Opinion of the Economic and Social Committee on the 'Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on Transport and CO2 - Developing a Community Approach'
Date: 1999-01-28
Institutions: European Economic and Social Committee
Subjects: ESC opinion, EU policy, air quality, combustion gases, gas, transport policy

12.4.1999

EN

Official Journal of the European Communities

C 101/17

Opinion of the Economic and Social Committee on the ‘Communication from the Commission
to the Council, the European Parliament, the Economic and Social Committee and the
Committee of the Regions on Transport and CO2 — Developing a Community Approach’

(1999/C 101/05)

On 3 April 1998 the Commission decided to consult the Economic and Social Committee,
under Article 198 of the Treaty establishing the European Community, on the above-mentioned
communication.

The Section for Transport, Energy, Infrastructure and the Information Society, which was
responsible for preparing the Committee’s work on the subject, adopted its opinion on
16 December 1998. The rapporteur was Mr Colombo.

At its 360th plenary session (meeting of 28 January 1999) the Economic and Social Committee
adopted the following opinion by 90 votes to one, with two abstentions.

1. The aims of the Communication

This Communication is the European Com-
1.1.
mission’s first practical response to the Kyoto conference
of 10 December 1997. The European Union played a
key role at that conference in determining a global
strategy for curbing man-made climate change to safe-
guard the future of the planet.

1.1.1.
The Communication’s ambitious objective is
to curb CO2 emissions while improving transport
efficiency.

1.1.2.
The document fits into the wider context of
rationalizing the use of energy resources with a view to
maintaining production levels, mobility and quality of
life while consuming less energy.

1.2.
The sectoral repartition of the Kyoto target is
another area that will need to be tackled. The present
Communication does not address that complex and
sensitive issue.

1.3.

The Commission presents two strategies:

— In the short to medium term: full exploitation of the
potential results already available on the basis of
decisions that have already been adopted.

involves obtaining substantial

This
immediate
environmental benefits from transport policy, by
applying the technologies available and promoting
and developing more environmentally-sound forms
of transport. Appropriate fiscal and pricing measures
must also be applied.

In addition, strong encouragement should be given
to complementary measures under appropriate
national and regional policies.

and alternative fuels. This policy, based on far-
reaching scientific and technological change, must
be backed by major investment in research and
development, starting with the opportunities offered
by the European Union’s imminent Fifth Framework
Programme.

In this context, the Commission lists a series of
1.4.
initiatives which,
if implemented in a uniform and
coordinated fashion, could yield benefits and stem
further increases in CO2 emissions. The Kyoto summit’s
objectives call for an overall reduction in greenhouse
gas emissions of 8 % from 1990 levels, by 2010 or
thereabouts. It should be noted that the Energy/Environ-
ment Council of October 1990 set the objective of
stabilizing CO2 emissions at 1990 levels, by the
year 2000 (1).

2. General comments

2.1.
The Economic and Social Committee welcomes
the Commission Communication and takes the view
that respect for the principle of sustainable development
requires a shift in the development trend of the transport
sector, involving a substantial investment of resources.
Transport policy must be dovetailed synergically with
all other policies, including those conducted at regional
and urban level.

2.1.1.
Furthermore, immediate legislative action must
be taken in the area of environmental protection, to
ensure that agreements in principle such as those
arrived at in Kyoto are not followed by the repeated
postponement of practical measures.

2.1.2.
An ambitious project on this scale will require
the commitment and participation of all those involved,
including the public, who will have to change their
habits, as the proposed measures, which will be analysed

— In the long term (after 2010): the large-scale introduc-
tion of new technologies associated with fuel cells

(1) OJ C 139, 6.5.1997, p. 14.

C 101/18

EN

Official Journal of the European Communities

12.4.1999

in detail, are likely to lead to a review of traditional
patterns of mobility.

negotiations must not centre solely on pure economics
but must also provide for specific commitments to apply
existing Community legislation, and, in particular, a
sustainable transport sector policy to stave off market
distortions and uncontrollable effects.

