OJL  167, 9.7.1993, p. 31. 
6  Directive  70/156/EEC  (OJ  L 42,  23.2.1970,  p.  1);  last  amended  by  Directive  96/27/EC,  (OJ L 169, 

8.7.1996, p. 1). 

Member States exhibit some heterogeneity. However, it is not the intention of 
this  proposed  Decision  to  harmonize  these  systems,  but  simply  to  use  the 
information  that they currently  store. In most cases, some minor  upgrading of 
the  registrations  systems  will  be  required  in order  that  they  are  able  to  store 
and  access  those  categories  of  information  which  are  required  but  not 
currently collected and to assure the quality of this data. 

It has been decided to adopt a flexible  approach  towards the collection  of the 
relevant  monitoring  data.  The  preferred  procedure  will  use  the  CoC  as  the 
source of data, but the Decision will permit alternative approaches if they can 
be demonstrated  to yield equivalent results. Member States will be obliged to 
collect  only  those  data  which  are  essential  to  the  objectives  of  a  C02/cars 
monitoring  scheme  in order to minimize the extent  to which  national  vehicle 
registration  systems must be adapted.  It is recognized  that CO2 emissions data 
may  not  be available  for  a small  proportion  of vehicles  registered  each  year. 
This  is  because  they  fall  outside  of the  scope  of the  European  type-approval 
process.  For example  if cars are produced  in  low volume,  imported  privately 
from  outside of the EU or self built from  kits. These vehicles are not expected 
to influence the European average specific  CO2 emission figure  significantly. 

2.4.  Financial  implications 

Member States have been asked to estimate the costs of implementation of the 
proposed  monitoring  scheme.  However,  the  situation  is  complicated  by  the 
fact  that  some  Member  States  have  initiated  steps  to  upgrade  national 
registration systems for domestic policy reasons (e.g. purchase and circulation 
taxes  linked  to  vehicle  emissions).  The  recent  Commission  proposal  to 
harmonize registration  certificates  within the Community7  may also provide a 
stimulus for some Member States to modify  their registration systems. 

Those  Member  States  that  have  responded  have  indicated  that  the  costs 
associated  with  these  modifications  lie  in  the  range  ECU  17 000-125 000, 
though  the  majority  cite  costs  at  the  lower  end  of  this  range.  The  same 
Member  States  have 
annual 
costs associated with  operating  the  monitoring  scheme  and  these  lie  in  the 
range  ECU  1  000-42 000.  Overall, 
the 
the  costs  associated  with 
the 
initial implementation  of  a  C02/cars  monitoring  scheme  across 
15 Member States are estimated  at somewhere  between ECU 0.5-1.0  million. 
Annual running costs are expected to be somewhat less than this. 

there  are  additional 

indicated 

that 

2.5.  Vehicle type-approval 

The information required for the operation of the proposed monitoring scheme 
is generated by the existing EC type-approval process for motor vehicles. The 
measurement  of  the  specific  emissions  of  CO2 is  an  integral  part  of  the 
type-approval process8. 

7  Communication on registration documents for motor vehicles and their trailers, COM(97) 248 final. 
8  Directive 80/1268/EEC (OJ L 375,31.12.1980, p. 36), as amended by Directive 93/116/EC (OJ L 329, 

30.12.1993, p. 39). 

6 

As  part  of  the  application  for  vehicle  type-approval,  the  manufacturer  must 
provide  an  information folder  which  contains  the  technical  details  of  the 
vehicle  type.  Once  a  type-approval  has  been  granted,  a  type-approval 
certificate  is  issued  by  the  type-approval  authority  to  which  the  original 
application  was  made.  In  addition,  an  information package  containing  all 
relevant technical  information  relating to the type-approval  is circulated to all 
other national type-approval authorities in the Community. 

According to the provisions of Article 6 of Directive 70/156/EEC, as amended 
by Directive 92/53/EEC9, the manufacturer,  in his capacity  as the holder of a 
vehicle  type-approval,  shall  issue  a  Certificate of  Conformity (CoC)  which 
shall  accompany  each  new  vehicle.  Furthermore,  Article  7  of  the  same 
Directive states that "each Member State shall register, permit the sale or entry 
into  service  of  new  vehicles  on  grounds  relating  to  their  construction  and 
functioning  if,  and  only  it  they  are  accompanied  by  a  valid  Certificate  of 
Conformity".  The CoC is specific  to a particular  vehicle and  contains all the 
relevant  data  required  for  the  implementation  of  the  current  Decision.  A 
Commission  Directive10, amending  Directive  70/156/EEC,  has been  adopted 
which  will  ensure  that  the  value  of  the  specific  emissions  of  CO2  will 
appear on  the  CoC  before 
the  commencement  date  of  the  proposed 
monitoring scheme. 

The  manufacturer  may subdivide  the  vehicle  type into  variants and versions 
the  relevant  technical  data  for  which  should  also  appear  in  the  information 
folder  and  the  information  package.  The  type,  variant  and  version  are 
identified  by  a  unique  numbering  system.  In  addition,  the  manufacturer 
declares only one official  CO2 emission  figure  per version. It is the intention 
of  the  proposed  monitoring  scheme  to  use  only  "version  specific5'  data.  The 
CoC contains only version specific data. 

Manufacturers  adopt  different  practices  with  respect  to  the  degree  of 
differentiation  within  a  particular  vehicle  type  (i.e.  the  number  of  different 
versions  that  they  declare).  Within  a given  version  there  may be  differences 
between  vehicles  with  respect  to  their  CO2 emissions  but  the  "worse  case" 
CO2  emission  is  declared  by  the  manufacturer  for  type-approval  purposes, 
This figure  is included in the CoC. It is apparent that the more versions that a 
manufacturer  declares then the more accurate the average CO2 emission figure 
will be for a given vehicle type. Greater differentiation  in the future  may also 
lead to a greater apparent reduction in the average specific CO2 emissions of a 
manufacturer's  new  car  fleet  relative  to the  current  situation.  This  reinforces 
the requirement that a monitoring scheme must utilize "version specific" data. 

If manufacturers  differentiate  their vehicle types further  in the future, then this 
may  place  an  added  technical  burden  on  the  national  vehicle  registration 
systems. This is pertinent to those Member States which plan to upgrade their 
particular systems in the near future. 

9  OJL 225,  10.8.1992, p. 1. 
10  Commission Directive 

OJ L 

2.6.  Test cycles and CO2 measurements 

the 

test  cycle  as  defined 

Prior  to  1997,  fuel  consumption  and  CO2  measurements  of  passenger 
in 
"euromix" 
cars were  made  using 
Directive 80/1268/EEC. This cycle has been replaced by the same test cycle as 
that used to measure the exhaust gas emissions of passenger cars, the so-called 
Combined  Urban/Enhanced Urban Drive Cycle ("ECE + EUDC")11. However, 
a proposed  Directive(12)  will,  if adopted,  modify  the  ECE  test  cycle  used  for 
the measurement  of exhaust  gas emissions and  introduce  new reference  fuels 
as from  1  January 2000 for new vehicle types and from  1  January 2001 for all 
new cars. The test cycle specified  for the measurement of CO2 emissions will, 
however,  remain  unchanged.  The  Commission,  therefore,  intends  to  bring 
forward  amending  legislation  to  ensure  that  both  exhaust  gas  emissions  and 
CO2  emissions  are  measured  according  to  the  same  test  procedures  post 
1 January 2000. 

As  a  consequence  of  modifying  the  current  ECE  drive  cycle,  the  average 
specific  emissions of CO2 as measured for type-approval  (and used within the 
CO2 monitoring  scheme)  will  increase.  This  increase  may  be  of the  order of 
3% though this estimate is provisional.  Since the monitoring  scheme covered 
by the proposed  Decision will commence as of  1  January 2000, it is likely that 
this  increase  in  specific  CO2 emissions  will  be  captured  and  it  is,  therefore, 
important to be aware of its origin. 

2.7.  Which fuels are included? 

is 

the  accuracy  and  consistency  of  data  collected  by 

An  important  requirement  for  the  correct  functioning  of  the  monitoring 
scheme 
the 
Member States.  This  was  recognized  by  the  Council  who  asked  that  any 
scheme  be based  upon  official  data  collected  by the  competent  authorities  in 
the Member States. 

The  above  principle,  therefore,  excludes  data  which  are  not  measured  in  a 
consistent  way  using  standard  fuels  and  common  procedures  across  the 
Community. It is apparent, therefore,  that the monitoring  scheme is restricted 
to data which  is collected  under  EC type-approval  legislation.  Currently,  this 
only  includes  petrol  and  diesel  vehicles  though  the  intention  is  to  include 
Compressed  Natural  Gas  (CNG)  and  Liquefied  Petroleum  Gas  (LPG)  in  the 
future. The Commission will come forward  with amendments to this Decision 
as and when new fuels  are included  in the type-approval  legislation.  Initially, 
it  is  expected  that  few  gas  fuelled  vehicles  will  be  type-approved  and  the 
impact,  therefore,  on  the  average  CO2 emissions  value  of  the  new  car  fleet 
will be small. 

11  Defined  in  Directive  91/441/EEC  (OJ  L242,  30.8.1991,  p.  1)  amending  Directive  70/220/EEC 
(OJ  L 76, 6.4.1970, p. 1) relating  to measures to be taken against air pollution from  motor vehicles. 
12  Communication  on  a  further  strategy  for  the  control  of  atmospheric  emissions  from  road  transport 

taking into account the results of the Auto Oil programme, COM(96) 248 final. 

8 

The inclusion of  electric vehicles is problematic  because  of the  difficulty  in 
assessing  the  benefits  of  their  use  in  terms  of  their  overall  C02  emissions. 
Although tail-pipe emissions of CO2 are zero, the life-cycle emissions may be 
considerable.  In  addition,  these  life-cycle  emissions  may  vary widely  across 
the  Community due to  the very different  structures  of the power  generation 
industries in the Member States. 

2.8.  Data quality assurance 

The Member  States shall  be responsible  for  the validity and accuracy of the 
data that they collect. The proposed  monitoring scheme will only use  official 
data  from 
type-approval 
documentation  or  the  Certificate  of  Conformity.  In  addition,  certain  criteria 
have been laid down as to bow these data sources are to be used. 

the  Member  States 

taken  either  from 

the 

There  are,  nonetheless,  several  potential  sources  of  error  which  have  been 
outlined in the proposal. These include human error in the conversion of data 
contained  in  the  (paper)  type-approval  documentation  to  a  digital  form,  the 
selection of the correct "version specific" data from  such electronic databases 
of type-approval information, human error during the transfer of data from the 
(paper)  Certificate  of  Conformity  to  the  electronic  registration  file  during 
vehicle registration  and the transfer  of incorrect data from manufacturers  and 
dealers  during  automated  vehicle  registration.  The  Member  States  will  be 
asked  to minimize these errors and  to assess the quality  of the data that they 
collect. The accuracy of this data  is of prime importance as it will  be used to 
measure both the effectiveness  of the Community's C02/cars strategy and the 
performance  of the automotive manufacturers  in reducing the CO2 emissions 
of the new car fleet.  In any event, the Commission will assess the  functioning 
of the  monitoring  system  and may propose appropriate  measures  to  improve 
the operation of the scheme should they be necessary. 

2.9.  Car registration  systems in the Member States 

It  is  not  the  intention  of-this  proposed  Decision  to  harmonize  the  various 
national vehicle registration systems but simply to build upon them in order to 
extract data of a certain quality for monitoring purposes. As an indirect  effect, 
implementation  of  the  monitoring  scheme  may  require  some  registration 
systems  to  be  adapted.  There  exists  a degree  of  heterogeneity  in  the  various 
national  vehicle  registration  systems  which  are  described  below.  The  data 
contained in the national registration databases is summarized in Table 1. 

2.9.1.  Austria 

A  customer  must present  a CoC to the appropriate  regional  body  in 
order  to  register  a new  passenger  car.  The  regional  authorities  then 
forward  the  data  to  the  Ministry  of  the  Interior  (and  the  central 
statistical  office)  where  a registration file is created  in  a  centralized 
database.  Austria  has  recently  implemented  a new  car purchase  tax 
based  upon  the  fuel  consumption  and,  at  a  later  date,  upon  the 
specific emissions of CO2. This should contribute to the accuracy and 
quality of the data collected for monitoring purposes. 

2.9.2.  Belgium 

A  centralized  passenger  car registration  system  exists  where  the data 
required  for  each  registration  file  is  taken  from  type-approval 
documentation  except  for privately  imported vehicles  where the CoC 
is used, if one is available. 

2.9.3.  Denmark 

A  computerized  system  for  the  registration  of  passenger  cars  is  in 
operation. Administrative changes are envisaged which will allow the 
inclusion of fuel  consumption  in the electronic  registration  file  which 
will  be  used  as  the  basis  to  calculate  a  circulation  tax.  The 
registration  data 
type-approval  documentation 
from 
otherwise the CoC is used in conjunction with a vehicle  inspection. 

taken 

is 

2.9.4.  Finland 

is  performed  on-line  at 
Registration  of  new  passenger  cars 
organizations  such  as  official  inspection  sites  and  a  database  of 
version  specific  vehicle  registration  data  currently  exists.  The 
type-approval 
information 
documentation or from a vehicle inspection but not from the CoC. 

from  a  database  of 

is  extracted 

2.9.5.  France 

The  registration  file  and  certificate  are  created  upon  demand  and 
presentation  of  the  CoC  by  the  vehicle  owner  at  the  appropriate 
authority  in  the  Départements.  All  registration  files  are  stored  in 
contains 
a centralized 
version-specific  information.  This  version-specific  data  is  retrieved 
from  a  database  of  type-approval  data  using  the  type,  variant  and 
the 
version  numbers  contained  on 
vehicle owner. 

registration  database  which 

the  CoC  presented  by 

vehicle 

2.9.6.  Germany 

is 

the 

from 

taken 

information 

A  centralized  national  database  of  vehicle  registration  information 
exists.  The 
type-approval 
documentation  although  the  technical  data  for  several  similar 
versions,  as  defined  by  type-approval  legislation,  are  aggregated  in 
the  database.  Technical  information  for  "each aggregated  version" is 
sent to the regional registration authorities (responsible to the Lander) 
to  the 
who 
applicant  upon  presentation  of  a  "German  CoC"  ("Fahrzeugbrief') 
given  by  the  manufacturer  or  importer  if  authorized  by  the  KBA  on 
the basis of an existing type-approval. 

issue  a  registration  document  ("Fahrzeugschein") 

2.9.7.  Greece 

The Direction of Information at the Ministry of Transport maintains a 
national  electronic  database  of  vehicle  registration  data.  The  data 
contained  in  the  registration  files  is  extracted  from  a  database  of 

10 

type-approval information  when a vehicle is presented for registration 
by one of the responsible regional authorities. Before a vehicle can he 
registered,  information  in  the  type-approval  file  is  cross  checked 
against  data  contained  in  the  CoC  using  type,  variant  and  version 
numbers to access the type-approval database. 