A variety of substances contribute to the green-
2.2.
house effect, including methane (CH4) and nitrous oxide
(N2O). However, it is well known that carbon dioxide
emissions are the primary cause. CO2 is the natural
product of the combustion and fermentation of all
organic substances. The level of CO2 in the atmosphere
increases in proportion to the quantity of fossil fuel
burned and thus — regardless of efficiency — to energy
consumption. The International Energy Agency predicts
a significant increase in world levels over the coming
decades. Forecasts suggest an increase of close to 50 %
between 1990 and 2010. Three-quarters of that rise will
be attributed to developing countries (China, South-East
Asia, etc.). Coal consumption in China alone is set to
soar from 1 to 3 billion tonnes a year (1).

Reducing CO2 thus implies reducing energy
2.3.
consumption, inter alia, by using alternative fuels which
have less impact on the environment. Road transport is
a logical main focus for action as it is a major source of
CO2 emissions, which increased more rapidly than
GDP over the 1985/1995 period; however, it must be
remembered that action is also needed in the other sectors
which contribute to CO2 emissions. The Commission
document highlights the transport sector’s level of CO2
emissions compared with other sources of pollution, as
well as the proportion of CO2 emissions arising from
road transport compared with other modes of transport.
The percentage share of goods vehicles increased signifi-
cantly during the 1985/1995 period, a fact matched by
the considerable increase in tonnages transported over
the same period.

2.4.
Attention must also be paid to the countries of
Eastern Europe, whose transport systems, once run on
a centrally planned basis and relying predominantly on
rail transport, are in a state of flux. Worryingly, rail
transport is in steady decline in favour of road transport,
while in cities public transport is losing ground to private
transport. The fact that Community funding largely
targets roads is no help (2). Therefore, the accession

(1) World energy forecasts. International Energy Agency —

Paris 1994.

(2) The railways are not currently equipped to meet the
growing demand for transport resulting from the require-
ments of mobility and economic development. The attrac-
tion of private vehicle ownership, with cars as status
symbols, also plays an important role.

2.5.
The transport sector as a whole has become an
increasingly crucial tool in social development as a result
of the removal of borders, just-in-time delivery, the rise
in SMEs [70 % of capacity (3)], and the transition from
an industrial-type economy to a liberalized service-based
economy. As a result, road freight contributes signifi-
cantly to GDP and employment, currently the Union’s
central concern. In spite of the efforts made to apply
transport strategy and policy in line with the principles
outlined in successive green and white papers, mostly
produced in the 1990s, and in spite of Council commit-
ments, the situation has failed to change over the years.
Furthermore, road transport has steadily expanded its
presence on the market.

For some time,

2.6.
there has been a trend in
Community legislation as a whole towards focusing on
environmental protection as a priority, seeing it as a
genuine opportunity to promote environmentally sound
development rather than as an obstacle to progress.

2.7.
Initial action must focus on the development of
a strategy to curb the constant rise in emissions of the
main greenhouse gases (CO2-CH4-N2O), a concern
shared by the entire international scientific community.
Their theories on the risks facing the Earth, starting
with climate change, are backed up by a mass of scientific
data. The only way to avoid further environmental risks
to the planet is practical action and definite results.
What is needed is a holistic policy approach based firmly
on the search for technologically advanced solutions. It
is unwise to rely solely on more immediate solutions
such as the use of taxation which, if used in isolation
rather than as part of a global approach, could have a
negative impact on industry and production.

This major objective will call into question the
2.8.
conventional wisdom behind development models in the
transport sector, and produce a new European dimension
to establish proper resources for social, civil and techno-
logical development. The European Commission, firms

(3) OJ C 19, 21.1.1998, p. 25.

12.4.1999

EN

Official Journal of the European Communities

C 101/19

and social groupings must join forces to review the issue
of logistics, internally at organizational level within
companies (use of telematics for logistics management)
and externally with local cooperation to reduce transport
density.

that is both environmentally viable and cost effective,
and also the long average life-span of vehicles, which
can be replaced only gradually over time.

2.9.
The objective is a crucial one. There would
appear to be no choice but to make transport policy the
priority, as transport generates high levels of CO2
emissions while being a linchpin sector involving vast
numbers of users. The Community must attempt to
attain a high level of environmental protection and
improvement for current and future generations, while
maintaining its competitive edge in international terms.