2.9.8.  Ireland 

The  technical  information  required  for  the  registration  of  new 
passenger  cars  is  supplied  by  the  franchized  distributors  in  an 
electronic  format  and  stored  in  a  central  database.  This  data  is 
essentially  that  contained  in  the  CoC.  A  request  to  register  a  new 
vehicle  is made on-line at a local  office.  This triggers the extraction 
of  the  appropriate  data  from 
the  central  database  which  is 
incorporated into a registration file. 

2.9.9. 

Italy 

No  information  has  been  received  regarding  the  vehicle  registration 
system in Italy. 

2.9.10. Luxembourg 

A  central  computerized  database  of  passenger  car  registration  data 
exists. This data is generally taken from type-approval documentation 
supplied  by the  manufacturers  or  else from the  CoC  accompanying 
each  new  car.  Only  those  data  required  for  the  operation  and 
calculation of the annual circulation tax are stored currently. 

2.9.11.  Netherlands 

from 

type-approval  documentation, 

The  present  vehicle  registration  database  will  be  replaced  in  the 
Netherlands  in  the  next  1-2  years.  Currently,  version-specific 
information,  obtained 
is 
contained  in a central  database maintained  by the central  registration 
authorities.  The  importer  (manufacturer/dealer)  of  a  new  vehicle 
requests  the  production  of  a  registration  card  by  the  central 
registration  authorities  by transmission  of  certain  data  appearing  on 
the  CoC  which  is  sent  electronically  to  the  central  registration 
authority.  The  registration  card  is  sent  to  the  dealer  and  ultimately 
passed on to the purchaser of a new car. 

2.9.12.  Portugal 

A  central  database  of 
information  is taken from the CoC. 

registration 

information  exists.  This 

11 

2.9.13.  Spain 

Information taken from a "technical inspection sheet" (based upon the 
CoC)  is  used  by the  provincial  traffic  authorities  when  creating an 
electronic registration file during the vehicle registration process. The 
Directorate-General  for  Traffic  is  responsible  for  a  centralized 
containing the individual registration  files. 

2.9.14.  Sweden 

During the registration of a new passenger car, data from the CoC is 
extracted and used to create a registration file for the new vehicle. A 
central  computerized  database  exists  for  the  storage  of  each 
registration  file. 

2.9.15.  United Kingdom 

A central computerized vehicle registration database currently exists. 
Type-approval  information  is used though no "data extraction" from 
databases takes place. The CoC is used for non-mainstream vehicles. 
The registration system  is currently being updated which will  allow 
automatic  data  entry  by  the  manufacturer/dealer  (essentially  an 
electronic  version  of  the  CoC)  and  the  on-line  production  of  a 
registration  certificate  at the  showroom.  It  is  foreseen  that  90% of 
first  time registrations will be performed in this manner by 1999. 

3. 

JUSTIFICATION WITH REGARD TO THE PRINCIPLE OF SUBSIDIARITY 

(a)  What  are  the  objectives  of  the  planned  action  in  the  context  of  the 

obligations incumbent on the Community? 

The Community's  strategy  to  reduce  the  CO2 emissions  from  new  passenger cars 
sets out an emissions  objective  of  120 g/km  of  CO2 expressed  as an average over 
all new  cars  sold  in  the  Community.  This  objective  is  to  be  attained  by  2005 
(2010 at the latest). 

A  scheme  to  monitor  the  average  specific  emissions  of  CO2 from  new  passenger 
cars is required in order to assess the effectiveness of the Community's strategy. This 
was recognized by the Council in its conclusions of 25 June 1996. 

(b) 

Is  the  planned  action  in  an  area  where  the  Community  has  exclusive 
competence or shared competence with the Member States? 

Shared competence; Article 130s. 

12 

(c)  What is the Community  dimension to the problem  (for example, how many 
Member  States  are  concerned  and  what  solutions  have  been  in  force 
until now)? 

The C02/cars strategy sets out a Community objective  and, therefore,  monitoring at 
a Community  level  is required  to assess the effectiveness  of the  C02/cars  strategy. 
No system currently  exists at an EU level which would allow for  monitoring  of the 
specific  emissions  of  CO2  from  new  cars.  Only  the  Member  States  collect  the 
necessary  data  for  the operation  of a monitoring  system  of  sufficient  accuracy  and 
robustness. All Member States are concerned. Participation is, therefore, required by 
each  of  the  Member  States  in  order  for  a  Community-wide  monitoring  scheme  to 
be successful. 

(d)  Does action at the Community level or at Member State level represent the 

most effective solution? 

Coordination at a Community level is required because of the nature of the objective 
which  has  been  set.  The  Member  States  remain  responsible  for  the  collection, 
storage  and  transmission  of  the  appropriate  data.  The  proposed  Decision  only 
provides for the aggregation of the data at the EU level. 

(e)  What benefits would the proposed Community action bring and what would 

be the cost of inaction? 

The principal  benefit  of the proposed action is the ability to assess the  effectiveness 
of  the  Community's  policies  to  reduce  the  specific  emissions  of  CO2  from  new 
passenger  cars. The cost of inaction  is difficult  to express  in monetary  terms but if 
measures  to  reduce  these  emissions  are  not  successful  then  there  will  be  an 
additional risk of anthropogenic interference  with the climate system. It is extremely 
difficult  to estimate  the  benefits  associated  with  the  implementation  of  a C02/cars 
monitoring  scheme. In practice, it is the only way to  monitor  progress towards  the 
Community's CO2 emissions objective for passenger cars. 

Member  States  have  been  asked  to  estimate  the  costs  of  implementation  of  the 
proposed  monitoring  scheme.  Those  Member  States  that  have  responded  have 
indicated  that  the  costs  associated  with  these  modifications  lie  in  the  range 
ECU  17 000-125 000, though the majority  cite costs at the  lower end of this range. 
The  same  Member  States  have  indicated  that  there  are  additional  annual  costs 
associated  with  operating  the  monitoring  scheme  and  these  lie  in  the  range 
ECU  1  000-42 000. Overall, the costs associated with the initial implementation of a 
C02/cars  monitoring  scheme  across  the  15  Member  States  are  estimated  at 
somewhere  between  ECU 0.5-1.0  million. Annual running costs are expected to be 
somewhat less than this. 

(f)  What  instruments  are  available  to  the  Community  (recommendation, 

financial support, regulation, mutual recognition,...) 

For the monitoring system to work all Member  States must transmit a minimum set 
of data to the Commission each year. For this reason it is felt that a recommendation 
or financial  support can not guarantee that this will be the case. The purpose  of the 
proposed legislation is to ensure that the Member States transmit certain data to the 
Commission. A harmonization of national provisions is not intended. 

13 

The choice, therefore,  lies between  a  Decision  and  a  Directive.  Precedents1 •' set by 
existing  Community  legislation  in  similar  areas  seems  to  indicate  that  a  Decision 
would be most appropriate. 

(g)  Is  uniform regulation necessary or  would a  Directive  which outlines the 
general  objectives but  which leaves  the  method  of  implementation to  the 
Member States suffice? 

As  outlined  in  (f)  above,  the  aim  of  the  proposed  Decision  is  to  ensure  the 
availability  of certain  data at  a Community  level. The monitoring  scheme  requires 
quite specific  information  which  must  be obtained  from  similar  sources in order to 
guarantee  that  information  from  one  Member  State  is  consistent  with  that  from 
another and of comparable  accuracy. However,  it  is not the  intention  to harmonize 
the  national  vehicle  registration  systems.  For  the  proper  functioning  of  the 
monitoring  scheme  it  is  only  necessary  that  these  registration  systems  capture  a 
minimum set  of  data  with  an  appropriate  level  of  accuracy.  Member  States  will 
retain  the  flexibility  with  regard  to  the  operation  of  their  national  vehicle 
registration systems. 

4.  CONTENTS OF THE PROPOSAL 

4.1.  Article 1 

This requests that Member States implement a system to monitor the average 
specific  emissions  of  CO2  of  new  passenger  cars  in  their  territory.  It  only 
applies to passenger cars registered for the first time in the EU. 

4.2.  Article 2 

This  Article  provides  definitions  for  a  number  of  terms  appearing  in  the 
proposed Decision. 

4.3.  Article 3 

This  Article,  in  conjunction  with  Annex  I,  states  which 
individual 
vehicle-specific  data are to be collected by the Member States and used by the 
the 
C02/cars  monitoring  scheme.  In  addition, 
responsibilities of Member States with regard to the validity and quality of the 
data that they collect. 

the  Article 

indicates 

4.4.  Article 4 

This Article specifies which data are to be communicated to the Commission. 
The  preparation  of  the  data  requires  some  simple  manipulation  of  the 
individual  vehicle  specific  data  collected  throughout  the  preceding  calendar 
year. These manipulations are described in Annex III. 

13 

(a)  Council  Decision  97/101/EC  establishing  a  reciprocal  exchange  of  information  and  data from 
networks and individual stations measuring ambient air pollution within the Member Stales (OJ L  35, 
5.2.1997,  p.  14); (b) Council  Decision 93/389/EEC for  a  monitoring of  Community C02  and other 
greenhouse gas emissions (OJ L 167, 9.7.1993, p.  31). 

14 

The data transmitted to the Commission should be in a certain format which is 
described  in Annex  IV. It is proposed  that  Member  States  will  have a period 
of three months from  the end of a given calendar year in which to transmit the 
specified  data to the Commission, though in the first year of operation this has 
been extended to six months. 

4.5.  Article 5 

This  Article  simply  requires the  Member  States to designate  an  organization 
to be responsible for the collection and communication of the monitoring data 
and to inform the Commission of their nomination. 

4.6.  Article 6 

This  Article  requests  the  Member  States  to  inform  the  Commission  on  how 
they intend to implement the requirements of the Decision. 

4.7.  Article 7 

This  Article  describes  the  obligation  on  the  Commission  to  report  on  the 
functioning  of the monitoring scheme by 31 December 2003. 

4.8.  Article 8 

This  Article  describes  the  Commission's  intention  to  report  to  Council  the 
monitoring data received from the Member States on an annual basis. 

4.9.  Article 9 

This  Article  states 
Member States. 

4.10.  Annex I 

that 

the  Council  Decision 

is  addressed 

to 

the 

This  Annex  describes  the  information  which  must  be  collected  by  the 
Member States. It also indicates from where this data is to be taken. 

4.11.  Annex II 

This Annex describes the conditions governing the use of certain data sources 
other  than  the  Certificate  of  Conformity  for  use  in  the  proposed  monitoring 
scheme and outlines several potential sources of error. 

4.12.  Annex III 

This Annex describes the mathematical treatments to be performed  on the data 
collected by the Member States before it is transmitted to the Commission. 

4.13.  Annex IV 

This  Annex  describes  the  format  of  the  monitoring  data  which  is  to  be 
communicated to the Commission. 

15 

Table 1.  Summary of data contained in national vehicle registration  databases 

Source of registration data 

= 

" 
Information  contained in electronic registration  files 

Type-approval 

Certificate  of Conformity 

Fuel-type 

Manufacturer 

Power 

Engine 
capacity 

Mass (of bodywork in 
running order) 

yes 

yes 

yes 

yes 
(without 
coolant and oil) 

fuel, 

yes 

yes 

possible via VIN 

yes (not based on CoC) 

yes (not based on CoC) 
n 

no -  but possible 

yes 

yes 

yes 

yes 

yes 

yes 

no 

yes 

yes 

yes 

yes 

no - but possible 

yes 

yes 

no 

yes 

yes 

yes 

? 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

: 

| 

I 

privately imported vehicles 

yes 

yes  (mass 
order minus  100 kg) 

in  running 

yes 

no - but possible 

no 
- 
possible 

but 

Austria 

Belgium 

Denmark 

Finland 

France 

Germany 

Greece 

Ireland 

Italy 

Luxembourg 

Netherlands 

Portugal 

Spain 

Sweden 

UK 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

Yes 

yes 

(privately imported cars) 

(in  some  cases  along  with 
vehicle check) 

cross checking 

yes 

(cross checked with CoC) 

yes (provided by distributor) 

yes 

yes 

yes 

yes 

yes (not extracted) 

yes ( non-mainstream cars) 

yes 

yes 

yes 

yes 

yes 

yes 

no 

yes 

yes 

yes 

yes 

(fiscal  horsepower) 

yes 

no 

yes 

yes 

yes 

16 

Proposal for a 
COUNCIL DECISION 
establishing a scheme to monitor the average specific emissions 
of carbon dioxide from new passenger cars 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  establishing  the  European  Community  and  in  particular 
Article  130s(l) thereof, 

Having regard to the proposal  from the Commission14. 

I laving regard to the opinion of the Economic and Social Committee15, 

Acting  in  accordance  with  the  procedure  laid  down  in  Article  189c  of  the  Treaty  in 
cooperation with the European Parliament16, 

(1)  Whereas  the  Community  recognizes  that  greenhouse  gas  concentrations  in  the 
atmosphere  should  be  stabilized  at  such  a  level  that  would  prevent  dangerous 
anthropogenic interference with the climate system; 

(2)  Whereas  the  Community  is  committed,  within  the  United  Nations  Framework 
Convention on Climate Change, to stabilizing emissions of carbon dioxide (CO2) at 
1990 levels by 2000; 

(3)  Whereas the Community has accepted a target to reduce its emissions of a basket of 
greenhouse  gases  by  8%  relative  to  1990  levels  by  2008-2012  as  part  of  the 
Protocol  agreed  at  the  December  1997  Kyoto  Conference  of  the  Parties  to  the 
United Nations Framework Convention on Climate Change; 

(4)  Whereas  Council  Decision  93/389/EEC17  established  a  mechanism  to  monitor 

Community emissions of CO2 and other greenhouse gases; 

(5)  Whereas  in recognizing  the  importance  of passenger  cars as a  source  of  CO2, the 
Community,  in  the  Commission  Communication  of  20  December  199518,  has 
developed  a  strategy  to  reduce  CO2 emissions  from  passenger  cars  and  improve 
fuel  economy; 

14  OJ 
15  OJ 
16  Opinion  of the  lùiropcan  Parliament of 
Decision of the lùiropean Parliament of 

17  OJ 1. 167, 9.7.1993, p.  31. 
IX  COM(95) 689  final. 

(OJ  ...); Council  Common  Position  of 

(OJ  ... ); 

(OJ  ... ). 