2.12.
The environment must have priority, even when
it comes to improving the future mobility of people and
goods. However, results will not match expectations
unless the European proposals are founded on a broad
social and political consensus, going beyond the Euro-
pean dimension, as environmental protection is a global
policy by definition. An innovative all-encompassing
vision is required to balance the primary and ineluctable
need to protect the environment with the need to develop
the economy and trade.

2.10.
The following table illustrates the pre-Kyoto
scenario and makes a plausible forecast for future
development. It also points up worrying trends, which
call for maximum attention to be focused on this
economically vital sector.

3. Specific comments

Breakdown of CO2 emissions by sector
(million tonnes) (1)

Sector/year

1990

2010

%
increase/
decrease

Transport

Industry

Energy

Household/services

730

1 032

+ 39 %

626

141

654

532

158

680

- 15 %

+ 12 %

+ 4 %

+ 2 %

Electricity/heat production

1 036

1 057

Total emissions

3 200

3 459

+ 8 %

Source: pre-Kyoto scenario, based on Eurostat figures (excluding
international marine bunkers, but including international air
transport).

3.1.
First of all, there must be no doubt that whereas
the Community has a definite responsibility for defining
the general framework for action, direct targeted action
must be up to individual Member States, which must
commit themselves to taking appropriate action in
accordance with the subsidiarity principle. Economic
assessments and eco-balance sheets taking account of
the pros and cons of each initiative should be conducted
at Community level. Although the grounds for the
Commission’s statement that ‘at Community level, the
policy of internalizing all external costs of transport
would reduce CO2 emissions on average by 11,5 %’ (2)
are unclear and in spite of the fact that the costs and
possible loss to sectoral competitiveness have yet to be
assessed, it is clear that it would be much easier to
draw up an eco-balance sheet — and would enhance
intermodal competition — if external costs were
internalized for all modes of transport.

3.2.
Urban traffic would appear to pose the most
serious problem. In this respect, the Commission green
paper (3) is as important as ever. Action must be taken
on traffic flow and congestion, taking appropriate
decisions at local level on a case by case basis (intelligent
traffic lights, park and ride facilities, sensible use of
personal vehicles). The agreement which the Com-
mission has concluded with vehicle manufacturers (4)

2.11.
The need for a series of immediate actions and
practical pointers in the transport sector to curb CO2
emissions is also justified by the length of time required
to achieve significant results in the area. The reasons
include the absence of radically innovative technology

(1) The purpose of this table is solely to highlight the need to

give priority attention to the transport sector.

(2) COM(1998) 204 final, pt. 2.9.
(3) OJ C 212, 22.7.1996, p. 77.
(4) The agreement between the Commission and the European
Automobile Manufacturers Association (ACEA) provides
for a limit of 140 g/km for CO2 emissions by 2008, i.e. a
reduction of approximately 25 % on 1995 figures. The
Commission must check periodically that manufacturers
are complying with their commitments.

C 101/20

EN

Official Journal of the European Communities

12.4.1999

deserves approval and support. This aspect is crucial
and will probably lead to the use of small power units
offering limited speed. Moreover urban transport has
by far the highest external costs (1). It is therefore
essential to promote public transport and make it more
attractive. A major effort must be made with the freight
companies and their customers to rationalize logistics
and commercial facilities, and thus distribution pro-
cedures. Specific town planning measures (loading and
unloading points) are also needed. Action must be taken
to rationalize and regulate physical distribution for
freight transport in urban areas. The damage is caused
not so much by traffic as by stop and go driving, random
parking for unloading, and distribution schedules (2).
For instance, goods deliveries during rush hours are a
source of pollution and congestion.

3.3. Measures already agreed on for freight trans-
port (3) must be implemented. The issue must be
addressed in a more general way, as a combined road/sea
and road/rail strategy is required to redress the modal
balance. That will involve restructuring road haulage
firms to prepare them for combined transport, with a
view to increasing efficiency and consolidation. Rail
companies must be willing to rise to the commercial
challenge. Furthermore, road freight efficiency must be
increased by, for instance, cutting down on empty
running and promoting across-the-board use of telemat-
ics. Provision must be made for road-freight handling
equipment using intermodal
terminals with a low
environmental impact and a greater maximum author-
ized weight (4), applying for instance the modular concept
provided for in Directive 1996/53 (5) for the Union’s
most northerly countries.