\7 

Whereas the specific  emissions of C02  from  new passenger cars are measured  on a 
harmonized  basis  in  the  Community  according  to  the  methodology  laid  down  in 
Council  Directive  80/1268/EEC19  of  16  December  1980  relating  to  the  carbon 
dioxide emissions and the fuel  consumption  of motor  vehicles, as last amended by 
Commission  Directive 93/116/EC20; 

(7)  Whereas  it  is  necessary  to  establish  procedures  to  monitor  the  specific  emissions 
ofC02  from  new  passenger  cars  sold  throughout  the  Community  in  order  to 
monitor  the  effectiveness  of  the  Community  strategy,  as  referred  to  in  the 
Commission Communication of 20 December  1995; 

(8)  Whereas only official  data that is consistent  with Council  Directive 70/156/EEC21, 
as  last  amended  by  Commission  Directive  98/14/EC22  on  the  type-approval  of 
motor vehicles and their trailers, should be collected by the Member States; 

(9)  Whereas  Directive  70/156/EEC  provides  that  manufacturers  are  to  issue  a 
Certificate  of Conformity  which must accompany  each  new passenger  car and that 
Member  States  are  to  permit  the  registration  and  entry  into  service  of  a  new 
passenger car only if it is accompanied by a valid Certificate  of Conformity; 

(10)  Whereas  it  is  not  the  intention  of  this  Decision  to  harmonize  national  vehicle 
registration  systems but to build upon them  in order to ensure the compilation  of a 
minimum data set required to allow the proper functioning  of a Community scheme 
to monitor the average specific emissions of CO2 from  new passenger cars; 

(11)  Whereas  such  a  monitoring  scheme  should  only  apply  to  those  passenger  cars 
which  are to be  registered  for  the  first  time  in the  Community  and  have  not been 
registered previously elsewhere, 

HAS ADOPTED THIS DECISION: 

Article 1 

This  Decision  establishes  a  scheme  to  monitor  the  average  specific  emissions  of  CO2 
from new  passenger  cars  registered  in  the  Community.  It  only  applies  to  those 
passenger cars  which  are  being  registered  in  the  Community  for  the  first  time,  have  not 
been  registered  previously  elsewhere  and  have  been  subject  to  EC  type-approval  under 
Directive 70/156/EEC. 

,y  OJ  L 375,31.12.1910, p. U. 
20  OJL 329, 30.12.1993, p. 39. 
21  OJ L 42, 23.2.1970, p. 1. 
22  OJ L 91, 25.3.1998, p. 1. 

18 

For the purposes of this Decision: 

Artkk2 

1. 

Passenger car  means a  motor vehicle  of  category  MI,  as  defined  in  Annex  I to 
Directive  7Ô/156VEEC, that  is  used  for  the  carriage  of  passengers  and  that  lias no 
more than  eight  seats  in  addition  to  the  driver's seat  ft  does  not  include  two  and 
three-wheeled  motor  vehicles  and  special  purpose  vehicles  as  defined  in  the 
second indent of Article 4(lXa) of Directive 70/156/EEC. 

2.  Newly  registered car  means  a  passenger  car  registered  for  the  first  time  in  the 
Community.  It  specifically  excludes  those  vehicles  which  are  re-registered  in  a 
second Member State or have been registered previously outside the Community. 

3. 

4. 

Certificate  of  Conformity  means  the  certificate,  referred  to  in  Article  6  of 
Directive 70/156/EEC, which must accompany each new passenger car before  it can 
be registered or allowed entry into service. 

Specific  emission  of  Clh  for  a'  given  passenger  car  means  that  measured  in 
accordance with Directive 80/1268/EEC. 

5.  Manufacturer means  the  trade  name  of  the  person  or  body  responsible  to  a 
type-approval authority for all aspects of the vehicle type and is that which appears on 
the Certificate of Conformity (referred to as Make). 

6.  Maximum net power  of  new  passenger  cars  means  the  maximum  engine  power 
stated on  the  Certificate  of  Conformity  and  measured  in  accordance  with 
Council Directive 80/1269/EEC23. 

7.  Mass  means  the  mass  of  the  car  with  bodywork  in  running  order  as  stated 
in  section  2.6  of  Annex  I  to 

in the Certificate  of  Conformity  and  defined 
Directive 70/156/EEC. 

8. 

9. 

Engine Capacity means the engine capacity as stated on the Certificate of Conformity 
and measured in accordance with Directive 80/1269/EEC. 

Fuel type means the fuel  for which the car was originally type-approved  and  is that 
which appears on the Certificate of Conformity. 

10.  Registration  file  means  an  electronic  file  containing  information  relating  to  the 

registration of an individual passenger car. 

11.  Variant and version mean the differentiated  vehicles of a given type that are declared 
by the manufacturer, as described in Annex II to Directive 70/156/EEC, and uniquely 
identified by type, variant and version numbers. 

12.  Type-approval  documentation  means  the  information  package  containing  the 
information  folder,  type-approval  certificate  and  test  results  that  are  circulated 
between the national type-approval authorities in accordance with Article 4(5) and (6) 
of Directive 70/156/EEC. 

23  OJL 375, 31.12.1980,  p. 46. 

19 

Article 3 

1. 

For the purposes of establishing the scheme referred  to in Article  1, Member  States 
shall  collect  the  information  described  in  Annex  I  for  each  car  referred  to  in  that 
Article which is registered in their territory. 

2.  Member  States  shall  be  permitted 

to  take  the  information  referred 

type-approval  documentation  or 

to  in 
the 

paragraph  1  from 
Certificate of Conformity. 

either  Community 

3.  Member States shall be responsible for the validation and quality of the data that they 
collect.  Member  States  shall  take  into  consideration  the  potential  sources  of  error 
described  in  Annex  II,  take  steps  to  minimize  those  errors  and  make  an  annual 
assessment, by statistical analysis or otherwise, of the proportion of incorrect data that 
they have collected and stored. Member States shall communicate that assessment to 
the Commission together with the monitoring data referred to in Article 4(1). 

4. 

In the  light of the assessment  referred  to in paragraph  3, the  Commission  may ask 
Member  States  to  give  details  of the procedures  which  they  have  implemented  in 
order to ensure data quality and, if it is not satisfied  as to the effectiveness  of such 
procedures,  it  may,  in  consultation  with  the  Member  States,  ask  for  further 
measures to be implemented. 

Article 4 

1. 

In each  calendar  year Member  States  shall  calculate the  following  according  to the 
methods described in Annex III: 

(a)  For each separate fuel type, 

(i) 

the total number of newly registered passenger cars, 

(ii) 

the  average  specific  emissions  of  CO2  for  newly 
passenger cars; 

registered 

(b)  For each separate manufacturer  and fuel  type, the number of newly registered 

passenger cars and average specific emissions of CO2; 

(c)  For  each  fuel 

type  and  distinct  CO2  emission  category  specified  in 

Annex 111(4), the number of newly registered passenger cars; 

(d)  For each fuel type and distinct mass category specified  in Annex 111(5), 

(i) 

the number of newly registered passenger cars, 

(ii) 

the average specific emissions of CO2, 

(iii) 

the average mass; 

(e)  For  each  fuel  type  and  distinct  engine  net  power  category  specified  in 

Annex 111(6),  • 

(i) 

the number of newly registered passenger cars, 

20 

(ii) 

the average specific emissions of CO2, 

(iii)  the average net engine power; 

(() 

For  each  fuel  type  and  distinct  engine  capacity  category  specified  in 
Annex 111(7), 

(i) 

the number of newly registered passenger cars, 

(ii) 

the average specific emissions of CO2, 

(iii) 

the average engine capacity. 

2. 

The  information  referred  to  in  paragraph  1 shall  be  transmitted  annually  to  the 
Commission by the Member  States. The first transmission shall take place no later 
than  1 July  2001. Subsequent  transmissions  shall be completed  by  1 April  for the 
monitoring  data  collected  in  the  preceding  calendar  year.  The  data  shall  be 
transmitted in accordance with the format specified in Annex IV. 

3.  On request from the Commission, the Member States shall also transmit the full set 

of data collected pursuant to Article 3. 

ArtkkS 

Member States shall  designate a body responsible for the collection  and  communication 
of the monitoring information  and shall inform the Commission thereof by 31 July 2000. 

Article 6 

Member States shall report to the Commission by 31 July 2000 at the latest on how they 
intend  to  implement  the  provisions  of  this  Decision.  On  the  basis  of  those  reports 
the Commission  may  seek  further 
information  or  request,  in  consultation  with 
Member States, that changes be made in the proposed method of implementation. 

Article 7 

The  Commission  shall  report  to  the  Council  by  31 December  2003  at  the  latest  on the 
operation of the monitoring scheme established by this Decision. 

Article 8 

For each calendar year, the Commission shall submit to the Council a report based upon the 
monitoring data it receives from the Member States. 

This Decision is addressed to the Member States. 

Article 9 

Done at Brussels, 

For the Council 
The President 

21 

ANNEX 1 

Data to be collected and transmitted by the Member States for the 
purposes of a C02  monitoring scheme for new passenger cars 

With  regard  to  the  operation  of  a  Community-wide  scheme  to  monitor  the  specific 
emissions  of  CO2  from  new  passenger  cars,  Member  States  shall  collect  a  minimum 
amount of information  for each new passenger car that is registered  in the Community  for 
the  first  time.  Only  petrol  and  diesel  are  to  be  considered  as  these  are  the  only  fuels 
included in the European type-approval legislation. 

1. 

The following  data shall be collected  and  stored by the Member  States when a new 
passenger car is registered for the first time in the Community. 

specific emissions of CO2 (g/km) 

fuel  type (e.g. petrol, diesel) 

manufacturer 

mass (kg) 

maximum net power (kW) 

engine capacity (cm3) 

22 

ANNEX II 

Data Quality and Accuracy 

1. 

Introduction 

Manufacturers  may differentiate  their passenger  car types into variants and  further 
still  into versions. For any given car the  most  accurate  CO2 emissions  data  is that 
cited  for  the  particular  version  to  which  the  car  belongs.  For  the  purposes  of  the 
monitoring scheme Member States should collect, therefore, only "version  specific" 
data. 

2.  Use of type-approval  documentation as the source of monitoring data 

(a) 

Information  that  is  to  be  used  for  C02/cars  monitoring  purposes  (or  to  be 
included  in electronic databases for  subsequent  use in a C02/cars monitoring 
scheme)  must  be  extracted  from 
the  official  "information  package" 
accompanying  the  notification  of the  granting  of type-approval  as  circulated 
by  the  national  type-approval  authorities  in  the  Member  States  and  as  laid 
down in Directive 70/156/EEC. 

(b)  The information  package circulated by national type-approval  authorities may 
contain  data  specific  to  several  different  versions.  It  is  important,  therefore, 
that the appropriate data for a new passenger car covered by the provisions of 
this Decision is correctly identified  in the information  package. The data for a 
specific  version  shall,  therefore,  be  selected  on  the  basis  of  the  vehicle's 
"type", "variant" and  "version" numbers  as they  appear  on the  Certificate  of 
Conformity.  The Certificate  of Conformity  necessarily  contains  data  relating 
to a specific version of a given car type. 

3. 

Potential sources of error 

(a)  Extraction of version specific data from  type-approval  documentation 

There are two  important  potential  sources of error associated  with the use of 
type-approval  documentation  as  the  source  of  monitoring  data  for  the 
purposes  of  this  Decision.  The  first  may  arise  in  the  conversion  of  data 
contained in a paper format  in the information  folder  into an electronic  format 
for  use in a database  of type-approval  data. This  is most  likely to  arise  from 
human  error.  The  second  concerns  the  correct  extraction  of  data  from 
electronic databases of type-approval data. Data for the correct version should 
be  identified  in  such  databases  by  the  unique  combination  of  type, variant 
and version numbers given on the Certificate  of  Conformity. 

(b)  Transfer of data from the CoC into an electronic registration file 

When  data  is  taken  from  the  Certificate  of  Conformity  (paper)  and  entered 
into an electronic registration file during the registration  of  a new  passenger 
car there is a risk that incorrect data might be entered. The most likely source 
is human error. 

23 

(c)  Automated transfer of data by the manufacturers to registration authorities 

In  some  Members  States  manufacturers  are  asked  to  transfer  data  contained 
in the Certificate  of Conformity  to the registration authorities (or directly  into 
registration  files)  directly by electronic  means. There is of course a possibility 
that 
is  transferred  and  the  systems  should,  therefore, 
be validated. 

incorrect  data 

24 

ANNEX III 

Methodology to calculate the C02 monitoring information for new passenger cars 

This  Annex  describes  the  monitoring  information  that  is  to  be  communicated  to  the 
European  Commission.  The monitoring  information  is to be generated from the raw data 
collected  during  the  first  registration  of  new  passenger  cars  (described  in  Annex  I) 
according  to the methods  described  below.  The precise  format  in  which  this  information 
should be communicated to the Commission is described in Annex IV. 

Only  petrol  and  diesel  are  to  be  considered  as  these  are  the  only  fuels  included  in  the 
European  type-approval  legislation  at  the  current  time.  Only  information  regarding  new 
passenger cars which have not been registered previously within the Community are to be 
included in this monitoring scheme. Passenger cars which have been registered previously 
within  the  Community  or  elsewhere  are  specifically  excluded  from  the  provisions  of 
this Decision. 

1.  Numbers of newly registered passenger cars differentiated  by fuel type (N/). 

for  each  separate  fuel  type  (e.g.  petrol  and  diesel)  Member  States  shall  sum  the 
number  of new passenger  cars  which  have been  registered  for  the first time  within 
their territory. For each  fuel  type,/  the number of new passenger cars registered  for 
the first time is represented as Nf. 

2.  Average  specific  C02  emissions  of  newly  registered  cars  of  a  given  fuel 

type (Sfiave) 

The  specific  CO2 emission  averaged  over  all  newly  registered  cars  of  a given  fuel 
type, (designated by Sfiaw) is calculated from the sum of the specific CO2 emissions of 
each  individual  newly  registered  car  of  a  particular  fuel  type,  S/, divided  by  the 
number of newly registered cars of the same fuel type, Nf. 

Sf^iVNf) 

.15/ 

3. 

The average specific C02 emissions for all newly registered cars of a given fuel 
type and manufacturer (Sf>ave>man) 

This  is  calculated  from  the  sum  of  the  specific  CO2  emissions  from  each  newly 
registered  car of a particular  fuel  type and manufacturer,  Sfman,  divided  by the total 
number of newly registered cars of the same fuel type and manufacturer, Nfman. 

àfave,man~ 

\i'  ™fman)  • ^  ^f.man 

4.  The distribution of CO2 emissions from new passenger cars 

The number of newly registered passenger cars of each fuel type which fall into each 
of  the  following  CO2  emission  categories  is  to  be  recorded.  The  CO2  emission 
categories  are  <60,  60-80,  81-100,  101-120,  121-140,  141-160,  161-180,  181-200, 
201-250,251-300, >300 g/km. 

25 

5.  The mass distribution of new passenger cars 

For each of the  following  mass categories, <650, 650-750,  751-850,  851-950, 951-
1050,  1051-1150,  1151-1250,  1251-1350,  1351-1550,  1551-1750, and >1750 kg the 
number of newly registered passenger cars of a given fuel  type, the average mass of 
these vehicles and also their average specific emissions of CO2 are to be recorded 

If the number of new cars in a given mass category, m, and fuel  type,/  is given by 
Nfm, then the average mass of these vehicles Mfmiave, is calculated from the sum of the 
individual masses Mfm, of each new car divided by Nfm. 