Air transport (6) is a highly sensitive issue. The
3.4.
figures given in the Communication are all the more
significant when considered in relation to the number
of passengers and quantity of goods carried. The fact
that air transport accounts for 12 % of all CO2 emissions
in the transport sector is significant in itself. Focused
intervention is needed in this area, including the pro-

(1) OJ C 56, 24.2.1997, p. 31.
(2) CONFETRA — Conf. Trasporti-ufficio studi, Milan,

January 1994.

(3) OJ C 19, 31.1.1998, p. 25; OJ C 95, 30.3.1998, p. 21; OJ

C 89, 19.3.1997, p. 18; OJ C 56, 24.2.1997, p. 31.

(4) OJ C 261, 19.8.1998, p. 10.
(5) OJ C 295, 22.10.1994, p. 72.
(6) OJ C 95, 30.3.1998, p. 59; OJ C 73, 9.3.1998, p. 66; OJ

C 56, 24.2.1997, p. 26.

motion of cooperation and alliances between airlines,
an improvement in air traffic management systems, and
appropriate attention to aircraft occupancy/use rates.

Rail transport (7) does not appear to generate
3.5.
any particular problems, at least in terms of CO2
emissions, although the Commission’s figures do not
show the impact of electricity generation. The necessary
subsidies for combined transport have, sad to say,
proved for the most part insubstantial. This sector too
requires Community intervention but the Community’s
finances are minimal. Suffice it
to say that only
ECU 6 million is available for the 1998 PACT (8)
programme. The development of rail transport will
require the harmonization of technical standards, inter-
operability and the option of a single tariff for inter-
national journeys.

3.6. Maritime and inland waterway transport are
two extremely energy-efficient modes which can help to
improve freight and passenger mobility. However, the
drive to reduce greenhouse gas emissions must be
extended to all international shipping. The viability of
our planet poses a challenge which has to be addressed
at global level.

4. Conclusions

The Committee welcomes the Commission Com-
4.1.
munication and takes the view that respect for the
principle of sustainable development requires a shift in
the development trend of the transport sector, involving
a substantial investment of resources.

Reducing CO2 implies reducing energy consump-
4.2.
tion, inter alia, by using alternative fuels which have
less impact on the environment. Road transport is a
logical main focus for action as it is a major source of
CO2 emissions, which increased more rapidly than
GDP over the 1985/1995 period; however, it must be
remembered that, action is also needed in the other
sectors which contribute to CO2 emissions.

4.3. What is needed is a holistic policy approach
based firmly on the search for technologically advanced
solutions. It is unwise to rely solely on more immediate
solutions such as the use of taxation which, if used in
isolation rather than as part of a global approach, could
have a negative impact on industry and production.

(7) OJ C 206, 7.7.1997, p. 23; OJ C 153, 28.5.1996, p. 16.
(8) PACT: Pilot Actions in Combined Transport.

12.4.1999

EN

Official Journal of the European Communities

C 101/21

4.4.
There is no doubt that whereas the Community
has a definite responsibility for defining the general
framework for action, direct targeted action must be up
to individual Member States. Economic assessments and
eco-balance sheets taking account of the pros and cons

of each initiative should be conducted at Community
level. It is clear that it would be much easier to draw up
an eco-balanced sheet — and would enhance intermodal
competition — if external costs were internalized for all
modes of transport.

Brussels, 28 January 1999.

The President

of the Economic and Social Committee

Beatrice RANGONI MACHIAVELLI

APPENDIX

to the opinion of the Economic and Social Committee

The following amendment was approved by at least a quarter of the members present but defeated
during the debate:

Point 3.4

Replace last sentence by the following:

‘Here intervention is particularly needed to improve air traffic control systems.’

Reason

The lack of competition resulting from excessive cooperation between airlines is already a problem. We
should not give further encouragement to such alliances. There is nothing to show that increased
economies in this sector would produce environmental benefits that outweigh the risks that even weaker
competition can be expected to bring in its wake.

Result of the vote

For: 24, against: 48, abstentions: 6.