MfMmcss  ( 1 / % /)  -^Mfm 

If Sf,„ is the specific emission of CO2 of individual cars in a particular mass category 
and fuel type then, by analogy, the average specific emission of CO2 of these vehicles 
is given by 

Sfm,ave= 

( 1/  Nfm) 

.L<Sfm 

6.  The distribution of maximum net power of newly registered passenger cars 

For each of the following maximum net power categories,  <30, 30-40, 41-50, 51-60, 
61-70,  71-80,  81-90,  91-100,  101-110,  111-120,  121-130,  131-140,  141-150, 151-
160,161-170, and >180 kW the number of newly registered passenger cars of a given 
fuel  type, the average maximum  net power of these vehicles  and also their average 
specific emissions of CO2 are to be recorded. 

If the number of new cars in a given power range, p, and fuel type,/  is given by Nfp, 
then the average net power of these vehicles Pfp<ave, is calculated from the sum of the 
individual maximum net power values Pfp of each new car divided by Nfp. 

Pfp.ave^  (1/  Nfp) 

.ZiPfp 

If Sfp is the specific  emission of CO2 of individual  cars in a particular engine power 
category  and  fuel  type  then,  by  analogy,  the  average  specific  emission  of  CO2 for 
these vehicles is given by 

Sfp.ave =  ( 1/  Nfp) 

. £  Sfp 

7.  The distribution of engine capacity of newly registered passenger cars 

For each of the following  engine capacity categories, <700, 700-800, 801-900, 901-
1000,  1001-1100,  1101-1200,  1201-1300,  1301-1400,  1401-1500,  1501-1600, 1601-
1700, 1701-1800,  1801-1900,  1901-2000, 2001-2100, 2101-2200, 2201-2400, 2401-
2600, 2601-2800, 2801-3000, >3000 cm3 the number  of newly registered  passenger 
cars of a given fuel  type, the average engine capacity of these vehicles and also their 
average specific emissions of CO2 are to be recorded. 

If the number of new cars in a given engine capacity range, c, and fuel type,/  is given 
by Nfc,  then the average engine  capacity of these  vehicles  C/Cave,  is calculated from 
the sum of the individual engine capacities, Cfc of each new car divided by Nfc. 

Q,.„„.-(!/%)  . E C, 

\fSfc is the specific  emission of CO2 of individual cars in a particular engine capacity 
category  and  fuel  type  then,  by  analogy,  the  average  specific  emission  of  CO2  for 
these vehicles is given by 

Sfcave- 

( 1/  Nfc) 

.ZéSfc 

27 

ANNEX IV 

Format of monitoring information to be transmitted to the Commission 

The  following  outlines  the  format  in  which  the  monitoring  information,  calculated 
according to the methodology in Annex III, should be communicated by the Member States 
to the Commission. 

1. 

Specific emissions of CO2 averaged over all newly registered passenger cars of  a 
given fuel-type 

For  each  different  fuel-type  Member  States  shall  provide  the  number  of  newly 
registered passenger cars and the average specific  CO2 emission of those cars. The 
data  shall  be  presented  in  tabulated  form,  as  illustrated  below,  where  the  CO2 
emissions values are to be given to the nearest whole number. 

Fuel type  Number of newly registered cars  Average specific CO2 emission g/km 

Petrol 

Diesel 

.... g/km 

g/km 

2.  Average specific emissions of CO2 by manufacturer and fuel type 

The  data  concerning  all  newly  registered  passenger  cars  are  to  be  grouped  by 
manufacturer  and sub-divided  further  by fuel  type (e.g. petrol and diesel). For each 
sub-group  Member  States  shall  present  the average  specific  emissions  of CO2 and 
the  number  of  vehicles  on  which  it  is  based.  The  required  information  is  to  be 
transmitted  in a tabulated  form  as shown  below.  Again  the  CO2 emissions  values 
are to be given to the nearest whole number. 

Manufacturer  Fuel type 

Number of newly 
registered cars 

Average specific  C02 
emission g/km 

Petrol 

Diesel 

.... g/km 

.... g/km 

28 

The distribution of C02 emissions in the new passenger car fleet 

For  each  different  fuel  type  Member  States  shall  provide  the  number  of  new 
passenger  cars registered  in each distinct  CO2 emission  category,  by  manufacturer 
and for the total of  all manufacturers, according to the following  format. 

Manufacturer 

Fuel type 

Numbers of newly registered passenger cars per C02 Emission Category (g/km) 

<60  60-80 

81-
100 

101-
120 

121-
140 

141-
160 

161-
180 

181-
200 

201-
250 

251-
300 

>300 

Petrol 

Diesel 

Fuel 
type 

Petrol 

Diesel 

Total of all  manufacturers 

Numbers of newly registered passenger cars per C02 Emission Category (g/km) 

<60 

60-80 

81-
100 

101-
120 

121-
140 

141-
160 

161-
180 

181-
200 

201-
250 

251-
300 

>300 

4.  The distribution of mass, power and engine capacity of new passenger cars 

The vehicle characteristics  of mass, power  and  engine capacity  have been  divided 
into classes and aggregated data for each class interval  is to be communicated. The 
data required, by manufacturer  and  for  the total  of all  manufacturers,  regards the 
average property (mass, power, engine capacity) and the average specific  emission 
of CO2 for the vehicles in the class. The values of mass, power and engine capacity 
and specific emissions of CO2 are to reported to the nearest whole number. 

29 

New passenger car mass in kg 

•  650 

650-750  751-850  851-
950-

951-
1050 

1051-
1150 

115!-
1250 

1251-
1350 

1351-
1550 

1551-
1750 

•1750 

Manufacturer 

I'uel-lype/pnrmneler 

Petrol 

Number 
of cars 

Average 
mass 

Average 
C02 
emission 

Diesel 

Number 
of cars 

Average 
mass 

Average 
CO2 
emission 

Total of all manufacturers 

Fuel-type/parameter 

New passenger car mass in kg 

<650 

650-750  751-850  851-
950-

951-
1050 

1051-
1150 

1151-
1250 

1251-
1350 

1351-
1550 

1551-
1750 

>1750 

Petrol 

Number 
of cars 

Average 
muss 

Average 
CO2 
emission 

Diesel 

Number 
of cars 

Average 
mass 

Average 
CO2 
emission 

30 

New passenger car maximum engine power in kW 

<30 

30-40 

41-50 

51-60 

61-70 

71-80 

81-90 

91-
100 

101-
110 

111-
120 

121-
130 

131-
140 

141-
150 

151-
160 

161-
170 

171-
180 

>180 

Manufacturer 

Fuel-type/parameter 

Petrol 

Number 
of cars 

Diesel 

average 
engine 
power 

average 
CO: 
emission 

number 
of cars 

average 
engine 
power 

average 

emission 

31 

Fuel-type/parameter 

Petrol 

number 
of cars 

Average 
engine 
power 

Average 
C02 
emission 

Diesel 

Number 
of cars 

Average 
engine 
power 

Average 
C02 
emission 

Total of all manufacturers 

New passenger car maximum engine power in kW 

<30 

30-40 

41-50 

51-60 

61-70 

71-80 

81-90 

91-
100 

101-
110 

111-
120 

121-
130 

131-
140 

141-
150 

151-
160 

161-
170 

171-
180 

>180 

. 

32 

<700 

700-
800 

801-
900 

901-
1000 

1001-
1100 

1101-
1200 

1201-
1300 

1301-
1400 

1401-
1500 

1501-
1600 

1601-
1700 

1701-
1800 

1801-
1900 

1901-
2000 

2001-
2100 

2101-
2200 

2201-
2400 

2401-
2600 

2601-
2«00 

2801-
3000 

>3000 

New passenger car engine capacity in cm3 

Manufacturer 

Fuel-type/parameter 

Petrol 

Number 
of cars 

average 
engine 
capacity 

average 
CO2 
emission 

Diesel 

number 
of cars 

average 
engine 
capacity 

average 
CO2 
emission 

33 

Total of all manufacturers 

•3 

j 

l 

New passenger car engine capacity in cm 
1301-
1601-
1901-
1400 
2000 
1700 

1501-
1600 

1801-
1900 

1401-
1500 

1701-
1800 

2001-
2100 

2101-
2200 

2201-
2400 

2401-
2600 

2601-
2800 

2801-
3000 

>3000 

<700 

700-
800 

801-
900 

901-
1000 

1001-
1100 

1101-
1200 

1201-
1300 

Fuel-type/parameter 

Petrol 

number 
of cars 

average 
engine 
capacity 

average 
C02 
emission 

Diesel 

Number 
of cars 

• 

Average 
engine 
capacity 

Average 
CO2 
emission 

34 

IMPACT ASSESSMENT  FORM 

The Impact of the Proposal on Business with Special Reference  to Small and 
Medium-Sized Enterprises (SMEs) 

TITLE OF THE  PROPOSAL 

Proposal  for  a  Council  Decision  establishing  a  scheme  to  monitor  the  average  specific 
emissions of carbon dioxide from new passenger cars 

Reference Number (Repertoire) 

I. 

TAKING  INTO  ACCOUNT  TIIK  PRINCIPLE  OK  SUBSIDIARITY,  WHY  IS  COMMUNITY 

LEGISLATION  NECESSARY  IN THIS AREA AND WHAT ARE ITS MAIN  AIMS? 

The  Communication  from  the  Commission,  COM(95)  689  final,  as  endorsed  by  the 
Council  in  its  conclusions  of  25  June  1996,  sets  out  a  strategy  to  reduce  the 
CO2 emissions of new passenger cars sold in the EU. The strategy consists of three main 
elements,  namely,  an  agreement  with  the  auto  manufacturers  to  reduce  the  fuel 
consumption  of  their  cars,  fuel  economy  labelling  and  fiscal  measures.  In  addition,  the 
strategy contains an emissions objective of  120 g/km of CO2 expressed  as an average for 
the  Community's  new  car  fleet.  This  objective  is  to  be  attained  by  2005  (2010  at 
the latest). 

The  C02/cars  strategy  sets  out  a  Community  objective  and,  therefore,  monitoring  at  a 
Community  level  is required  to  assess the  effectiveness  of  the  CO2 cars  strategy.  In its 
conclusions,  the  Council  stressed  the  importance  of  establishing  a transparent  EU-wide 
monitoring system  in order to be able to assess the progress  made towards attainment of 
the desired  CO2 emissions  objective.  Moreover,  the  Council  invited  the  Commission  to 
come forward  with a proposal on this matter. 

No  system  currently  exists  at  an  EU  level  which  would  allow  for  monitoring  of  the 
specific  emissions of CO2 from  new cars. Only the Member  States collect  the necessary 
data for  the operation  of a monitoring  system  of sufficient  accuracy  and robustness. All 
Member  States  are  concerned,  therefore,  and  participation  of  each  Member  State  is 
required in order for a Community-wide monitoring scheme to be  successful. 

The principal  aim  of the proposed  action  is the ability  to  assess the effectiveness  of the 
Community's policies to reduce the specific  emissions of C02  from  new passenger cars. 
In addition, the proposed  monitoring  scheme will provide information  on the changes in 
the  passenger  car  fleet,  resulting  from  the  implementation  of  the  strategy,  which  may 
affect  other Community policy objectives such as air quality, ground level ozone, regional 
acidification  and road safety. 

2. 

THE  IMPACT ON BUSINESS 

Who will be affected  by the proposal? 

As the proposed monitoring  scheme will use official  data associated with the registration 
of new vehicles in the EU it is likely that the impacts resulting from  the  implementation 
of the proposed Decision will fall  onto the national vehicle registration  authorities in the 

35 

Member States. However, in some instances where new car registration is performed  with 
data  transmitted  automatically  by  the  dealers  to  the  national  registration  authority  it  is 
possible that new car dealers will also be  affected. 

What will business have to do to comply with the proposal? 

In  all  the  Member  States  the  vehicle  registration  authorities  collect  certain  items  of 
vehicle  specific  data before  registering  a new passenger  car and  allowing  it into service. 
The current  proposal  will  mean that  national  vehicle registration  authorities  may have to 
modify  their  registration  procedures  and  electronic  data  bases  in  order  to  capture 
additional data required by the proposed monitoring scheme. These changes will, in most 
cases,  be  modest.  In  addition,  some  processing  of  the  accumulated  passenger  car 
registration  data  will  have to be performed  by these registration  authorities  in order that 
they  can  report  the  relevant  aggregated  data  to  the  Commission  each  year.  In  those 
Member  States where the new car dealers play  a more active role in vehicle  registration 
they  may have  to adapt computer  systems  in order to transmit  extra data to the national 
vehicle  registration  authority.  These  changes  are  expected  to  be  of  a  minor  nature 
(e.g. one or two extra pieces of information per vehicle registered). 

What economic effects  is the proposal likely to have? 

Implementation  of the proposed Decision will have modest financial  implications for the 
national  vehicle registration  authorities. Cost estimates obtained  from  the Member  States 
range from  ECU  17 000-125 000 for the upgrading of computers and software  and annual 
costs for data processing of up to ECU 40 000. These cost estimates are based on a single 
Member State basis. 

The  proposed  Decision  is  unlikely  to  have  any  effect  on  employment,  investment,  on 
creation  of  new  businesses  or  on  the  competitive  position  of  businesses.  The  proposal 
may  have  the  effect  of  bringing  forward  Member  State's  plans  to  upgrade  computer 
facilities,  etc.  associated  with  vehicle  registration,  as  several  have  indicated  that  such 
changes are being considered  for  domestic  policy  reasons  (e.g. differentiated  circulation 
taxes according to the degree of vehicle exhaust pollution). 

Does the proposal contain measures to take account of the specific  situation of small and 
medium-sized firms? 

No. The proposed Decision will have very minor effects  on small businesses. 

3. 

CONSULTATION 

Representatives  from  the  vehicle  registration  authorities  in  most  Member  States  have 
been consulted  as well as representatives  from  the European  Automobile  Manufacturers 
Association  (ACEA), the  European  Conference  of  Ministers  of  Transport  (ECMT)  and 
NGOs. Those  Member  States that  have participated  in the  development  of the  proposal 
have  been  favourably  disposed  to  the  establishment  of  a  monitoring  scheme.  Some 
Member  States would prefer,  however, to have a scheme that  is not  overly complex and* 
which increases markedly the quantity of data that they would be required to collect. The 
auto  industry  is  also  favourably  disposed  as  it  perceives  such  a  scheme  as  providing  a 
transparent and unambiguous measure of the progress that it is likely to make in reducing 
emissions of CO2 from new cars in the future. 

36 

ISSN 0254-1475 

COM(98) 348 final 

DOCUMENTS 

EN 

14  07  15 

Catalogue  number  :  CB-CO-98-375-EN-C 

ISBN  92-78-37061-4 

Office  for Official  Publications of the European  Communities 

L-2985  Luxembourg 

37